Common Guidelines FOR Watershed Development Projects: Government of India 2008

COMMON GUIDELINES
FOR
WATERSHED DEVELOPMENT PROJECTS
Government of India
2008
Common Guidelines for Watershed Development Projects 1

Contents
1. Preface.............................................................................................................................3
2. Guiding Principles .........................................................................................................10
3. Technology Inputs........................................................................................................12
4. Institutional arrangements at National, State and District levels ............................14
4.1. Role of National Rainfed Area Authority............................................................... 14
4.2 Institutional arrangement at the Ministry Level................................................... 15
4.3 National Level Data Centre and National Portal .................................................. 17
4.4 State Level Nodal Agency ...................................................................................... 18
4.5 District Watershed Development Unit (DWDU) ................................................... 21
4.6 Role of Panchayati Raj Institutions at district and intermediate levels ............. 24
5. Institutional Arrangements at Project Level ..............................................................25
5.1 Project Implementing Agency (PIA) ..................................................................... 25
5.2 Roles and Responsibilities of the PIA.................................................................... 27
5.3 Watershed Development Team............................................................................. 28
5.4 Roles and Responsibilities of WDT........................................................................ 28
6. Institutional Arrangements at the Village Level and People’s Participation...........30
6.1 Self Help Groups ..................................................................................................... 30
6.2 User Groups............................................................................................................. 30
6.3 Watershed Committee (WC).................................................................................. 31
6.4 Secretary, Watershed Committee ......................................................................... 32
6.5 Role of Gram Panchayat......................................................................................... 32
7. Criteria for selection of watershed projects ...............................................................33
8. Project Management...................................................................................................34
8.1 Preparatory Phase .................................................................................................. 34
8.2 Watershed Works Phase ........................................................................................ 39
8.3 Consolidation and Withdrawal Phase.................................................................... 40
9. Allocation of funds, approval of projects and release of funds................................43
9.1 Allocation of Funds to States ................................................................................. 43
9.2 Allocation of Funds to Districts.............................................................................. 43
9.3 Approval & sanction of Watershed Development Projects ................................. 43
9.4 Procedure for release of installments ................................................................... 45
9.5 User Charges........................................................................................................... 46
9.6 Watershed Development Fund .............................................................................. 47
9.7 Coordination with other schemes / projects ........................................................ 48
9.8 Foreclosure of projects........................................................................................... 49
10. Capacity Building Strategy .......................................................................................50
10.1. Key Elements of Capacity Building Strategy......................................................... 50
10.2 Resource Organizations and Developing Partnerships........................................ 51
11. Monitoring, Evaluation and Learning.......................................................................52
11.1 Monitoring ............................................................................................................... 52
11.2 Evaluation................................................................................................................ 53
11.3 Learning................................................................................................................... 54
11.4 Outcomes / End Results......................................................................................... 54

1. Preface
1. In 1994, a Technical Committee under the Chairmanship of Prof. C.H.
Hanumantha Rao, was appointed to assess the Drought Prone Areas Programme
(DPAP) and the Desert Development Programme (DDP) with the purpose of
identifying weaknesses and suggesting improvements. The Committee, after
careful appraisal, opined that the “programmes have been implemented in a
fragmented manner by different departments through rigid guidelines without
any well-designed plans prepared on watershed basis by involving the
inhabitants. Except in a few places, the achievements have been sub-optimal.
Ecological degradation has been proceeding unabated in these areas with
reduced forest cover, reducing water table and a shortage of drinking water, fuel
and fodder” (Hanumantha Rao Committee, 1994, Preface).
2. Against this backdrop, the Committee made a number of
recommendations and formulated a set of guidelines that brought the DDP, the
DPAP and the Integrated Wastelands Development Programme (IWDP) under a
single umbrella. The watershed projects taken up by the Ministry of Rural
Development (MoRD) from 1994 to 2001 followed these guidelines. In 2000, the
Ministry of Agriculture revised its guidelines for its programme, the National
Watershed Development Project for Rainfed Areas (NWDPRA). These guidelines
were intended to be common guidelines to make the programme more
participatory, sustainable and equitable. However, the MoRD revised the 1994
Hanumantha Rao Committee guidelines in 2001 and yet again in 2003 under the

nomenclature “Hariyali Guidelines”.
3. In the meanwhile, emerging issues of ground water recharging and
convergence to create a critical mass of investments demanded innovative
guidelines. At the advent of the Eleventh Plan period, our main challenge is to
move the nation decisively in the direction of "inclusive growth". Rainfed areas
of 85 million hectares out of the 142 million hectares of net cultivated area, have
suffered neglect in the past. High untapped productivity and income potential
exists in these areas.
4. An insight into the rainfed regions reveals a grim picture of poverty, water
scarcity, rapid depletion of ground water table and fragile ecosystems. Land
degradation due to soil erosion by wind and water, low rainwater use efficiency,
high population pressure, acute fodder shortage, poor livestock productivity,
underinvestment in water use efficiency, lack of assured and remunerative
marketing opportunities and poor infrastructure are important concerns of
enabling policies. The challenge in rainfed areas, therefore, is to improve rural
livelihoods through participatory watershed development with focus on
integrated farming systems for enhancing income, productivity and livelihood
security in a sustainable manner.
5. The National Rainfed Area Authority (NRAA) has been set up in November
2006, keeping in mind the need to give a special thrust to these regions. A close
analysis of various types of rainfed situations would reveal that soil and water
conservation, watershed development and efficient water management are the
key to sustainable development of rainfed areas. The watershed approach has

been accepted as a major theme for development of rainfed areas with a view to
conserving natural resources of water, soil and vegetation by mobilizing social
capital. Various studies have pointed out the central preoccupation of watershed
development projects with soil and water conservation and relative neglect of
issues relating to balanced use of natural resources and livelihoods.
6. In order to assess the performance of various ongoing projects /
programmes of watershed development, a series of evaluation studies have
been conducted by ICAR (Indian Council of Agricultural Research) Institutes,
State Agriculture Universities (SAUs), National Remote Sensing Agency (NRSA)
etc. Besides, impact assessment studies were carried out by the Ministry of
Agriculture, Ministry of Rural Development, Planning Commission, ICRISAT
(International Crops Research Institute for the Semi-Arid Tropics) and the
Technical Committee constituted by the Department of Land Resources (DoLR).
These studies support the observation that in several watersheds, the
implementation of the programme has been effective for natural resource
conservation by increasing the productivity of the land, bringing additional area
under agriculture, employment generation and social upliftment of beneficiaries
living in the rural areas. But these successes have been sporadic and
intermittent. The overall impact at the state and national levels has generally
been inadequate. Additional demand and supply driven socio-economic and risk
managing paradigms are emerging.
7. It is in this context that in coordination with the Planning Commission, an
initiative has been taken to formulate “Common Guidelines for Watershed

Development Projects” in order to have a unified perspective by all ministries.
These guidelines are therefore applicable to all watershed development projects
in all Departments / Ministries of Government of India concerned with
Watershed Development Projects.
8. Out of the total geographical area of the country of 329 MH, about 146
MH is degraded and 85 MH is rainfed arable land. This includes degraded land
not only under private ownership, but also the one with the departments of
panchayat, revenue and forest. All these lands are prioritized for development
under various watershed development projects under these guidelines. During
the 11th Five Year Plan, major thrust would be laid on developing the untreated
areas.
9. These Guidelines broadly indicate a fresh framework for the next
generation watershed programmes. The key features of this new unified
approach can be broadly outlined as follows:
I. Delegating Powers to States: States will now be empowered to
sanction and oversee the implementation of watershed projects within
their areas of jurisdiction and within the parameters set out in these
guidelines.
II. Dedicated Institutions: There would be dedicated implementing
agencies with multi-disciplinary professional teams at the national, state
and district level for managing the watershed programmes.
III. Financial Assistance to Dedicated Institutions: Additional financial
assistance would be provided for strengthening of institutions at the

district, state and national level to ensure professionalism in management
of watershed projects.
IV. Duration of the Programme: With the expanded scope and
expectations under this approach, the project duration has been
enhanced in the range of 4 years to 7 years depending upon nature of
activities spread over 3 distinct phases viz., preparatory phase, works
phase and consolidation phase.
V. Livelihood Orientation: Productivity enhancement and livelihoods shall
be given priority along with conservation measures. Resource
development and usage will be planned to promote farming and allied
activities to promote local livelihoods while ensuring resource
conservation and regeneration. The new approach would systematically
integrate livestock and fisheries management as a central intervention
and encourage dairying and marketing of dairy products. In the rainfed
areas, the animal resources become a major source of income for the
people. When effectively integrated with the Watershed Development
Projects, a comprehensive animal husbandry component would contribute
significantly to ensuring a better and sustainable livelihood for the people
of the rainfed areas.
VI. Cluster Approach: The new approach envisages a broader vision of
geo-hydrological units normally of average size of 1,000 to 5,000 hectares
comprising of clusters of micro-watersheds. If resources and area exist
additional watersheds in contiguous areas in clusters may be taken up.

However smaller size projects will be sanctioned in the hilly/difficult
terrain areas.
VII. Scientific Planning: Special efforts need to be made to utilize the
information technology and remote sensing inputs in planning, monitoring
and evaluation of the programme.
VIII. Capacity Building: Capacity Building and training of all functionaries
and stakeholders involved in the watershed programme implementation
would be carried out on war footing with definite action plan and requisite
professionalism and competence.
IX. Multi Tier Approach: There would be a multi tier ridge to valley
sequenced approach, which should be adopted towards the
implementation of the Watershed Development Projects. The higher
reaches or the forests are actually where the water sources originate. The
approach, therefore, will be to identify an area, and first look at the forest
and the hilly regions, in the upper water catchments wherever possible.
When suitable treatment is undertaken, with the support of the Ministry
of Environment and Forest, or from the States' forest programmes or
other sources, then the hardest part of the watershed is tackled. Forest
department is managing structures such as check dams, contour-bunds
etc. to arrest the erosion and degradation of the forests, which in turn,
actually benefit the lower tiers. Thus, in the upper reaches, which are
mostly hilly and forested, the onus of implementation would mainly lie
with the Forest Departments and the Joint Forest Management

Committees (JFMC).
The second tier is the intermediate tier or the slopes, which are just
above the agricultural lands. In the intermediate slopes, the Watershed
Management approach would address all the necessary issues by looking
at all the best possible options including treatment, cropping pattern,
horticulture, agro-forestry etc.
As to the third level of the plains and the flat areas, where typically, the
farmers are operating, there would be a large concentration of labour
intensive works. The watershed development process would be
synergized with the employment generating programmes such as the
National Rural Employment Guarantee Scheme (NREGS), Backward
Regions Grant Fund (BRGF) etc thus providing strong coordination.
10. These guidelines coupled with the flexibilities inherent in them would
provide an enabling framework for the planning, design, management and
implementation of all watershed development projects in the country. As soon as
these Common Guidelines are approved, they will apply to all schemes
concerned with watershed development of all departments of Government of
India.
New watershed projects will be implemented in accordance with these
Common Guidelines with effect from 1st April 2008. Already sanctioned and on
going projects will follow previous guidelines. For interpretation of any of the
provisions of these guidelines, the NRAA will be the final authority. If any
modification in any of the provisions of these Guidelines is contemplated by any

of the Nodal Ministry, then such modification would need to be ratified by the
Executive Committee of the NRAA.
2. Guiding Principles
11. The common guidelines for Watershed development projects are based
on the following principles:
I. Equity and Gender Sensitivity: Watershed Development Projects
should be considered as levers of inclusiveness. Project Implementing
Agencies must facilitate the equity processes such as a) enhanced
livelihood opportunities for the poor through investment in their assets
and improvements in productivity and income, b) improving access of
the poor, especially women to the benefits, c) enhancing role of women
in decision-making processes and their representation in the institutional
arrangements and d) ensuring access to usufruct rights from the
common property resources for the resource poor.
II Decentralization: Project management would improve with
decentralization, delegation and professionalism. Establishing suitable
institutional arrangements within the overall framework of the
Panchayati Raj Institutions, and the operational flexibility in norms to
suit varying local conditions will enhance decentralisation. Empowered
committees with delegation to rationalise the policies, continuity in
administrative support and timely release of funds are the other
instruments for effective decentralization.
III Facilitating Agencies: Social mobilisation, community organisation,

building capacities of communities in planning and implementation,
ensuring equity arrangements etc need intensive facilitation.
Competent organisations including voluntary organizations with
professional teams having necessary skills and expertise would be
selected through a rigorous process and may be provided financial
support to perform the above specific functions.
IV. Centrality of Community Participation: Involvement of primary
stakeholders is at the centre of planning, budgeting, implementation,
and management of watershed projects. Community organizations
may be closely associated with and accountable to Gram Sabhas in
project activities.
V. Capacity Building and Technology Inputs: Considerable stress
would be given on capacity building as a crucial component for
achieving the desired results. This would be a continuous process
enabling functionaries to enhance their knowledge and skills and
develop the correct orientation and perspectives thereby becoming
more effective in performing their roles and responsibilities. With
current trends and advances in information technology and remote
sensing, it is possible to acquire detailed information about the various
field level characteristics of any area or region. Thus, the endeavour
would be to build in strong technology inputs into the new vision of
watershed programmes.

VI. Monitoring, Evaluation and Learning: A participatory, outcome
and impact-oriented and user-focused Monitoring, Evaluation and
Learning system would be put in place to obtain feedback and
undertake improvements in planning, project design and
implementation.
VII. Organizational Restructuring: Establishing appropriate technical
and professional support structures at national, state, district and
project levels and developing effective functional partnerships among
project authorities, implementing agencies and support organizations
would play a vital role.
3. Technology Inputs
12. Technology enables us, inter-alia, to strengthen programme management
and coordination, undertake activity based project planning, formulate action
plans, streamline sanctions and release of funds, create useful data bases,
assess actual impacts of projects, make effective prioritizations, prepare
sophisticated DPRs, document best practices and case studies and facilitate the
free and seamless flow of information and data.
13. Thus, the endeavour would be to build in strong technology inputs into the
new vision of watershed programmes. At the State and National levels, core GIS
facilities, with spatial & non-spatial data, would be established and augmented
with satellite imagery data received from NRSA, ISRO and Survey of India. All
the GIS layers for various themes would be overlaid having a geo-referenced

base layer up to the level of village boundaries in the first instance. This core
GIS data may be given controlled access/distribution over network for local
project planning. Application software for web-enabled integrated watershed
development, spatial & non-spatial data standards and meta-data would also be
worked out. Once such a knowledge base is in place, it would be possible to
define watershed project boundaries with assignment of unique-identification
(unique-id) to each project. It would also be possible to map treatment area
with respect to their respective administrative formations in terms of villages,
blocks and districts.
14. Remote sensing data would be utilized for finalizing contour maps for
assessment of run-off and for identifying structures best suited for location of
projects. This would result in cost and time optimization in project
implementation. Technology would also contribute immensely in assessing the
actual impact of various programs in a given area. Due to availability of latest
remote sensing techniques, it is now possible to assess periodic changes in geo-
hydrological potential, soil and crop cover, run-off etc in the project area.
15. Information connectivity would be extended to all the districts and project
implementation agencies. This Watershed information network would reach right
up to the project areas. Each District and State centre would be equipped with
IT and domain professionals with desired skills. Thus technology inputs would
bring about a paradigm shift in the implementation and management of the area
development programmes.

16. A National Portal will be created which will host the data generated for all
watershed projects in the entire country. Inputs will be compiled from all
concerned Ministries / Departments including Ministry of Rural Development /
Ministry of Environment and Forest / Ministry of Agriculture. The National Portal
will be commissioned and maintained by the NRAA.
4. Institutional arrangements at National, State and District
levels
Following the spirit of the Guiding Principles, appropriate institutional
arrangements would be made at various levels for effective and professional
management of watershed development projects.
4.1. Role of National Rainfed Area Authority
17. National Rainfed Area Authority (NRAA) would, inter-alia, be responsible
for:
a. Supporting the process of preparing strategic plans for watershed based
development projects at the state and district level keeping in view
specific agro-climatic and socio-economic conditions.
b. Assisting in the preparation of state specific technical manuals for the
multi-disciplinary and integrated approach required for implementation of
these projects together with the standards and specifications etc.
c. Supporting State Level Nodal Agencies in identifying resource
organizations and establishing capacity building arrangements.

d. Facilitating action research relevant to watershed development
programme in different agro-climatic regions.
e. Conducting studies, evaluation and impact assessment from time to time
so that the benefits of these are available for improving the quality of
watershed management projects.
f. Facilitating convergence of different schemes and projects of Government
of India which are having similar objectives.
g. Accessing additional funds from other sources including private sector,
foreign funding agency, etc and facilitate its use to fill up critical gaps in
the programme as well as upscale successful experiences through
innovative organizations at field levels.
h. Acting as an effective coordinating mechanism between all bodies/
organizations/ agencies/ departments/ ministries etc who are involved in
watershed programmes.
i. Organizing regional and international conferences, seminars and
workshops, study tours, and information sharing.
j. Providing technical knowledge inputs and expertise.
k. Such other activities as may be decided by the governing body of NRAA /
Government from time to time.
4.2 Institutional arrangements at the Ministry Level
18. Whereas each Ministry is free to set up its own mechanism to oversee
watershed development programmes, it shall also have the option to set up a

Nodal Agency at the central level in the Department for managing and
implementing watershed development projects. These nodal agencies will
comprise of professional multi-disciplinary experts experienced in the fields of
agriculture, water management, institution and capacity building etc.
19. The Nodal Agency at the central level in the Department / Ministry,
among others, will perform the following important functions:
a. Facilitate allocation of the budgetary outlay for the projects among the
States keeping in view the criteria as specified in the Guidelines.
b. Interact with State and District Level Agencies, facilitate and ensure
smooth flow of funds to the District Watershed Development Units as per
the fund flow norms as well as recommendations from the State Level
Nodal Agencies.
c. Actively support capacity building programmes at all levels.
d. Strongly support, augment and initiate Information, Education and
Communication (IEC) activities with modern IT inputs.
e. Ensure close monitoring through on-line systems.
f. Establish suitable systems for field visits, monitoring, social audits and
impact assessment through interaction with state and district level
agencies for effective implementation of the projects at ground level.
g. Prepare a panel of evaluators or evaluation agencies and undertake
evaluation studies, impact assessment studies and such other evaluation
tasks as deemed fit from time to time.

h. Support as well as facilitate participation in national, regional and
international conferences, seminars and workshops, study tours, research
/ field studies and information sharing.
i. Act as an effective coordinating mechanism between all bodies,
organizations, agencies, departments, Ministries etc. which are involved in
watershed programs.
j. Undertake all such activities which are useful for the purposes of ensuring
that watershed programmes become major vehicles for the overall and
all-round development of rainfed areas in the country.
20. The Funding support for the Nodal Agency at the central level will come
primarily from the budget of the respective Department / Ministry after suitable
review of the existing staff and infrastructure already available and actual
requirement. It may also receive support from other Institutes and Agencies
both national and international, corporate entities, and such other organisations
which seek to support programmes on watershed mode.
4.3 National Level Data Centre and National Portal
21. The National Data Centre and National Portal under the overall aegis of
the NRAA would be a national level facility for extending, storing and generating
watershed and land resource information, data and knowledge. The National
Data Centre (NDC) would collate summary data for the entire country, archival
data, data for programme and fund flow management. This centre is planned to
be equipped with various GIS thematic layers for cadastral, watershed, soil, land
use, socio-economic parameters, habitation etc. It shall have application support

for area development programmes, rural employment, land use planning, master
data for integrated layers, and high end GIS data for district level planning and
monitoring.
4.4 State Level Nodal Agency
22. A dedicated State Level Nodal Agency (SLNA) (Department / Mission /
Society/ Authority) will be constituted by the State Government having an
independent bank account. The state should be given the flexibility to utilise or
strengthen an existing state level agency/department/organisation. Central
assistance for SLNA will be transferred directly to the account of SLNA and not
into the State Government budget.
23. The SLNA will sign an MOU with the Departmental Nodal Agency setting
out mutual expectations with regard to performance, timelines and financial
parameters including conditions related to release of funds to SLNA. The SLNA
will be required to review the programme and provide enabling mechanism to
set up State Data Cell and ensure regular reporting to the Central Government/
Nodal Agency at the central level in the Department. There would be multi-
disciplinary professional support team at the State level to implement the
programme.
24. The Development Commissioner / Additional Chief Secretary / Agricultural
Production Commissioner/ Principal Secretary of the concerned department or
their equivalent nominated by the State Government will be the Chairperson of
the SLNA. The State Level Nodal Agency will have a full-time CEO who may be a
serving Government officer on deputation or appointed on a contract of not less

than three years with the State Level Nodal Agency. Such a contract will set out
the terms and conditions of engagement as well as clearly defined goals against
which the performance of the CEO will be closely monitored.
25. The SLNA would consist of one representative from the NRAA, one
representative from the Central Nodal Ministry, one representative from
NABARD, one representative each from the State Department of Rural
Development, Agriculture, Animal Husbandry and allied sector, one
representative from Ground Water Board and one representative from an
eminent voluntary organization and two professional experts from research
institutes / academia of the state. There will be also representation from NREGA,
BRGF and other related implementing agencies at the state level. The SLNA
will sanction watershed projects for the State on the basis of approved
state perspective and strategic plan as per procedure in vogue and
oversee all watershed projects in the state within the parameters set
out in these Guidelines.
26. A Team of 4 to 7 professional experts will assist the State Level Nodal
Agency. This team will be selected by the State Level Nodal Agency either on
deputation from experts available from the line departments or in case such
experts are not available, they may be engaged on contract basis from the open
market by a transparent process. Their disciplines will, inter-alia, include
agriculture, water management, capacity building, social mobilisation,
information technology, administration and finance/ accounts, etc. A requisite
number of administrative staff will support this team of experts.

27. The main functions of the SLNA will be to:
a. Prepare a perspective and strategic plan of watershed development
for the state on the basis of plans prepared at the block and district
level and indicate implementation strategy and expected
outputs/outcomes, financial outlays and approach the Nodal Agency at
the central level in the Department for appraisal and clearance.
b. Establish and maintain a state level data cell from the funds
sanctioned to the States, and connect it online with the National Level
Data Centre.
c. Provide technical support to District Watershed Development Units
(DWDU) throughout the state.
d. Approve a list of independent institutions for capacity building of
various stakeholders within the state and work out the overall capacity
building strategy in consultation with NRAA/Nodal Ministry.
e. Approve Project Implementing Agencies identified/selected by DWDU/
District Level Committee by adopting appropriate objective selection
criteria and transparent systems.
f. Establish monitoring, evaluation and learning systems at various levels
(Internal and external/ independent systems).
g. Ensure regular and quality on-line monitoring of watershed projects in
the state in association with Nodal Agency at the central level and
securing feedback by developing partnerships with independent and
capable agencies.

h. Constitute a panel of Independent Institutional Evaluators for all
watershed projects within the state, get this panel duly approved by
the concerned Nodal Agencies at the central level and ensure that
quality evaluations take place on a regular basis.
i. Prepare State Specific Process Guidelines, Technology Manuals etc in
coordination with the Nodal Ministry/ NRAA and operationalise the
same.
28. The Funding support for the State Level Nodal Agency and the state level
data cell will come primarily from the budget of the Department of Land
Resources, Ministry of Rural Development after suitable review of the existing
staff and infrastructure already available and actual requirement. It may also
receive support from other Institutes and Agencies both national and
international, corporate entities, and such other organisations which seek to
support programmes on watershed mode. Each State Level Nodal Agency and
state level data cell will be provided with an initial capital grant to meet
establishment costs and a recurring grant per annum to meet its annual
expenses. The actual amount would depend upon the level of staff and
infrastructure already available and the actual requirement. Till such time, SLNA
is set up, the existing arrangement regarding sanctioning of project and flow of
fund will be continued. However, all out efforts should be made by the States to
set up SLNAs within a period of 6 months.
4.5 District Watershed Development Unit (DWDU)
29. In districts, where the area under the watershed development projects is

about 25,000 hectare, a separate dedicated unit, called the District Watershed
Development Unit (DWDU) will be established at the district level, which will
oversee the implementation of watershed programme in each district and will
have separate independent accounts for this purpose. Where the area under
Watershed Development Projects is less than approximately 25,000 hectare, the
projects will be implemented in accordance with the existing arrangements.
However, in such cases one officer shall be exclusively appointed within the
DRDA either on contract or on deputation to coordinate watershed projects at
the district level. DWDU will function in close co-ordination with the District
Planning Committee. There will also be a representation in DWDU for NREGA,
BRGF implementing agencies at the district level. Alternatively, the mechanism
of approval and implementation of project by the District Level Committee /
collector may continue to prevail.
30. DWDU will be a separate unit with full time Project Manager and 3 to 4
subject matter specialists on Agriculture/ Water Management / Social
Mobilisation/ Management & Accounts appointed on the basis of their
qualification and expertise on contract/deputation/transfer etc. The Project
Manager, DWDU would be a serving government officer on deputation or would
be recruited from open market by means of a transparent process. If he/she is a
serving Government officer, his/her posting will be done by the State
Government. If open market recruitment is necessary, this will be done by the
SLNA. The Project Manager, DWDU will sign a contract (for a period not less
than three years) with SLNA that will spell out well-defined annual goals, against

which his/her performance will be consistently monitored. The arrangements for
setting up/ strengthening the DWDUs/District Data Cell will be financially
supported by the Government of India after review of available staff,
infrastructure and the actual requirement.
31. The functions of DWDU will be as follows:
a. Identify potential Project Implementing Agencies (PIAs) in
consultation with SLNA as per the empanelment process as decided by
the respective state governments.
b. Take up the over all responsibility of facilitating the preparation of
strategic and annual action plans for watershed development projects
in respective districts.
c. Providing professional technical support to Project Implementing
Agencies (PIAs) in planning and execution of watershed development
projects.
d. Develop action plans for capacity building, with close involvement of
resource organizations to execute the capacity building action plans.
e. Carry out regular monitoring, evaluation and learning.
f. Ensure smooth flow of funds to watershed development projects.
g. Ensure timely submission of required documents to SLNA / Nodal
Agency of the Department at central level.
h. Facilitate co-ordination with relevant programmes of agriculture,
horticulture, rural development, animal husbandry, etc with watershed
development projects for enhancement of productivity and livelihoods.
i. Integrate watershed development projects/ plans into District Plans of
the district planning committees. All expenditure of watershed projects
would be reflected in district plans.

j. Establish and maintain the District Level Data Cell and link it to the
State Level and National Level Data Centre.
4.6 Role of Panchayati Raj Institutions at district and intermediate
levels
32. The full responsibility of overseeing the watershed programme within the
district will lie with the DWDU which will work in close collaboration with the
District Planning Committee (DPC). The DPC will provide full governance support
to the programme. The DPC will approve the perspective and annual action
plans relating to watersheds projects in the district. DPC will integrate the
watershed development plans with over all district plans and also oversee its
implementation. DWDU will help the DPC in providing oversight and ensuring
regular monitoring and evaluation of the programme. The District Panchayat /
Zilla Parishad will have an important role of governance in matters relating to
the co-ordination of various sectoral schemes with watershed development
projects, review of progress, settling disputes etc. Where the Panchayat system
is not in operation, this role will be played by the DWDU/District Autonomous
Councils.
33. Similarly, Intermediate Panchayats have an important role in planning the
watershed development projects at the intermediate level. They can also provide
valuable support to PIAs and Gram Panchayats/ Watershed Committees in
technical guidance with the help of their subject matter specialists.

5. Institutional Arrangements at Project Level
5.1 Project Implementing Agency (PIA)
34. The SLNA would evolve appropriate mechanisms for selecting and
approving the PIAs, who would be responsible for implementation of watershed
projects in different districts. These PIAs may include relevant line departments,
autonomous organizations under State/ Central Governments, Government
Institutes/ Research bodies, Intermediate Panchayats, Voluntary Organizations
(VOs). However, the following criteria may be observed in the selection of these
PIAs:
They should preferably have prior experience in watershed related aspects or
management of watershed development projects.
They should be prepared to constitute dedicated Watershed Development
Teams.
35. Voluntary Organizations (VOs) will have an important role in the
programme and their services will be utilized substantively in the areas of
awareness generation, capacity building, IEC and social audit among others. As
far as direct implementation of the programme is concerned, Voluntary
Organizations (VOs) with established credentials may be chosen as PIAs on the
basis of detailed criteria as enumerated below.
35.1 The Voluntary Organizations (VOs) would need to satisfy the following
criteria to be selected as PIA:
a. Should be a registered legal entity of at least 5 years standing.
b. Should have had at least 3 years of field experience in the area of

community based Natural Resource Management and livelihood
development.
c. Should not have been blacklisted by CAPART or any other Department of
Government of India or State Government.
d. Should be equipped with a dedicated, multidisciplinary team with gender
balance.
e. Should furnish three years balance sheet, audited statement of accounts
and income returns. All accounts of the organization should be up to date.
f. Should furnish the profile of its Board of Directors.
g. Should have successfully implemented projects independently.
35.2 It will be subjected to the following conditions:
(i) At any point of time, one VO cannot be assigned more than 10,000 ha
area in a district.
(ii) At any point of time, one VO cannot be assigned more than 30,000 ha
area in a State.
(iii) In any case, not more than 1/4th of the total Projects at a time in a State
to be implemented by VOs.
36. Selected PIAs will sign a contract/MOU with the concerned DWDUs/ District
Level Committee as referred in para 29 that will spell out well-defined annual
outcomes, against which the performance of each PIA will be monitored each
year and evaluated on a regular basis by institutional evaluators from a panel
approved by the SLNA / Departmental Nodal Agency at the central level.
37. Each PIA must put in position a dedicated watershed development team
(WDT) with the approval of DWDU. The WDT will be hired on contract /

deputation / transfer etc for a term not exceeding the project period. The
composition of the WDT will be indicated in the contract/ MOU. No programme
funds for DPR and watershed works under any circumstances should be released
to either the PIA or Watershed Committee (WC) unless the composition of the
WDT has been clearly indicated in the MOU/ contract and the team members are
fully in place.
5.2 Roles and Responsibilities of the PIA
38. The Project Implementing Agency (PIA) will provide necessary technical
guidance to the Gram Panchayat for preparation of development plans for the
watershed through Participatory Rural Appraisal (PRA) exercise, undertake
community organization and training for the village communities, supervise
watershed development activities, inspect and authenticate project accounts,
encourage adoption of low cost technologies and build upon indigenous
technical knowledge, monitor and review the overall project implementation and
set up institutional arrangements for post-project operation and maintenance
and further development of the assets created during the project period.
39. The PIA, after careful scrutiny, shall submit the Action Plan for Watershed
Development Project for approval of the DWDU/DRDA and other arrangements.
The PIA shall submit the periodical progress report to DWDU. The PIA shall also
arrange physical, financial and social audit of the work undertaken. It will
facilitate the mobilization of additional financial resources from other
government programmes, such as NREGA, BRGF, SGRY, National Horticulture
Mission, Tribal Welfare Schemes, Artificial Ground Water Recharging, Greening
India, etc.

5.3 Watershed Development Team
40. The WDT is an integral part of the PIA and will be set up by the PIA. Each
WDT should have at least four members, broadly with knowledge and
experience in agriculture, soil science, water management, social mobilisation
and institutional building. At least one of the WDT members should be a
woman. The WDT members should preferably have a professional degree.
However, the qualification can be relaxed by the DWDU with the approval of
SLNA in deserving cases keeping in view the practical field experience of the
candidate. The WDT should be located as close as possible to the watershed
project. At the same time, it must be ensured that the WDT should function in
close collaboration with the team of experts at the district and state level. The
expenses towards the salaries of the WDT members shall be charged from the
administrative support to the PIA. DWDU will facilitate the training of the WDT
members.
5.4 Roles and Responsibilities of WDT
41. The WDT will guide the Watershed Committee (WC) in the formulation of
the watershed action plan. An indicative list of the roles and responsibilities of
the WDT would include among others, the following.
a. Assist Gram Panchayat / Gram Sabha in constitution of the Watershed
Committee and their functioning.
b. Organizing and nurturing User Groups and Self-Help Groups.
c. Mobilising women to ensure that the perspectives and interests of
women are adequately reflected in the watershed action plan.

d. Conducting the participatory base-line surveys, training and capacity
building.
e. Preparing detailed resource development plans including water and soil
conservation or reclamation etc. to promote sustainable livelihoods at
household level.
f. Common property resource management and equitable sharing.
g. Preparing Detailed Project Report (DPR) for the consideration of Gram
Sabha.
h. Undertake engineering surveys, prepare engineering drawings and cost
estimates for any structures to be built.
i. Monitoring, checking, assessing, undertaking physical verification and
measurements of the work done.
j. Facilitating the development of livelihood opportunities for the landless.
k. Maintaining project accounts.
l. Arranging physical, financial and social audit of the work undertaken.
m. Setting up suitable arrangements for post-project operation,
maintenance and future development of the assets created during the
project period.

6. Institutional Arrangements at the Village Level and
People’s Participation
6.1 Self Help Groups
42. The Watershed Committee shall constitute SHGs in the watershed area with
the help of WDT from amongst poor, small and marginal farmer households,
landless/asset less poor agricultural labourers, women, shepherds and SC/ST
persons. These Groups shall be homogenous groups having common identity
and interest who are dependent on the watershed area for their livelihood. Each
Self Help Group will be provided with a revolving fund of an amount to be
decided by the Nodal Ministry.
6.2 User Groups
43. The Watershed Committee (WC) shall also constitute User Groups in the
watershed area with the help of WDT. These shall be homogenous groups of
persons most affected by each work/ activity and shall include those having land
holdings within the watershed areas. Each User Group shall consist of those who
are likely to derive direct benefits from a particular watershed work or activity.
The Watershed Committee (WC) with the help of the WDT shall facilitate
resource-use agreements among the User Groups based on the principles of
equity and sustainability. These agreements must be worked out before the
concerned work is undertaken. It must be regarded as a pre-condition for that
activity. The User Groups will be responsible for the operation and maintenance
of all the assets created under the project in close collaboration with the Gram
Panchayat and the Gram Sabha.

6.3 Watershed Committee (WC)
44. The Gram Sabha will constitute the Watershed Committee (WC) to
implement the Watershed project with the technical support of the WDT in the
village. The Watershed Committee (WC) has to be registered under the Society
Registration Act, 1860. The Gram Sabha may elect/appoint any suitable person
from the village as the Chairman of Watershed Committee. The secretary of the
Watershed Committee (WC) will be a paid functionary of the Watershed
Committee (WC). The Watershed Committee (WC) will comprise of at least 10
members, half of the members shall be representatives of SHGs and User
Groups, SC/ST community, women and landless persons in the village. One
member of the WDT shall also be represented in the Watershed Committee
(WC). Where the Panchayat covers more than one village, they would constitute
a separate subcommittee for each village to manage the watershed development
project in the concerned village. Where a watershed project covers more than
one Gram Panchayat, separate committees will be constituted for each Gram
Panchayat. The Watershed Committee (WC) would be provided with an
independent rented office accommodation.
45. The Watershed Committee will open a separate bank account to receive
funds for watershed projects and will utilise the same for undertaking its
activities. The expenses towards the salaries of the WDT members and
Secretary of Watershed Committee (WC) shall be charged from the
administrative expenses under the professional support to the PIA.

6.4 Secretary, Watershed Committee
46. The Secretary of the Watershed Committee (WC) will be selected in a
meeting of the Gram Sabha. This person would be an independent paid
functionary distinct and separate from the Panchayat Secretary. He would be a
dedicated functionary with no responsibilities other than the assistance to the
Watershed Committee (WC) and would work under the direct supervision of the
President of Watershed Committee (WC) and would be selected on the basis of
merit and experience. The expenses towards the honorarium to be paid to
Secretary of Watershed Committee (WC) will be charged from the administrative
support to the PIA. The Secretary will be responsible for the following tasks:
a. Convening meetings of the Gram Sabha, Gram Panchyat, Watershed
Committee for facilitating the decision making processes in the context
of Watershed Development Project.
b. Taking follow up action on all decisions.
c. Maintaining all the records of project activities and proceedings of the
meetings of Gram Panchayat, Watershed Committee (WC) and other
institutions for Watershed Development Project.
d. Ensuring payments and other financial transactions.
e. Signing the cheques jointly with the WDT nominee on behalf of the
Watershed Committee.
6.5 Role of Gram Panchayat
47. The Gram Panchayat would perform the following important functions:

a. Supervise, support and advise Watershed Committee from time to
time.
b. Authenticate the accounts/ expenditure statements of Watershed
Committee and other institutions of watershed project.
c. Facilitate the convergence of various projects/ schemes to institutions
of watershed development project.
d. Maintain asset registers under watershed development projects with a
view to retain it after the watershed development project.
e. Provide office accommodation and other requirements to Watershed
Committee.
i. Allocate usufruct rights to deserving user groups/ SHGs over the
assets created.
7. Criteria for selection of watershed projects
48. The following criteria may broadly be used in selection and prioritisation
of watershed development projects:
a. Acuteness of drinking water scarcity.
b. Extent of over exploitation of ground water resources.
c. Preponderance of wastelands/degraded lands.
d. Contiguity to another watershed that has already been developed/
treated.
e. Willingness of village community to make voluntary contributions, enforce
equitable social regulations for sharing of common property resources,

make equitable distribution of benefits, create arrangements for the
operation and maintenance of the assets created.
f. Proportion of scheduled castes/scheduled tribes.
g. Area of the project should not be covered under assured irrigation.
h. Productivity potential of the land.
8. Project Management
49. The major activities of the Watershed Development Projects will be
sequenced into (I) Preparatory, (ii) Works and (iii) Consolidation and withdrawal
Phase. In view of the expanded scope and expectations under the watershed
development programme, the project duration could be in the range of four to
seven years depending upon the activities and Ministries/Departments. The DPR
should mention the detailed justification for the proposed project duration. The
project duration may be spread over 3 different phases as decided by the Nodal
Ministry and as given below:
Phase Name Duration
I Preparatory Phase 1-2 years
II Watershed Works Phase 2-3 years
III Consolidation and Withdrawal Phase 1-2 years
8.1 Preparatory Phase
50. The major objective of this phase is to build appropriate mechanisms for
adoption of participatory approach and empowerment of local institutions (WC,

SHG, and UG). WDT will assume a facilitating role during this phase. In this
phase, the main activities will include:
a. Taking up entry point activities to establish credibility of the Watershed
Development Team (WDT) and create a rapport with the village
community. The entry point activities, inter-alia, will include:
i. Works based on urgent needs of the local communities such as
revival of common natural resources, drinking water, development
of local energy potential, augmenting ground water potential etc.
ii. Repair, restoration and upgradation of existing common property
assets and structures (such as village tanks) may be undertaken to
obtain optimum and sustained benefits from previous public
investments and traditional water harvesting structures.
iii. Productivity enhancement of existing farming systems could also
be an activity that helps in community mobilization and building
rapport.
b. Initiating the development of Village level institutions such as Watershed
Committees (WCs), Self- Help Groups (SHGs) and User Groups (UGs) and
Capacity Building of different stakeholders on institutional and work
related aspects.
c. Environment building, awareness generation, undertaking of intensive IEC
activities, creating involvement and participatory responses.
d. Baseline surveys needed for preparation of Detailed Project Report (DPR),
selection of sites and beneficiaries. Every effort must be made to collect

gender-disaggregated data to adequately reflect the situation and
priorities of women.
e. Hydro-geological survey of the watershed to map out zones of potential
groundwater recharge, storage and sustainable groundwater utilisation.
f. Building up a network of technical support agencies.
g. Preparation of the DPR, including activities to be carried out, selection of
beneficiaries and work-sites and design and costing of all works, ensuring
that the interests, perceptions and priorities of women, dalits, adivasis
and the landless are adequately reflected in the DPR.
h. Working out detailed resource-use agreements (for surface water,
groundwater and common/forest land usufructs) among User Group
members in a participatory manner based on principles of equity and
sustainability.
i. Participatory monitoring of progress and processes.
51. Preparation of DPR: DPR preparation is a crucial activity at the district
level, which is to be facilitated by the WDT for an identified project area. The
technical inputs in the form of resource maps and cadastral maps have to be
made available at local level. It is necessary to capture the entire database of
DPR in a systematic manner as a structured document at the initial stage itself.
52. DPR preparation requires a strong PRA exercise and comprehensive
beneficiary level database separately for private land and community land
development with linkages to the cadastral database. This will facilitate spatial
depiction of the action plan. The DPR should include, among other things, the

following:
a. Basic Information on Watershed including rainfall, temperature, location
including geographical coordinates, topography, hydrology,
hydrogeology, soils, forests, demographic features, ethnographic details
of communities, land-use pattern, major crops & their productivity,
irrigation, livestock, socio-economic status etc.
b. Details of expected/proposed User Groups & Self Help Groups, master
tables for private land / common land activities, contribution to watershed
development funds, information on soil and land-use, existing assets
related to water harvesting, recharging and storage etc. needs to be
provided plot-wise.
c. Problems Typology of the Watershed including an account of the major
problems requiring intervention from the perspective of enhancing
livelihood potential/carrying capacity as well as conservation and
regeneration of resources.
d. Description of Proposed Interventions (physical and financial, including
time-table of interventions) along with technical details and drawings
certified by the WDT.
e. Detailed Mapping exercises.
f. Institutional mechanisms and agreements for implementing the plan,
ensuring emphasis on participatory decision-making, equity and
sustainability of benefits, and post-project sustainability.
g. Expected Outcomes and Benefits, especially with respect to livelihoods for

different segments, benefits to women and regeneration/conservation of
resources, etc.
53. The DPR will be prepared by the WDT for integrated development of the
watershed area with active participation of the Watershed Committee (WC).
The WDT should utilize various thematic maps relating to land and water
resources in the preparation and finalization of the DPR. This DPR shall
necessarily include the clear demarcation of the watershed with specific details
of survey numbers, ownership details and a map depicting the location of
proposed work/activities for each year.
54. The DPR for the watershed shall be in tune with the District Perspective
Plan. The permissible works relating to soil and moisture conservation under
NREGS, BRGF, and Artificial Ground Water Recharge must complement the micro
watershed plan. District agricultural plans may also be consulted while
formulating the District Perspective Plans.
55. This DPR will be a part of the MIS from which details will be arranged into
various layers on GIS as a monitoring, management, accounting and analytical
tool besides serving as a source of information and a link to the state level data
cell in the SLNA and National Data Centre in the NRAA. The DPR may be
summed up using a standard planning tool such as Logical Framework Analysis
(LFA) that includes goals, purpose, outputs, activities, inputs, challenges and
measurable indicators of progress.
56. The overall responsibility for the preparation of a technically sound and
high quality DPR would lie with the Project Implementing Agency (PIA). After

approval by the Gram Sabha, the PIA shall submit the DPR for approval to the
DWDU/DRDA/DP. Alternatively, the mechanism of approval and implementation
of projects by district level committee / collector may continue to prevail.
57. Each watershed has unique characteristics and problems. Its treatment
and management would therefore require careful consideration of various site
specific factors like topography, nature and depth of soil cover, type of rocks,
water absorbing capacity of land, rainfall intensity, land use etc. All works must
be planned in a location-specific manner, taking into account the above factors
along with local demands and socio-economic conditions of the watershed.
58. The ridge-to-valley principle with multi tier sequenced approach has been
indicated in detail at Preface on Para 9(IX).
8.2 Watershed Works Phase
59. This phase is the heart of the programme in which the DPR will be
implemented. Some of the important activities to be included in this phase are:
a. Ridge Area Treatment: All activities required to restore the health of the
catchment area by reducing the volume and velocity of surface run-off,
including regeneration of vegetative cover in forest and common land,
afforestation, staggered trenching, contour and graded bunding, bench
terracing etc.
b. Drainage line treatment with a combination of vegetative and engineering
structures, such as earthen checks, brushwood checks, gully plugs, loose
boulder checks, gabion structures, underground dykes etc.
c. Development of water harvesting structures such as low-cost farm ponds,

nalla bunds, check-dams, percolation tanks and ground water recharge
through wells, bore wells and other measures.
d. Nursery raising for fodder, fuel, timber and horticultural species. As far as
possible local species may be given priority.
e. Land Development including in-situ soil and moisture conservation and
drainage management measures like field bunds, contour and graded
bunds fortified with plantation, bench terracing in hilly terrain etc.
f. Crop demonstrations for popularizing new crops/varieties, water saving
technologies such as drip irrigation or innovative management practices. As
far as possible varieties based on the local germplasm may be promoted.
g. Pasture development, sericulture, bee keeping, back yard poultry, small
ruminant, other livestocks and other micro-enterprises.
h. Veterinary services for livestock and other livestock improvement measures
i. Fisheries development in village ponds/tanks, farm ponds etc.
j. Promotion and propagation of non-conventional energy saving devices,
energy conservation measures, bio fuel plantations etc.
8.3 Consolidation and Withdrawal Phase
60. In this phase the resources augmented and economic plans developed in
Phase II are made the foundation to create new nature-based, sustainable
livelihoods and raise productivity levels. The main objectives under this phase
are:
a. Consolidation and completion of various works.
b. Building the capacity of the community based organizations to carry out

the new agenda items during post project period.
c. Sustainable management of (developed) natural resources and
d. Up-scaling of successful experiences regarding farm production systems /
off-farm livelihoods.
61. An indicative list of various activities during this phase is given below:
61.1 Consolidation of various works
a. Preparation of project completion report with details about status of each
intervention;
b. Documentation of successful experiences as well as lessons learnt for future
use.
61.2 Management of developed natural resources
a. Improving the sustainability of various interventions under the project;
b. Formal allocation of users right over common property resources (CPRs);
c. Collection of user charges for CPRs;
d. Repair, maintenance and protection of CPRs;
e. Sustainable utilization of developed natural resources;
f. Involvement of gram panchayat/corresponding institutions (as a governance
body) in addressing the above aspects.
61.3 Intensification of farm production systems/off-farm livelihoods
a. Up scaling of successful experiences related to above aspects through
revolving fund under the project as well as credit and technical support from
external institutions;
b. Promotion of agro-processing, marketing arrangements of produce and

similar off – farm and informal sector enterprises.
c. Farmers may also be encouraged to develop non pesticidal management, low
cost organic inputs, seed farms and links with wider markets to fetch
competitive price.
61.4 Project management related aspects
a. Participatory planning, implementation and monitoring of activities to be
carried out during consolidation phase;
b. Terminal evaluation of project as per the expected outcomes.
62. Federations could be formed at the level of a cluster of villages in order to
support economic activities at scale. These would further strengthen and
activate the linkages established with external resource agencies for knowledge,
credit, input procurement, sale of local produce, carrying on processing activities
to the point of exports. In these activities, bankability of activities will be
attempted. At the same time, local-level institutions are expected to reach
maturity and exit protocols become operative for the PIA. The Watershed
Committees (WCs) may use the Watershed Development Fund for repair and
maintenance of structures created in Phase II.
63. The classification of activities in the three phases must not be understood
in a rigid manner. Many of the Phase III activities may even start in many
watersheds during Phase I and/or II itself. Phasing of activities needs to have an
internal logic and integrity that must flow through the entire action plan. This
will depend on a host of factors such as the prevailing initial conditions, needs
and possibilities in each village, response of the community etc. Such flexibility
must be built into the action plan and is to be seen as a distinguishing feature of
these guidelines.

9. Allocation of funds, approval of projects and release of
funds
9.1 Allocation of Funds to States
64. The Nodal Ministry / Department would allocate the budgetary outlay for
the projects among the States keeping in view the following criteria and past
performance of the state (physical and financial) viz. unspent balance,
outstanding utilisation certificates, percentages of completed projects out of
total projects etc except in those schemes where States have flexibility to
allocate funds between watershed and other schemes.
a. State level perspective and strategic plans in watershed based
development projects.
b. Percentage of rainfed area in the state to total cultivated area in the
country.
c. Percentage of wastelands/ degraded lands in the state to the total
geographical area of the country.
9.2 Allocation of Funds to Districts
65. The State level nodal agencies will distribute funds to the districts keeping
in view the following criteria:-
a. District level perspective and strategic plans in watershed based
development projects.
b. Percentage of rainfed area in the district to the total cultivated area of the
state.
c. Percentage of wastelands/ degraded lands/ panchayat lands in the district
to the total geographical area of the state.
9.3 Approval & sanction of Watershed Development Projects
66. By the end of February each year, the States will submit detailed Annual
Action Plans indicating ongoing liabilities as well as new projects which they wish
to take up. The Department Nodal Agency at the central level will thereafter,

based on total available budget for the year and the criteria as given in Para-64
and 65, allocate specific amounts for individual states from whom proposals
have been received. After States have received their allocation against ongoing
and new projects, they will be free to sanction their projects within the State
allocation. On receipt of the sanction orders for the new projects from SLNA; the
Nodal Ministry would release funds directly to the district level agency. The
existing release procedure of Departmental Nodal Agencies may however
continue if release of funds to the district level agency is not feasible.
67. The distribution of budget for specific watershed projects for the various
components therein is given below:
Budget component % of the Budget

- Administrative costs 10
- Monitoring 1
- Evaluation 1
Preparatory phase, including:
- entry point activities, 4
- institution and capacity building, 5
- Detailed Project Report (DPR). 1
Watershed Works Phase:
- Watershed development works, 50
- Livelihood activities for the asset less persons, 10
- Production system and micro enterprises. 13
Consolidation phase 5
Total 100
68. The expenditure under the various components of the project budget will
be subject to following conditions:
i. The payments of salaries to the WDTs/ Secretary of the Watershed
Committees etc. would be exclusively charged from the
administrative cost component.

ii. Savings, if any, in each component of the project cost can be utilised
for activity in watershed works only.
iii. Purchase of vehicles and other equipments etc., and construction of
buildings are not allowed. However, purchase of Computers and
related software is permitted.
iv. PIAs belonging to Line Departments may preferably outsource to
VOs/CBOs community mobilization and capacity building activities.
69. Existing unit cost for watershed development is Rs. 6000 per hectare
which was worked out during April 2001. However, during 11th Plan it is being
suitably revised in order to take care of the following three aspects: (a)
promotion of livelihoods including improvement of productivity through farming
systems, (b) complete coverage of area under the watershed including common/
forest land and (c) general escalation in cost of material as well as minimum
wages of labourers.
9.4 Procedure for release of installments
70. The central share of funds shall be released to the DWDUs / agency for
the three phases of the implementation spread over the project period in the
following manner or as decided by the Nodal Ministry.
a. The first instalment comprising of preparatory phase activities viz., 20%
of the central share will be released straightaway upon the sanction of
the project by the SLNA.
b. The second instalment comprising of 50% of the central share towards
the project cost will be released on proper certification and submission of

documents after completion of the preparatory phase and 60%
expenditure of the first instalment.
c. The third instalment of 30% i.e. 25% of the central share towards the
works phase of the project cost and 5% for the consolidation phase will
be released on proper certification of expenditure of 75% of the total
funds released supported by relevant documents.
However, the existing arrangements for flow of funds by the concerned
Ministries may continue if the above mechanism is not feasible.
71. The release of funds to district implementing agencies / State
Government will be done directly on the basis of specific annual proposals
received from each district keeping in view their ongoing commitments and the
new projects sanctioned and the overall budgetary provision for the district and
upon approval of their action plans by the SLNA. DWDUs / Agencies shall release
the funds to the PIAs and the watershed committees within 15 days of the
receipt of the fund.
9.5 User Charges
72. The Gram Sabha through the Watershed Committee (WC) shall put in
place mechanism for collecting user charges. No charge will be taken from
landless, destitute or disabled / widow headed house holds for work done on
private or public land. The user charges collected shall be credited to the WDF
for maintenance of assets created during the project.

9.6 Watershed Development Fund
73. One of the mandatory conditions for selection of villages for watershed
projects is people’s contribution towards the Watershed Development Fund
(WDF). The contributions to WDF shall be a minimum 10% of the cost of NRM
works executed on private lands only. However, in case of SC/ST, small and
marginal farmers, the minimum contribution shall be 5% of the cost of NRM
works executed on their lands. However, for other cost intensive farming system
activities such as Aquaculture, Horticulture, Agro-forestry, Animal Husbandry etc
on private land directly benefiting the individual farmers, the contribution of
farmers will be 40% for General category and 20% for SC & ST beneficiaries and
the remaining cost of the activities i.e. 60% for the General and 80% for SC/ST
category will come from the project funds subject to a maximum limit of an
amount equal to double of the standard unit cost norm for Watershed
Development Project.
74. These contributions would be acceptable either in cash at the time of
execution of works or voluntary labour. A sum equivalent to the monetary value
of the voluntary labour would be transferred from the watershed project account
to the WDF bank account that will be distinct from the Watershed Committee
(WC) bank account. User charges, sales proceeds and disposal amounts of
intermediate usufruct rights shall also be deposited in the WDF bank account.
Income earned from assets created under the project on common property
resources shall also be credited to WDF.
75. The Secretary, Watershed Committee (WC) shall maintain a completely

separate account of the income and expenditure of the WDF. Rules for operation
of the fund should be prepared by the Watershed Committee (WC) and ratified
by the Gram Sabha. The WDF bank account should be operated by the President
of the Gram Panchayat and any member from the SHG nominated by the Gram
Sabha. Alternatively, the guidelines for the management and utilization of the
WDF may be evolved by the concerned Nodal Ministry.
76. After completion of Phase II, at least 50% of the WDF funds shall be
reserved for maintenance of assets created on community land or for common
use under the project. Works taken up on private land shall not be eligible for
repair/maintenance out of this Fund. The remaining money may be used as a
revolving fund to advance loans to the villagers of the project area who have
contributed to the fund. Individuals as well as charitable institutions should be
encouraged to contribute generously to this Fund.
9.7 Coordination with other schemes / projects
77. Eleventh Five Year Plan offers an opportunity to converge and harmonise
resources of different schemes and Programmes specially those under Bharat
Nirman and other flagship schemes with watershed development projects.
Mandatory preparation of district level plans will be in a position to enable
convergence and synergies at the grass-root level. The DPR may elaborate gaps
to be filled or watershed activities to be taken up out of BRGF, NREGS, artificial
ground water recharging, renovation and repairs of tanks, water bodies and any
other available sources. Marketing and value addition is also possible under the
revised APMC Act. Efforts should be made to converge all relevant schemes at

project level.
9.8 Foreclosure of projects
78. Despite the best intentions on the part of the authorities and participating
communities, despite the careful preparation of the detailed project report, and
even despite careful monitoring, there would still be instances of projects which
may still get stalled or from a particular point onwards, make no progress
whatsoever. In such extreme cases where pursuing the project further would
only be a waste of time, energy and resources, the extreme step of foreclosure
may be resorted to. The project work should start within three months of the
receipt of first instalment by DWDU / agency. This is to be judged from
expenditure statement, failing which project will be withdrawn and released
instalment will be adjusted in release of other projects to the State.
79. Steps can also be initiated for suo-moto foreclosure by the State / Central
Government under the following circumstances:
a. Consistent apathy on the part of State and District Level Authorities
towards the project.
b. Non-submission of DPR / approved work plan for two years after the
expiry of preparatory phase without any valid justification.
c. If any matter relating to project is subjudice in any court of law and no
order for staying the project activity has been passed by the court.
d. Any other reason which justifies foreclosure as decided by
District/State/Centre from time to time.

10. Capacity Building Strategy
80. Capacity building support is a crucial component to achieve the desired
results from watershed development projects. These Guidelines broadly define
the contours of the capacity building strategy for watershed development
projects in the country. NRAA would facilitate the evolution of operational
strategies for capacity building in each state in consultation with SLNA and other
resource organizations. The capacity building strategy and activities enumerated
below by NRAA, Nodal Agencies at the central level, consortiums of resource
organizations should be funded separately over and above the earmarked
budget for institution and capacity building in the preparatory phase of the
watershed development project.
10.1. Key Elements of Capacity Building Strategy
81. NRAA will collaborate with various resource organizations for developing
national level as well as state specific capacity building strategies. Key
Components of Capacity Building Strategy are the following:
- Dedicated and decentralised institutional support and delivery
mechanism
- Annual Action Plan for Capacity Building
- Pool of resource persons
- Well prepared training modules and reading materials
- Mechanism for effective monitoring and follow-up.

10.2 Resource Organizations and Developing Partnerships
82. National Institute of Rural Development (NIRD), National Institute of
Agricultural Extension Management (MANAGE), Central Arid Zone Research
Institute (CAZRI), Central Soil and Water Conservation Research and Training
Institute (CSWCRTI) and its regional centres, Central Research Institute for Dry
land Areas (CRIDA), Water Technology Centres (WTCs), Indian Institute of
Remote Sensing, Dehradun, Institute of Rural Management, Anand (IRMA),
Indian Institute of Forest Management (IIFM), National Remote Sensing Agency
(NRSA), Indian Space Research Organization (ISRO), Soil and Land Use Survey
of India (SLUSI) are some of the well known national level institutions that could
impart capacity building inputs to senior government officers at national/ state/
district levels.
83. There are also several reputed voluntary organizations/ resource
organizations with considerable expertise and experiences related to watershed
development projects such as AKRS (P) (Gujarat), MYRADA (Karnataka), WOTR
(Maharashtra), Dhan Foundation (Tamilnadu), Samaj Pragati Sahyog (MP),
Development Support Center (Guajarat), AFARM (Maharashtra), WASSAN
(Andhra Pradesh), ARAVALI (Rajasthan), PRADAN (Jharkhand), CYSD (Orissa),
Seva Mandir (Rajasthan) and so on, in different parts of the country. Some of
them are already functioning as resource organizations for watershed
development projects in collaboration with state governments.
84. NRAA would help the State Governments in preparing the comprehensive

list of all such resource organizations across the country and profile their
expertise and capacities. As part of this process, NRAA and SLNA identify
National/ State/ District level resource organizations. Based on this analysis,
NRAA facilitates formal partnerships between the Ministries/Departments/ SLNA/
DWDU and resource organizations from government/ voluntary/ ICAR
backgrounds. These resource organizations could operate at national/ state/
district/ sub district level, depending on the need and capacity building strategy
of each state. SLNA develops clear Terms of References (ToRs) with resource
organizations. Depending on the need, NRAA / SLNA could also form
Consortium of Resource Organizations to provide necessary capacity building
support to the watershed development projects at various levels.
11. Monitoring, Evaluation and Learning
11.1 Monitoring
85. Regular monitoring of the project will have to be carried out at each
stage. Online monitoring must become a feature of all projects. Monitoring
should include process and outcome monitoring. The PIA shall submit quarterly
progress reports (countersigned by the Watershed Committee (WC) President)
to the DWDU for further submission to the SLNA. The DWDU will have one
member exclusively responsible for monitoring.
86. Different streams of monitoring are proposed. The role of the SLNA is
critical in ensuring that the following systems are followed at the appropriate
levels:

- Internal Monitoring by project teams (PIA/DWDU)
- Progress Monitoring
- GIS/ Web Based On-Line Monitoring
- Self Monitoring by communities
- Sustainability Monitoring
- Social Audits
- Independent and External Monitoring by independent agencies
- Process Monitoring
11.2 Evaluation
87. There will be a national panel of Evaluating Agencies in each Ministry. A
minimum percentage of evaluations and impact studies will be carried out by
national level agencies that will ensure objectivity as well as infuse a national
perspective.
88. There will also be an SLNA panel of evaluators, approved by the
Departmental Nodal Agency at central level. The panel will include only
institutions and agencies – not individuals. The SLNA will enter into a formal
contract with these agencies. The DWDU may choose any agency from the SLNA
approved panel, the only condition being that the agency should not belong to
the area being evaluated.
89. Each evaluation will include physical, financial and social audit of the work
done. Evaluators are to be seen not so much as inspectors but as facilitators.
However, they will be very strict in ensuring that these guidelines are being
followed. Fund release will depend on a favourable report from the evaluators.
90. The concurrent and Post-Project evaluation would be conducted to assess
the status of watershed related interventions. A separate set of guidelines on

evaluation will be issued in due course by the respective Ministries.
11.3 Learning
91. Systematic efforts are to be made by the WDT/WC to learn from the field
experiences as also from feedback of independent sources. The following
methods are proposed to enable the learning process at different levels.
a. Systematic analysis of monitoring data (all types of monitoring) on a
regular basis by internal team and sharing with project authorities/ policy
makers.
b. Engaging services of independent academic and voluntary organizations
by the DWDU, for taking up research and action research projects.
c. Initiating pilots on new themes and innovative models.
d. Organizing regular sharing, reflective and learning events to learn from
field experiences, monitoring exercises and academic/ research studies.
These events could be organized at district, state and national level.
11.4 Outcomes / End Results
92. Each Watershed Development Project is expected to achieve the following
results by the end of the project period:
a. All the works/activities that are planned for the treatment and development
of the drainage lines, arable and non-arable lands in the watershed area are
completed with the active participation and contribution of the user groups
and the community at large.

b. The user groups/panchayats have willingly taken over the operation and
maintenance of the assets created and made suitable administrative and
financial arrangements for their maintenance and further development.
c. All the members of the Watershed Committee and staff such as Watershed
Secretary and Volunteers have been given orientation and training to
improve their knowledge and upgrade technical/management and community
organisational skills to a level that is appropriate for the successful discharge
of their responsibilities on withdrawal of the Watershed Development Team
from the Project.
d. The village community would have been organised into several,
homogeneous self-help groups for savings and other income generation
activities which would have achieved sufficient commitment from their
members and built up financial resources to be self sustaining.
e. The increase in cropping intensity and agricultural productivity reflecting in
overall increase in agriculture production.
f. Increase in income of farmers/ landless labourers in the project area.
g. Increase in groundwater table due to enhanced recharge by watershed
interventions.

ACRONYMS
BRGF Backward Regions Grant Fund

CAPART Council for Advancement of People’s Action & Rural Technology
CAZRI Central Arid Zone Research Institute
CEO Chief Executive Officer
CPRs Common Property Resources
CRIDA Central Research Institute for Dry Land Agriculture
CSWCRTI Central Soil & Water Conservation Research & Training Institute
DDP Desert Development Programme
DoLR Department of Land Resources
DP District Panchayat
DPAP Drought Prone Areas Programme
DPC District Planning Committee
DPR Detailed Project Report
DRDA District Rural Development Agency
DWDU District Watershed Development Unit
GIS Geographical Information System
GP Gram Panchayat
GPS Global Positioning System
GS Gram Sabha
ICAR Indian Council of Agricultural Research
ICRISAT International Crops Research Institute for Semi-Arid Tropics
IEC Information, Education and Communication
IIFM Indian Institute of Forest Management
IRMA Institute of Rural Management, Anand
ISRO Indian Space Research Organization
IT Information Technology
IWDP Integrated Wastelands Development Programme
JFMC Joint Forest Management Committee
LFA Logical Framework Analysis
MANAGE National Institute of Agricultural Extension Management
MoRD Ministry of Rural Development
MOU Memorandum of Understanding
NABARD National Bank for Agriculture & Rural Development
NAEP National Afforestation & Eco-development Project

NDC National Data Centre
NGO Non-Governmental Organization
NIRD National Institute of Rural Development
NRAA National Rainfed Area Authority
NREGA National Rural Employment Guarantee Act
NREGS National Rural Employment Guarantee Scheme
NRSA National Remote Sensing Agency
NWDPRA National Watershed Development Project for Rainfed Areas
PIAs Project Implementing Agencies
PRA Participatory Rural Appraisal
RVP&FPR River Valley Project & Flood Prone River Project
SAUs State Agricultural Universities
SC Scheduled Caste
SGRY Sampoorna Grameen Rojgar Yojana
SHGs Self Help Groups
SIRDs State Institute of Rural Development
SGSY Swarnjayanti Gram Swarozgar Yojana
SLPSC State Level Project Sanctioning Committee
SSR Standard Schedule of Rates
ST Scheduled Tribe
SVOs Support Voluntary Organizations
SLNA State Level Nodal Agency
SWAN State Wide Area Network
UGs User Groups
VOs Voluntary Organisations
WC Watershed Committee
WCs Watershed Committees
WDF Watershed Development Fund
WDT Watershed Development Team
WTCs Water Technology Centres
***********


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Common Guidelines FOR Watershed Development Projects: Government of India 2008

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COMMON GUIDELINES

Common Guidelines for Watershed Development Projects 1

Common Guidelines for Watershed Development Projects 2

1. In 1994, a Technical Committee under the Chairmanship of Prof. C.H.

identifying weaknesses and suggesting improvements. The Committee, after

careful appraisal, opined that the “programmes have been implemented in a

fragmented manner by different departments through rigid guidelines without

any well-designed plans prepared on watershed basis by involving the

inhabitants. Except in a few places, the achievements have been sub-optimal.

Ecological degradation has been proceeding unabated in these areas with

and fodder” (Hanumantha Rao Committee, 1994, Preface).

2. Against this backdrop, the Committee made a number of

DPAP and the Integrated Wastelands Development Programme (IWDP) under a

single umbrella. The watershed projects taken up by the Ministry of Rural

Watershed Development Project for Rainfed Areas (NWDPRA). These guidelines

were intended to be common guidelines to make the programme more

Common Guidelines for Watershed Development Projects 3

3. In the meanwhile, emerging issues of ground water recharging and

convergence to create a critical mass of investments demanded innovative

exists in these areas.

high population pressure, acute fodder shortage, poor livestock productivity,

underinvestment in water use efficiency, lack of assured and remunerative

marketing opportunities and poor infrastructure are important concerns of

enabling policies. The challenge in rainfed areas, therefore, is to improve rural

livelihoods through participatory watershed development with focus on

integrated farming systems for enhancing income, productivity and livelihood

security in a sustainable manner.

conservation, watershed development and efficient water management are the

key to sustainable development of rainfed areas. The watershed approach has

Common Guidelines for Watershed Development Projects 4

conserving natural resources of water, soil and vegetation by mobilizing social

issues relating to balanced use of natural resources and livelihoods.

6. In order to assess the performance of various ongoing projects /

programmes of watershed development, a series of evaluation studies have

been conducted by ICAR (Indian Council of Agricultural Research) Institutes,

State Agriculture Universities (SAUs), National Remote Sensing Agency (NRSA)

Agriculture, Ministry of Rural Development, Planning Commission, ICRISAT

Technical Committee constituted by the Department of Land Resources (DoLR).

These studies support the observation that in several watersheds, the

implementation of the programme has been effective for natural resource

conservation by increasing the productivity of the land, bringing additional area

under agriculture, employment generation and social upliftment of beneficiaries

managing paradigms are emerging.

7. It is in this context that in coordination with the Planning Commission, an

initiative has been taken to formulate “Common Guidelines for Watershed

Common Guidelines for Watershed Development Projects 5

These guidelines are therefore applicable to all watershed development projects

in all Departments / Ministries of Government of India concerned with

Watershed Development Projects.

MH is degraded and 85 MH is rainfed arable land. This includes degraded land

under various watershed development projects under these guidelines. During

9. These Guidelines broadly indicate a fresh framework for the next

generation watershed programmes. The key features of this new unified

approach can be broadly outlined as follows:

I. Delegating Powers to States: States will now be empowered to

sanction and oversee the implementation of watershed projects within

II. Dedicated Institutions: There would be dedicated implementing

agencies with multi-disciplinary professional teams at the national, state