REPORT ON ) " DEVELOPMENT OF DROUGHT PRONE AREAS AN D DESERT AREAS NATIONAL COMMITTEE ON , THE DEVELOPMENT OF BACKWARD AREAS SEPTEMBER, 1981 -, PLANNING COMMISSION, GOVERNMENT OF INDIA CONtENTS SL.NO. SUlll!1nlY of Cvlldllsions & R.,;commenuations id 1. Introuuction tii 2. Clit~ria for Delineation of Drought Prone Are!ts iii 3. Rl)vi.:w of P,lst ano Current Programmes iii.tv 4. Strategy of Development Iv ','Vale] shed Approach , viii ':'01..: of AglomcII)Orol~)gy in Agri":lI11unll Phdlll,ng x 7. Soil and Water COnservation 8. D~vd()pmcllt and Management of Irrigntion xi 9. Crop Planning anu Productivity. xii 10. Livestock Development xv 11. Pasture DGvelopmcnt ant! Range Mamlgemcnl xvii I, ',' 1:2.. Hortie,11tme Development \'~ -' xviii 13. AITol'lJs(utiu1t xix 14. S:llld DUlles Stabilisation in Arid Area xxi 15. Solar Ellergy <111l[ Wind Power Utilisation xxii , \~ ,16. Strategy for Transport of Technology xxii 17. Nomad and Nomauism in Desert Area xxv 18. Organisational and Financial Arrangements. xxv 19. Acknowledgements ANNEXURliS CHAPTER 1 Alll1(!XUfG I District·wise population and Density 3 ANNfixURE II L::lltd Vtilisntion and Irrigation in DPAP Districts . 4 CHAI'TER 2 ANNIlXURll I l)istri.:ls sJ!ecl<lll by tI);.) S~';;l'ctJries Committee ia 1971 and those l"econm1Cllded by tIle Uidw(lJll I) Committee. ANNEXURE II Arcas Identified by the Irrigation CommissiOll. 11 ANNEXURE III DlllUght Prone Awus Programme- Projc:c( AlCu of DPAP II ANNuxuRE IV St'lt(J·wi~\) District Tehsil and Ulca l[clinl.)'l(cd <1::; add 15 ANNEXURE V 15 CHAPTER 3 ANNllXURll I Sta[(:-wisc total Financial outhlYS ami EXPenc!illiJe tinder Rliral Works l'logrammC, 19'!O '[3. 27 ANNEXURIl II Sla tl.)l1l:nt showing the s'~ctor-wise cxpcnditu[1) under DPAP eluting IV Plan flom1974.75 to 31 st 2tl August, 1980. ANNllXURIl III I(,!y-I'ltlicators of Physical Achiovement" of M,'jol' Activities 28 ANNUXURll IV ;:)l.lkm.:111 showing til\) Administlatiw Approval given to the D.)sert Development sch~melJ in 29 Uuj:m1t, Huray.lll:) and Raj~s(haJl. (i) (i 1) CHAPTER 10 t\;-lNEXURE r Liv~sto..:k br;;clls found in DPAP Districts 85 ;\NNIlXUR8 H Statement showing Slatewisc cumulative physical Achkvemcnts of slu:ep cooperative Societies 88 established under DPAP Districts from April, 1974 to March, 1980. ANNF.XURIl III Sh,;cp Cooperative Societies Estu blishment under IDA Assisted DPAP Districts during the year 88 1978-79. ANNEXURE IV Shecp production pawmctcrs.(Shrcp Socieites Vs Villngc Flocks) (Avcmgc Impact of the 89 year 1978-79). ANNEXURI! V Sheep Production parundcrs-1978-79 (SheeP Societies Vs Villv ge Flocks) 89 ANNEXURE VI Sh~cp D0velopcmcnt work on 100 Ha. plots in Rajasthan 91 ANN!!XURE VII P.:lsture D~velopment Schemes in Rajasthan·Pre-Investment Study by ARD in Janaury, 1979. 93 CHAPTER 11 ANNEXURE I Tcclmologies recommended by the Central Arid Zone Research Institute for development of 102 grass land and pasture. ANNEXURE II Hrghligiltsofthercscarchworkdonc by the Grossland Rcscafchlnstilutc, Jlwmi,undc;r DPAPI DDP Programmes of the Ministry of Rurdl Reconstruction. (Sourcc, Min. of RuraIRccon~- truction). 103 ANNEXURE III Total PI'Oduetion of Dry Matter of Legume Species and Grasses (In Tonnes per hectare) 104 ANNEXURE IV Grasses and L-~gumes adaptable in diif.!rent rainfall conditions arc given below 104 ANNEXURE V Grasses and legumes adaptable for different landforms and Habitats in the country. 104 ANNEXURE VI Evaluation of Pasture programme pcrformilncc in IDA assisted Districts 105 ANNUXURE VII PJsture species p~rformance·summary of evaluations-IDA assisted DPAP Districts, 1978-79 105 A.NN"XURE Vin Summ::try of pasture production estimates 19%-1979 (IDA assisted DPAP District) • 106 CHAPTER 15 ANNeXUll1l 1 Monthly average wind speeds in km/hr 125 APPENDIX CHAPTER 10 APPllNDIX I Cost of pasture establishment under one bectare of land in the project area (As per estimates of 96 CSWRI, Avikanager). APl'llNDIX II List of miscellaneous articles given to· sto(;kmen in pasture plot ~IOO hectare) 96 APPENDIX III Repayment Schedule 91 CHAPTER. 19 ApPENDIX I Composition & terms of reference of Working Group on Rural DeveloptJ;lcnt of N.C.D.B.A. 142 ApP~NDIX II Questionnaire on Rural Development (Drought. Prone Area Development) 142 SUlVIMARY Ol~' CONCLUSIONS AND RECO~lMENDATIONS 1. INTRODUCTION tillle keeping ill view the I'CCOllllllcnc/atiollS of the N atiol1ai Commissioll Oil Agriculture that a 1. Apart from the size and the geographical periodic review of these areas is neces~a/'v spread of the drought prone areas, al10ther be_cause of thc developlI_!-cllts that afe COJltifl'l important consideration why it is necessary w ollsly !'akil!g place, it would ollly be reasonable formulate and implement an appropriate deve to expect .(fujt 'those Blocks which have already lopment s,t,rategy 'for thesle areas is :that they come to a level of development which will put represent a major factor contributing to regional them out's<ide the drollgh: prone Qtea category, imbalances in development of the country. should be removed fronz ·the programme. [PARA 1.5J (PARA 2.16] 2. As compared to other areas, the drought 5. Whilslt some new areas may qualify, some prone tracts are more vulllerable to ecological existing areas have to be deleted as non-qualify degradation, leading,('o an increasing economic ing. The CommiNee would, however, empha dependency and social deprivation. [PARA 1.7 j sise I,'hat il stieH,tific delilwation of areas is re 2. CRITERIA FOR DELINEATION OF quired if a scien1tific answer is to be foulld for DROUGHT PRONE AREAS the amelioration of tile defect. [PARA 2.17] 3. The water balance technique seems to ue 6. The list of the Districts and the Blocks in the logical approach for the objective of drought I.he State concerned which hal'e been identified prone; area dClliileation. This approach takes- into on the basis of the recolflf:!_zendatiol1S! made by asoccilo umnot. istpurreec isptoitraatgioen , ande~ :a..U_eaIp?oJ-.'pttr3a ntsopi raatriroinv ea nadt the N at'iollal Commission all Agriculture and which have been taken up under the desert de.ve a balance between walter il1come and water IO,H. topment programme, these may be looked into The. Commft,tee is of the view that while L'hig in case there has been allY reorganisation o_t may be em ideal approach, it does not appear to Disofricl's or blockif. [PARA 2.21] be practicall[k this sl'age far delineation purp_o ses owing to paucHy of experime11tal data on 3. REVIEW OF PAST AND CURRENT evapo-tr([nspirafion, soil moisture over the semi~ PROGRAMMES arid and I'ropical l'egionS' and evolution of appro pricite area specific agro-clim.atic models. As 7. The present approach is maiJlly confined the objective of 'this Com~nitte_e is drought prone to developrnent at agriculture and allied sectors are{J amelioration for planning and implemen wil'h its major focus on I'c,<,Jtol'ation of the eco tation of progl'ammes fpr L'hi:! purpose thi:! ap logical balance. BiN tor (II'! integrated develop tphreo aecsh's ewnNWa lbs ec aidne able, dpervoev/iodpeedd .t he Tbhaiss icw ildl,a thao 0w11 mnoetn th oelfp aIntoy aacrheiae, vea gtrhiecu idtuels'Cirle/ ds eocbtojer catilvoense. caainle ever, 'take, time. Our objective being to find of ,the major reaS01lS for del'eriomtion in eco 1 means of increasing and stabilising produC!'ivity logical balance in these ,al'eaS is the excessive in the concerned area, it seems reasonable to pressure of popuLation on ·land. Without provi follow, for our purposes q'synoptic definition ding al1ternative sourceS! of incollle, any atte.mpt that a Block can be defined a.9 drought affectf.d !'O promote opfiimum use of land and water can if the paUern & quantujn of rain-precipitation, not succeed inspbte of the improved dry land during the main crop season of the area, make3 agricuetural practice.!. [PARA 3.54] the (ratli<tionaJ cultivation of the main crop of 8. Comprehensive planning aiming at alround Ithe area hazardous in three years or more OUL' of every 10 years. [PARAS 2.14 & 2.15] deveflopment of the area ha.'f yet to be taken up. Eve,n the basic survey of exi~ting resources has 4. Till the necessary data is collected, and not been completed and there has been lack of a scienNfic asS'eSSf'l1ent oj drought prone Blocks coordination between various agencies and pro is done, the present area brought under a drought gramme~ in the district for development. prone area pro!framme t11,ay continue ito be hand- [PARA 3.54] . led under the j'pecial area progl'amme~. J.t has been poil~ted out to the Committee during its 9. The presellJt concept is supposed to be disclissionS! w~th !the States that even following based on the watershed approach. It was how th~ criterion noW prevalent on the basis of which ever onli)' during f.llS<tl two or three years of the pre~ent identification has been done, there are programme ,thml a~tempt.'f are being made· to marginal areas of Blocks which need to be tryout thh concept and lhat too in a few dist. l~rollght, within [the drought prone area pro ric}t" at Gujarat ana Rajas!!han. But in mmit gramm.e. The Committee would recommend :that other district~, sectoral ofjicer~ considered any .~uch cases should be examined on merit all DPAP alld DDP only as a source, of additionul the existing definition and brought wilthin funds GntI intensified their adtivities wil'hout any the programme if they qualify. At the same attempt for integrated watershed development. (ii i) (iV) The !unl!wllc/lI'al ubjeC_:!ii~es of I'c;"/ul'ing ecolo CLlIl bel IIllpruved optimully with [lo/elltial aV~lil­ gical balance had 'lOt thuS' beell able to get the able ill the cllvirUIlIIU:ilt W lii/e over the hCld desired {dtcntiolt. [PARA 3.55 & 3.56J yearS. [PARA 4.5] 10. Though in some "listriots there was a 16. Till i'/w delineatiun wzder tile Hew crite mentioll of divisiOI! of the, dis,trict into major and riull is dOile with the necessary field data, the slIb-wdterslzeds ill the master plan, the ac/'ua[ presenlt area delilleated CIS chronically drought plannillg and implementation were not done 0'1 prone JIlay continue to be dealt wi;h under the the basis of wate!~f1ecl approach In most dis special ((rep pfOgrammc. [PARA 4.6] tric/'s, the lalld and J'Oil capability survey:t, the resuurceS' fnveni/ory etc. havc not been fully 17. The problem8 at the desert areas are completed. [PARA 3.57] different in many wayS' from those in the se11li aJ'id and dry sub-hlllnid regions. An anulysis of Ithe situa,,'ioll shows q yery cOlllplicated trelld. 11. In (m integrated .lrea development pro gramllle for Vlte effective implementafion of the Tot,al cultivated area is' III uch less than lotal arcas available for cultivation. Animal wealth approach, funding and expenditure should be i:f under-exploited il1spt'te of the fact that the cOfvtroUed by Ithc same !ldency. Unfortunately, however, thi,"! is 110t so. The programme for tbrraecetd sC oaot)f bcaotatlset, ao1f! dt h"ee cboegsnti slaibulleia nb redeuda lo pf usrhpeoespe. infra!'AructUf'e dcvelopmmt is sub"taltt1ally de· The livestock economy is migratory in character, pendent 01Z outlays in (.he State Sector. The mainly dlle to lack of all the year aruond graz priorities of the State organisations controlling ing and water facilities. [PARA 4.71 such outlays l1leall'~ for the entire State is, how ever, seldom in compatibility with the prioritipJ 18. In dttcmpting the development of areas, of the drought prone area development adminis the restoratioll ot the ecological bala.nce between tration. [PARA 3.61] the water, the soils, the, plants, the hum all -alld animol popUlation should be a basic consider.1- 12. Conceptually, an <wea development pro tion lind should undel"lille the develoPlIlent s-tru gramme call1lot alld shuufd not be designed on /'£',!?y. It indic.[~tes the need for bringing auollt the basis of a CCI','aill fixed SUfi! of money being an appropriate Land use pattern which will be repeated every year. Moreover, infrastructure conducive to attaining the neceSS(lry ecological Sltch as dairying, road:t, electric _i transmission balance. [PARA 4.8J lines, have Their impact Ol'er areas milch larger than the blocks and evell somelime3 a di:!!'rict. 19. There is sufficient tedliwlogy available The prescnt system of funding leaves, there/ol'c, tor increasing productivity in drought prone much Ito be desired. [PARA 3.63] areas 0/ Ithe coum'ry except ill extremely difficult lund ,and water o!itzUltiom. An agressive adap 13. There, i:'1 now sltfJicicllt technology avail tive reS'earch and ,tcchnolt'gical transfer through {lbie for illcreasillg productivity ill !'he drought a proper e;~tellsioll maclullery should be able to prolle ureas of the cOllntry except in extre increasl1 Pf'()(Zuctivify substantially. [PARA 4.11] Inely difficult lwul aild wqter situatio/1$. What 20. The aim wui cOllcePt outlilled by the is lacking, however, io! an aggressive adap!'iye ([S Cotnmittee in [Jara 2.12 vj Chapter 2 of its research and technological tr,(ll1sfer pwgramnJ.e report on "Organis,atiol! oj AdlllilliS'tl'w'ive and through a proper extension lI~achinery. Financial Structure jor flackward Area Develop~ [PARA 3.73] mellt", should be, to impnJl'e the quality oj life of the people in the baclqvard m·eas. Policies and 4. STRATEGY OF DEVELOPIV.iENT programmes [i'hould be conceptualised and desig ned, keeping t'his overall cOflcept ill view, and 14. A block should be tlte local area for lulministr,ative, social and economic.: institutions assessing drought, pronellC.U. On the principles adapted and adjusted towards this end. evolved by the Departmel1t of Me,'corology for (messing recurrence oj the period of high defi [PARA 4.14J ciellcy raillfall, {m exercise should be done immediately to as'ses.r the position in the various 2 t. Willie a cOfllprehclIs;I'C frame will btJ the ulrimdte objeCl'ive, th.:. spread alld the expec blocks falling broadly in the region of the pre wm tation have to he adjusted to the presel1t Sent drough1t pralle {weas demarcated in country. This exercise, will be more relevcmt to the objec level of ab010rbable capa.;ily of the poplllal'iotl of ncw techniques and skills and the capacity of tive the Comrnil'Pee is !l_ceking than a broad classification by regions. [PARA 4.4J the administration and institutions to cover ~'he field in the comprehelZsive nJwmer required in a backward arUI. Under thi,s approach, it should 15. Experiellce over tIle years hw shown be bome if! mind that the programmes, would that elvery ,year some part of this vast country have to be both area and beneficiary oriented. 01' i'he other is susceptible 10 droughlt. Where FOr beneficiary oriented programmes, "family" the drought is severe, relief tneasures are the should he regarded (/.1" {1asic human unit for obviouS' ,!lIlSwer. The entire country cannot be planning and development and for the area drought proofed. In [he chronically drought planning and development "Block" should be affected areas, the eCOrU!_J71Y of the population taken al'J the unit. [PA.RA 4.14] (v) 22. The whole cO/mll'Y has been covered by was cllvisaged that a prnper Land Usc Board (/CI'ial photography il1 Mil de al1d white mId this Ivill be COlls'liillled at the CClltr,". The COIll is to be J'1'/lCfI(f'd at on illtci'val 0/ 5 to 10 years. lIIit,,!!!! places !!l'eL1[ I'ciftl!1ce Oil (/ propel' land The SUl've), ,:1 lildia gets the areas photographed use clipability survey, particularly, if! the and the plio'Lo ltzterpretafioll techniques have drought, prone areas, jor maximising productivity been very well del'eloped, where one Can see of land tinder the hostile el1l'ironment lIla.ny things·. TV e: cem interpret the photographs il1 j'erms of geology, geomorphology, geohy [PARA 4,191 drolt)g)" Zemd lise, soils and forestry and they 26. The basic sphere dominating the farm give /1,\' very ~'pecific informatioann and detailed pOPlllation is the possihility of drought and maps Ul:! hi.' prepa;"cil covering these Q8pect,v. the famine, forcing it to produce as milch Comhillillg all the data Ql'id mapot avanable with (1..'1 [Jos~lible 'in a llo},iII~l area not only suitable [j1'tJllfld level, we COIl prepare optimal for L'Ite hO!1le cOllswllptio!l but also as carry Zrmd lise and land capabaiity map.!, which would ol'er fo}' the next yeu)' whe/1 the food crops may prol'ide j,'h:' b(Jsic gllid:;nr]es for plan/ting for fail. Thi" few' complex lead" to bad land lise af{ricliltural and other de\'elopment. This tech and anyhow does /ldt satisfy the I'equirenle!!-ts ';';1/11 c CW! be 1Ised on a lal'ge selIle, district-wise, for foor/grains. If the farm population is to repion-wise and bflsill-wise to study in a scientific be brollght om' of this fear complex, and persua 1I1~;[IIC'i', o-ur renew(llJ!e resources for a proper ded to grow 1]lOre valuable cash crops that 011 land snil lo';!atl'l' management. [PARA 4.161 land, which is now possible by the technology available, or change over .to pasture develop 23. The effect of drOll[;hl' i.'l a i,ack oj water lIlent and animaJ husbandry, there !1lllS't be balance which involve8 tJu.: soil structure, evaro Some guaran-tee that they will get their food trallspi;"cition crmditions (if the various crop9 of requirements throughout tile year at a reasonable , tile (lrc,[ and the rain/all patterl1 during !'lIe maht pl'icc from nearby fail' price shops. The country rainfall scason. This l'eqlli~'e!J a IHllch mOl'~ de with its vast food rUstrifJution organisaI'ion IS toaUed analvsis oj the environmenta~ conditions /lOW in a position to give this guarantee provi tor propn: guidance on the types at crops a!~d ded the requirements (If',! estimated in detail at t/zf'ir varieties to be grmPl, proper land use 111 the block leve!, adjusti!!g requirements to the zrtili8h1/? l'llst':l'e clevdoPIIlent, hOl'ticultur(', cJwnges in cTo[Jping that hm'c taken place and plal!tations and forcstry to n~ake maximum use providing the necessary foodgraim through the of tile el1vimnmelll'al co.nditions and land qualt'ty season Cit nearby filiI' price ~·hop.'i'. The Com av(/ii'~'1ble. Ulili,\lilZg tile macro guidance given bv mittee wOllM sped/ally .lrmv attention to this studies Oil t/w lincs (/011(' l)y the CAZRI for sllpport for a proper land USe strategy. districts ill RaJas,awn, the position will have I'eo [PARA 4.21] be refilled jor each block by suitably constituted inter-departmental groups, which will, after local 27. There are lot of research findings avail check of the vnriOllS [Jaf'ome'ters and the scienti able in the All India Coordinated Research fic knowledge thell «Ivailoble, guide the extension Project tor Dry/and Agriculture. A continuous workers in the types of land use that can be up duting 01 !the ,technology hm to be done in int'l'odllced, with profit. [PARA 4.17] order 10 refine the field level advice to ~'he ex- tension organisation, [PARA 4.22] 24. The CAZRI may train state level teams to ca,rry OTlt I11(1CI'O sW'veys in the drought' prone 28. Un i-discipli.nary rese,arch nolV generally areas as has been done by them in RajasthaTl. prevalent in fhe Agricultural Universities and These state-level teams lIIust have the nece,~sary Parallel Research belng carried 011 in variolls Itechnical ('x[1cr'ti.i'e 1'0 flirt her. refine the macro institutions-Central and State-in various studies and to give "ecommendation:; at the aspects of the sciences have to be brought block level for extension pur[Jo$e$. The Mif!i~'tr.Y t08ether in a multi-disciplinary applied research of Agriculture may form a Working Group to programme in order (0 solve the specific pl'obl- develop this concept at a u~clmical Gtudy team lems of drought prone areas. [PARA 4.21] at the State level to perform this necessary func tion for drought prone area development. Thi9 wOi'killg group may also go into tha adaptlve 29. A joil1l~ team ot the, leAR and the World Bank had recommended the conS'titlltiOlt research wOl'k that will be necessary in each stage t'o refine 'the macro research conclusions of regional research cen~res on a multi-discipli nary basis by AgricuUlIral Universities in the on a location specific basis /01" the drought cowitry to deal s'pecifka!ly with a multi-disci prone 'areas and identify Ithe f,(lrm,~ and ,~he plinary c+pproach to regional agricultural pro gl'Ol! ps that will do the l1!!CeSsary ad aptz.ve grammes including crop husbandry, aninlal 'research. [PARA 4.181 husbandry, forestry, hOl·ticultllre, and jishrie" The Commiti'ee will strongly recommend that .25. The States had been advised to form this concept already enshtined in the reports of Land Use Botwds which wOl/lel underl'ake this the Joint C()mmittee be translated into effect work in th, StdteS'. The Ministry of Agricul bv [CAR whether the World Ballk is' ffna.ncil'!;? tui'e is at prcsent performin.g the junctions of the same 0)" not. Such multi-disciplinary re (_'ooi"dinatiw,' this work at fhe Cel'l.tl'm lelle'. l! gional rC'search centl'fS hI each of many di,fterellt (vi) regions of drought are vital to support the State,~ 100 acres. This i,~ due to the responsibility drollght pralle areas amelioration programme. cast on l'arious organisatiolls for minor irrigatio1l [PARA 4.22J alUi ,their present capacity to survey and design fhe prujects. In drollght prone areas the preci 30. Whereas a lot can Jtill be done by tapping pitation has to he conserJ'ed on a watershed available sourface and ground water resources in basi:! startirig from highest available point for the droughtt prone di~L'ricts, it has long ago been E·tortlge and gradually going down alld trying 70 realised that amelioration of dl'Ought prone dis hold back as much ,ail. of the precipitation as< tricts can only be carried out effectively by possible within the watershed. This will require tr,ansfer of water from more richly endowed CI sySotem of designing small ponds and minor irri basins 1'0 'the drought prone areas. In yuture gation reservoir" for very ..Imall area.y of com plallning, the, sotrategy !1!ill have to be to ensure mand.. l:he cr:nstruction will be simple. An that inter basin transfers Lire syste1J]Cltically deve orl?al1lsatLOIt Will have to be given the responsi loped and relief given to drough~' pronc area." bNity for planning srich water holdings structures particltlarly those which do not have much of on a watershed b,asiS' ill drought prone al·eaf. The obviolls organisation would be the soil n.atural precipitation. (PARA 4.25) conservation organisa!'ion suitably stre,ngthened 31. Crops give maximum return when the with the necessary expertbe. [PARA 4.31) evapo-tfanspiration balance-is maintained during the crudal periods of crop growth. In other . 36. Ground water exploitation and conjunc periods, slight ,~'tress can be stood by the crops t/ve use of ground and !,oUrface water will be without serious damage. A little ul1der-wateri!1,~ an essential ingredient, ill agricultural develop in the other period is lI(ll a serious consl'railtt. ment of drought prone areas. In some of the On the other hand, the mentality oj sufficiency arid and semi-arid areas the ground water - is oj water leads to save productivity. Here there salille, 111. such specially difficult areas a pro i.~ a need for ithe laboratory to get close, to the per planning of conjunctive use of Siatfne and land in translating -,'he prillciple of proper aneZ fresh water and suitable agronomic practices economic water use. [PARA 4.26J wu[ selection of cultivay,~ folerating levels of salinity, will all have to be {tiled in to the 32. For making better lise of available water pl:ogranlille. The objective is maximum use of wIll/lever water is aVailtlble. In this conteit in drought jar crops to gi,'c ma_timum coverage the large, scale expcrim~ntation by IiarYana of in itTigation both by sekcfion oj crops needing lower water duty alld by rigid control of water lititi,~il!g saline ground wa~el' in the canal system use ill the irrigation systems by bririging i,l1to is worth looking into, [PARA 4.32] ejJecl' all aids for sllch (\mtro/s like linking of canals (Ind callal controls-if this method is 37. The Committee recommends I'hat immed followe.d, may be much more than 30 per cent folci), t1he present stage of lise at the reservoirS' of grass cropped area willI eceive attention. This in the various drought pr<.'ne areas, the system should be the objective, [PARA 4.27] of reclamm'ion and the cropping pattern may be investigated quickly (ind at lepst within the 33. GilI' (irs!' objective should be to ensure next year a propel' plan of maxinJ,ining the USe of that each family in the are,a gets a reasonable sllch water drawn up. [PARA 4.34] firm base tor his economy so that in s'erious drollghts only marginal help will be needed for 38. As a !najority of the populal'ion in the the family. Thereby also large scale migration drought pralle areas depend on land based acti of man and catNe can be prevented. There b, therefore, justification fur bringing in the princi vities like crop-farming ~md animal husbandry, ple of social justice and equity in distribution (If Ihe core task for devel.Qpment will be to pro rnote rational u!'ilisation of land and available water to the families. 'lhe Committee would recommend .~eriously such an approach to be waagtr~i>cr.u lturTeh e arneds earacllhi edin ssteictutotirosn s havwe orkeivnogl veind followed, if necessary, with legislative support. (j consofderable amount of technology for improv [PARA 4,29] ing and stabilising the economy of walersheds in the drought prone tl!'U1S. The major task 34. lIZ middle India, it is generally noticed now i" its trelnsjer, in a package, to the people that in major irrigation .schemes main canals pass throllgh deep cuttings in several reaches residing ill these watershed!i-. lPARA 4.35J and higher lands on both sides may be drought affected. J.t is desirable that where such situa 39. The Task Force on Rural Development as tions exist, relief is given to the droughl' affected well as the N(~tional CommiSSion on Agriculture area hy sllitable lift irrigation projects. has therefore rightly stressed that the strategy for development of drought prone areas has [PARA 4.30] necesosarily to be huilt mainly around animal 35. The Committee notices I'hat generally husbandry. Animal Husbandry in conjunctio'l minor ir.,·igation scheme~' of surface reservatI's with dairing is considered to offer a more stable are /lot designed and constructed for commands base t/zan crop farming for sustained income tor less them ill some States 200 acres and in some the. 1'lIr!1! households in these areas. [PARA 4.38~ (vii) 40. Notwithsl'anding the land "CSOlirce conS' 'the crucial ope1"atiolls. In planni11g the deve traints, these areas do fJf] er considerable scope lopment of a drought prone area, these Ollt for pasture alld fodder development on the avail migration opportunities should not be lost sight able areas if the latesl! technology tor fodder of. [PARA 4.44] crop and pasture development ~volved at the Central Arid Zone Research Institute, Jodhpur, 46. it has been noticed that intensive agri the Indian Fodder alld Gr,asslallds Research cultural activities in many parts of "he endowed Institute, Jhallsi, and other places is adopted areas has resllited in high wage employment tl1 appropriately. [PARA 4.41] a large number of out-migrants from 'the pOOl' agricull'ural area.9. It may be necessary to assess 41. The problem of employrl1C/1~ has to be these opportunities .allel ul flise them in¢tead of tackled by providing oppurtllnitie3 in the secon trying to keep back people il1 the drought prone dary and lertiary sectors. Unless the indus areas under low wage employmem schemes like fries and service ~;ectol's absorb the unemployed the Employment Guarantee Scheme in Mahar:J and under employed, it will not be possible to shtra. [PARA 4.44] reduce the p1'eSSllre on !clnel in the watershed area. These areos, however, have good potelZ~ 47. Many lat'ge projects like irrigatioll pro tial 1'0 provide employment in the non-agricul jects in the country are today suffering fl'oij1. fund sector. Some of the droURht prone distrz'cts lack oj the right type of semi-skilled labol/r have very Rood industrial reSOllrces' like lime for completing their work on schedule. There stOlle, bauxite and manganese. [PARA 4.42J is scope here for increasing the number of semi skilled labour who can ge~ into these opportu 42. For !'he development of industrial sector nities. The obvious places to look for sllch in the drought prone are os, the growth centre labour for upgrading their skills (lfe the drought ,approach wi{] have to b2 synchronised with the prone areas of 'the country. The Committee watershed approach so that a clear appreciation would emphasise that in planning labour for the might emerge on the extent to which the plans people in the drought prone areas, the question for secondary and tertiary ~eC!'ors are com~ of skill and wages should be kept clearly in plemental'Y and supplementary to the land based mind. Whether wz'thin the area or by out-migra activities. [PARA 4.43] tion if the family can earn more ana cross the poverty line, every step should be taken to see 43. III the contexl' of i[crelopment of drought thdt the people are advised in the correct direc pralle areas, where flew activities 01· functions 'tion. Particulady, when moving large masses are proposed, their locatian becomes extremely of labour to new opportunity centres, a good important because sllch locm'ion at appropria(e deal of State support in organisation and move places will stal't a chain /'(!({ctiOf2 of developmmt ment will be ,necessary. [PARA 4.441 with far reaching effect,'!. Therefol·e,.an unde"~ standing of functional inter-relationships i:t 48. As development fakes place ,alongwith the space goes (! lOllg way towards the development desired lines, many agricultural cormnodities for of a drought prone area. Further, decentralisation local processing alld semi-processing will be and the actual location of fUllctiolls need to be available. Extraction of sunflower oil, milk dOlle with in the framework of 'a region encom proces'sing, wool grading o!ul preliminary pro passing hOi'h urban and rural sectol's. [PARA 4.43] cessing are instances. Tile 3cope for sllch eCO nomic activity needs to be assessed in e,ach area 44. In relation. to the drougHt prone areas, and processing units located, where fea,yible. separation of urhan and "w'al areas S1pells harm [PARA 4.45] from the point of view of the overall develop~ ment of :thc region and its impact on the people. 49. The prOVISIon of drinking water stlpplV In the drought p"one ..JreQS, a gradual urba,t is an inzportant elemedt in any programme of rural contilluem should dewlop with the inten development in. drought prone areqs. These sity of wdtershed approach combined wilh areas experience acute scarcity of drinking water. growth centre concept. The Committee has both for human populati0f1 as well as livestock, already dealt with this c.spect in its report on because of low rainfall. In fact, no develop bulusirial Dispersal alUl on the developme/1ft of ment of livestock is possible in potential areas village and cottage Industries. tPARA 4.43] without ithe facility of dtillking water. Priority attention, therefore, needs to be given. to locating sources of drinking water in those areast. 45. From malty drougHt pl'One areas itt !'he country there is seasonal out-migration of vari [PARA 4.46] OilS types of lalJOltr to take advantage of the .,>,emi skilled labollr opportunities available in the 50. Since the~'e is paucity of local water re large scale induc"trial and construction dev-ezop SOlll'CeS, w,afer has to be inducted from outside ment taking place in the country. There has the arid zone. The Rajasthan Canal Project is also been seasonal migration dUring the agricul.· an instance of sllch an e[jol·t. ThiS' canal is de tural season like the .';>owing season and the signed to irrigate areas ai01tR the western borUl harvesing season to the more agriculturally dal'Y of Rajasthan but the interior desert areas endowed areas to supplel'dellt the local labol{r in do not derive any benefit from it. The project 2-631 P.C./NDj81 (viii) should be recast to exclude unsuitable a1':eas, 58. The cold desert itf the country occurs in where the cost of land fevellittg and develop Ladakh valley iii Jammu and Kashmir. Tile mellt will be high and to construct life canals Lahaul Spill Valleys and the Kinlwur region to take some waterdeepc/' into the desert with a in Himachal Pradesh are also considered as view to bringing more areas under irrigatign cold semi arid. The population in these areas and extending the bene/i to a larger section of is sparse. The extreme climatic conditions, the community. A beginning has already been lack of communication and :the level of educa made in thi~ direotion. [PARA 4.47] tion make development of these areas a diffi cult t~k. All efJOI'lts made so far to develop 51. For maximising the utilisation of the these <Greas achieved little success. The Com scanty rainwater, suitable water con.'tervatioll mittee would, however, like to emphasise that techniques like Khadnis. bandhis and alhandhis the available information is not sufficient for will have to be adopted Oll a larger scale. formulating the srtrategy jor development and indicating the feasibility of different program [PARA 4.48] mes. In our view, many more inve~tigations 52. In the early stages of development of the and more extensive research based 011 local en vjronment.al conditions--physical and soc[o canal command areas, there will be water to economic are required before viable economic spare ill Ithe canals. This opportunity needs to programme can be impleme.nted effectively in be utilised. As water becomes available in an these areas. This haS' to be given the top most area, a large xale programme of tree planta& tion) raising of shelter belts and wind breaks priority. [PARAS 4.53 & 4.56] and rejuvenation of vegetable cover will have ~o be undertaken. This programme will arre:~t 5. WATERSHED APPROACH wind erosion, sand blowing and sand casting on 59. For a complete waterSthed approach one arable fields i{lnd also reduce the de.5'iccdting has L'o bring soil conservation measures, water effect of hot winds 011 CJ'pps. [PARA 4.49] conservation and storage measures, dry land farming, animal husbandry, afforestation and" 53. The economy of the desert area should minor irrigation as !the minimum number of di.~­ continue to be mainly animal husbandry orien ciplille u.nder a coordinated approach. At ted. The desert area has a natural endowment present, the wal'ershed approach in the DPAP oj several good breeds of cattle and ~heep. A is one of the many programmes that Ithe district major thrust of the development programme has carries out under DPAP. It is t'aken as a sepa to be on 'the prevention, in a large measure, rate programme by itself with a coordinated of the 110inadism of the cattle breeders and approach limited to few watersheclSl taken up sheep owners. An organised programme of under Ilhe programme. The Committee would, livestock development will have stabilising influ therefore, suggest Ithat if the sub-plan approach all ence. . [PARA 4.50] that the Committee has reconunended for backward area development programl1Jes in -its 54. In canal command areas dairy develop report on 'Ol'ganisdtio.n af Administrative and Financial Structure for Backward Area Deve meltt and mill, chilling centres and milk pro lopment' is noW brought ini'o effect in the DPAP ducts factories should be undertaken. dis,trict) Ithis soattered handling of programmes, [PARA 4.50] which should be brought together for maximum benefit, will 110t continue to affect growth. 55. In the arid areas the major emphasiS' has [PARA 5.31 to bl!" on sheep development. The good breeds oj sheep available in this region can be further 60. For planning a proper watershed improved both for wool aHd mutton. [PARA 4.51] apporach for any watershed the basic physical features like the physiography, land slope, 56. Apart from improving the quality of ndture and depth of the soil and the hydrologi sheep, wool shectdng and grading centre$ have cal behaviour of the soils and the slopeS' in the to be established and arJ'angements made for watershed have first to be studied and analysed. wool and meat marketing~l. Another dimensiml Scientific allocation of tHe various parts Of the to this development is the possibility of creati!1g land for !'he right type of vegetative cover, grass, more employment in the cottage industry by pro trees or agricultural crops will depend on this cessing the wool Z()cally. For Ithis, adequate initial analysis of the physical characters. The extension support will be necessary. [PARA 4.51] type of soil-conservation measures and moisture conservation measures can be planned on the 57, Attention ha~ ,therefore to be paid to large bas-is of !the physiographic data. The present scale development of pastures, regulated graz~ land use and the hazards ill soil and water dete~ rloration that !'llis leads to, - have then to be ing 'to prevent over use and creation of'. grass reserves and fodder banks tor supp'ly of hay 'in studied in detail S'O thdt mitially a programme of scarcity yearS. In canal command area9, the stopping the deterioration, with a follow up cropping pattern has to be adjusted to bring 30 programme of rehabilitation of the areas that per cent of the are~ WIder fodder cro[pr.s in mixed have, de'teriol'ated can be sUil'ably designed. farrning. ' AM 4.5~J [PARA S.~] (ix) 61. The watershed char!lcteri~tics vary accord 65. If we have, to carry OUt large scale deve ing to the permutations alld combinations of the, lopment on a watershed basis qUickly, it may be basic factors of land, ;,lope, ndture .and depth desirable to handle large watersheds in the initial oj soil. precipitation and induction of water planning. On the other hand, a watershed from outside. Thus, planning for two wat.e.r management programme l'eqllil'e~ the coopera sheds cannot be made on an identical pattern. A tion of the villages. If too many villages are watershed management plan has fo be highly brought within the watersheds, it may be diffi location specific. It can therefore be carried out cult to get i'he hum(ln cooperCltion that i~' neceS only by a technical group vf experts who under sary fo}' efjectivelleS's 9f tfte opemtion. Basi!tg stand the variations of the_se jactors in plann on these considerations, the Committee would ing a waj'ershed management programme. The recommend that generally in drought prone are_Cos planning cannot be lefit to lower levels of field a watershed of 'the order af 5000 hectares would workers. This group expelltise should be available be a workable proposition. Of COllrse, in spe bale at the project level, supported by higher cially difficult area!}, the approach may have to experti~e in the line dep[')'lments. fPARA 5.5] be changed to ditJelem1 linlitS. {PARA 5.111 62. Till a comp,;ehensive attack on the pro 66. Watersheds oj smaller size have distinct blem can be made on a sub-plan basis in the advantage of involving a small number of vil DPAP districts, it is esselltial anyhow to ensure lages within a resource L1nit that share the com that the departmen'tai schemes are suitably exa mon historical, social and economic patternY, mined by L'he project authorities to ensure that Selection of large watershed ~ntailing large finarl they do not create the hazard~ and where such cial outlay for its development should be avoid hazards exist due corrections are made in the ed because the larger ~'he area of the water, the project on a continuing bas-is. [PARA 5.6] greater will be the he,terogeneity in other water shed characteristics like soil, vegetation, slope, land use and socia-economic condil.'ions. Hence, 63. Normally a watershed managemeomn l integrated planning will be complex jor larger approach and plan would have been based watersfleds. [PARA 5.12J the rainfall preCipitation within the watershed. All dther aspects of planning like soil and water 67. As 'the funds for area development would conservaL'ion, cropping, etc. would naturally naturally be limited, some priority in action follow this basic factor. On the other hand, will have tc? be brought ill L'he planning. Where as and when the master plans for minor irriga general detel'ioiaiion has to be Sltopped and tion, medium irrigdtion alid major irrigation are areas ,rehabiUtated, the prograrnmes would generally be soil conserv,ation and afj9restal'io)'l. carried out in L'he various districts it may ~a happen that the irrigation system will create including paS'ture developlJwnt. For this pur complications in the plan all'fl_ady done and lead pose, the watershed in the project area will have to subsj'antial modifications in the watershed to be analysed tor identifying mini wf/L'ersheds management programme. In order to avoid falling under the following three classes:~ this, it is desirable to ex_a!Jline the watershed (i) substantial deterioration needing prompt planning in a drought prone districL' against a action; master plan for irrigation and then work out (I (ii) moderate de~'erlol'ation where investments suitable plan of adjustment as the programmes can be spre,ad over a longer time,' and of ifrigadon come into operation. This will (iii) reasonably low deterioration areas which have to be a con'tinuous prOfess of exaFJ:lination can be improved by mere human action alld adjustment. [PARA 5.7J in utilisalion of th_~ larld and resources, The large soil conservation programmes that the 64. A monitoring of the soil and water loss State undertake every y~ar should be worked from the watershed will be a correct' measure of out on above listed priority schedule. the extent of success t'hat has been achieved l/1. [PARA 5.14] .the planning and exectl.tion of a watershed managemem'. Monitoring of both soil and water 68, There should be elll adequate mechanism loss is easy in a watershed approach if the moni~ at L'he State Headquarters and at field level for taring unit is located at a point at the, outlet collection of data through field units, or from of the drainage system at the watershed, A time concerned agencies. The need for the basic series of soil and water loss a~ this point will data should be fully recoghised and their collec enable the rnOlil'toring am'horities to estimate the tion, analysis and interpretatiOn. should be efjectivemsSl of, the actipn. Where the monitor· considered as a pre-investment ,toward_s proper ing shows no significant if!1prOvement as expec planning _a nd imp~ementation 'at watershed ted) L'he monl'ioring authority can work back to management programmes.. [PARA' 5.15] the minor watersheds within the watershed and identify the particular mini watershed which has 69. The mo~llog~'cal s~'ep would appear 'to b,e. 'to be de all' with in detml for better soil and to incorporate corrective m~asures in the exis~­ moisture conservation. This action will ha,le ing land use system to make the present land use. to be 'a continuous proce§_s of monitoring and praC!'ices less vulflerable to erosion and degrada-. improvement. ' [PARA S.9J tion, hazards. ,Simu~taneously, , aNernat~ye