Document of
The World Bank
FOR OFFICIAL USE ONLY
Report No: ICR00004618
IMPLEMENTATION COMPLETION AND RESULTS REPORT
(IBRD-8090-IN/IDA-5014-IN)
ON A
CREDIT
IN THE AMOUNT OF SDR 78.2 MILLION
(US$125 MILLION EQUIVALENT)
AND A LOAN
IN THE AMOUNT OF US$125 MILLION
TO THE
REPUBLIC OF INDIA
FOR A
WEST BENGAL ACCELERATED DEVELOPMENT OF MINOR IRRIGATION PROJECT
September 16, 2020
Sustainable Development Department
South Asia Region
This document has a restricted distribution and may be used by recipients only in the performance of their official
duties. Its contents may not otherwise be disclosed without World Bank authorization.
CURRENCY EQUIVALENTS
(Exchange Rate Effective June 4, 2020)
Currency Unit = Indian Rupee (INR)
INR 74.83 = US$1
US$1.375530 = SDR 1
FISCAL YEAR
April 1 – March 31
ABBREVIATIONS AND ACRONYMS
ADMI Accelerated Development of Minor Irrigation
CAS Country Assistance Strategy
CBA Cost-Benefit Analysis
CSP Community Service Provider
DPMU District Project Management Unit
DPR Detailed Project Report
DWRID Department of Water Resources Investigations and Development
EA Environmental Assessment
EIRR Economic Internal Rate of Return
EMP Environmental Management Plan
ENPV Economic Net Present Value
FIRR Financial Internal Rate of Return
FM Financial Management
FNPV Financial Net Present Value
GIS Geographic Information System
GoI Government of India
GoWB Government of West Bengal
I&D Irrigation and Drainage
ICR Implementation Completion and Results Report
IRMA Institute of Rural Management Anand
ISR Implementation Status and Results Report
IWMI International Water Management Institute
M&E Monitoring and Evaluation
MI Minor Irrigation
MIS Management Information System
MOM Management, Operation, and Maintenance
MTR Midterm Review
NGO Non-governmental Organization
NICT New Information and Communication Technology
O&M Operation and Maintenance
PAD Project Appraisal Document
PD Project Director
PDO Project Development Objective
PMU Project Management Unit
SDMP Scheme Development and Management Plan
SMS Short Message Service
SO Support Organization
SPMU State Project Management Unit
TTL Task Team Leader
WBADMI West Bengal Accelerated Development of Minor Irrigation
WoP Without Project
WP With Project
WUA Water User Association
Regional Vice President: Hartwig Schafer
Country Director: Junaid Kamal Ahmad
Regional Director: John A. Roome
Practice Manager: Michael Haney
Task Team Leader(s): Anju Gaur, Raj Ganguly
ICR Main Contributor: Yoro Sidibe
TABLE OF CONTENTS
DATA SHEET ......................................................................................................................... 1
I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ....................................................... 6
A. CONTEXT AT APPRAISAL .........................................................................................................6
B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) ..................................... 10
II. OUTCOME .................................................................................................................... 12
A. RELEVANCE OF PDOs ............................................................................................................ 12
B. ACHIEVEMENT OF PDOs (EFFICACY) ...................................................................................... 12
C. EFFICIENCY ........................................................................................................................... 18
D. JUSTIFICATION OF OVERALL OUTCOME RATING .................................................................... 19
E. OTHER OUTCOMES AND IMPACTS (IF ANY) ............................................................................ 20
III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ................................ 23
A. KEY FACTORS DURING PREPARATION ................................................................................... 23
B. KEY FACTORS DURING IMPLEMENTATION ............................................................................. 25
IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 27
A. QUALITY OF MONITORING AND EVALUATION (M&E) ............................................................ 27
B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE ..................................................... 28
C. BANK PERFORMANCE ........................................................................................................... 30
D. RISK TO DEVELOPMENT OUTCOME ....................................................................................... 32
V. LESSONS AND RECOMMENDATIONS ............................................................................. 32
ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ........................................................... 34
ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ......................... 40
ANNEX 3. PROJECT COST BY COMPONENT ........................................................................... 42
ANNEX 4. EFFICIENCY ANALYSIS ........................................................................................... 43
ANNEX 5. BORROWER, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ... 54
ANNEX 6. SUPPORTING DOCUMENTS (IF ANY) ..................................................................... 56
ANNEX 7. PROJECT INNOVATIONS AND GOOD PRACTICES ................................................... 57
The World Bank
IN West Bengal Accelerated Development of Minor Irrigation (P105311)
DATA SHEET
BASIC INFORMATION
Product Information
Project ID Project Name
IN West Bengal Accelerated Development of Minor
P105311
Irrigation
Country Financing Instrument
India Investment Project Financing
Original EA Category Revised EA Category
Full Assessment (A) Full Assessment (A)
Organizations
Borrower Implementing Agency
DWRID, Government of West Bengal, Public Works
Republic of India
Department, Government of West Bengal
Project Development Objective (PDO)
Original PDO
The project development objective is to enhance agricultural production of small and marginal farmers in the
project area. This will be achieved through development of minor irrigation (MI) schemes, strengthening
community-based irrigation management, and support to agricultural development, including provision of
agricultural services, encouraging crop diversification and use of new technologies, and creating income generating
opportunities.
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
FINANCING
Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$)
World Bank Financing
125,000,000 20,193,004 20,193,004
IBRD-80900
125,000,000 125,000,000 110,592,904
IDA-50140
Total 250,000,000 145,193,004 130,785,908
Non-World Bank Financing
0 0 0
Borrower/Recipient 50,000,000 30,000,000 22,330,000
Total 50,000,000 30,000,000 22,330,000
Total Project Cost 300,000,000 175,193,004 153,115,909
KEY DATES
Approval Effectiveness MTR Review Original Closing Actual Closing
04-Oct-2011 19-Mar-2012 18-Aug-2014 31-Dec-2017 20-Dec-2019
RESTRUCTURING AND/OR ADDITIONAL FINANCING
Date(s) Amount Disbursed (US$M) Key Revisions
18-Feb-2016 38.09 Change in Components and Cost
Cancellation of Financing
Change in Financing Plan
30-Jun-2017 72.95 Change in Results Framework
10-Nov-2017 72.95 Change in Implementing Agency
Change in Results Framework
Change in Loan Closing Date(s)
Change in Implementation Schedule
KEY RATINGS
Outcome Bank Performance M&E Quality
Moderately Satisfactory Moderately Satisfactory Substantial
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
RATINGS OF PROJECT PERFORMANCE IN ISRs
Actual
No. Date ISR Archived DO Rating IP Rating Disbursements
(US$M)
01 17-May-2012 Satisfactory Satisfactory .57
02 03-Dec-2012 Satisfactory Satisfactory 1.48
03 08-Jun-2013 Satisfactory Moderately Satisfactory 6.60
04 06-Nov-2013 Moderately Satisfactory Moderately Unsatisfactory 6.60
Moderately
05 19-Apr-2014 Unsatisfactory 15.15
Unsatisfactory
Moderately
06 11-Nov-2014 Moderately Unsatisfactory 15.15
Unsatisfactory
Moderately
07 09-Jun-2015 Moderately Unsatisfactory 15.15
Unsatisfactory
Moderately
08 15-Dec-2015 Moderately Unsatisfactory 38.09
Unsatisfactory
Moderately
09 06-Jun-2016 Moderately Satisfactory 38.09
Unsatisfactory
Moderately
10 28-Nov-2016 Moderately Satisfactory 52.96
Unsatisfactory
Moderately
11 19-Jun-2017 Moderately Satisfactory 72.95
Unsatisfactory
12 01-Nov-2017 Moderately Satisfactory Moderately Satisfactory 72.95
13 23-Apr-2018 Moderately Satisfactory Moderately Satisfactory 83.32
14 12-Dec-2018 Moderately Satisfactory Satisfactory 103.86
15 05-Jun-2019 Moderately Satisfactory Satisfactory 110.64
16 09-Dec-2019 Moderately Satisfactory Satisfactory 117.64
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
SECTORS AND THEMES
Sectors
Major Sector/Sector (%)
Agriculture, Fishing and Forestry 100
Agricultural Extension, Research, and Other Support
8
Activities
Fisheries 3
Crops 4
Irrigation and Drainage 82
Livestock 3
Themes
Major Theme/ Theme (Level 2)/ Theme (Level 3) (%)
Private Sector Development 100
Jobs 100
Finance 2
Finance for Development 2
Agriculture Finance 2
Urban and Rural Development 51
Rural Development 51
Rural Markets 2
Rural Infrastructure and service delivery 47
Land Administration and Management 2
Environment and Natural Resource Management 47
Renewable Natural Resources Asset Management 4
Biodiversity 2
Landscape Management 2
Water Resource Management 43
Water Institutions, Policies and Reform 43
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The World Bank
IN West Bengal Accelerated Development of Minor Irrigation (P105311)
ADM STAFF
Role At Approval At ICR
Regional Vice President: Isabel M. Guerrero Hartwig Schafer
Country Director: N. Roberto Zagha Junaid Kamal Ahmad
Director: John Henry Stein John A. Roome
Practice Manager: Simeon Kacou Ehui Michael Haney
Task Team Leader(s): Joop Stoutjesdijk Anju Gaur, Raj Ganguly
ICR Contributing Author: Yoro Sidibe
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The World Bank
IN West Bengal Accelerated Development of Minor Irrigation (P105311)
I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES
A. CONTEXT AT APPRAISAL
Context
1. In 2011, West Bengal was the fourth most populous state in India with a population of over 91
million people,1 most of whom lived in rural areas.2 About 55 percent of the population derived their
income directly from agriculture.3 Poverty prevailed among small and marginal farmers and tribal groups.4
Tribal groups who are significant in the western region of the State faced recurrent droughts and had
much lower incomes than other groups.5
2. Though West Bengal is richly endowed with surface water and groundwater, its agricultural
performance was spatially varied. The relative abundance of water resources6 masked the wide disparity
in their availability across the diverse agroclimatic zones.7 In large rainfed mono-cropped tracts mainly
located in the western districts,8 agricultural production was constrained by low water storage and
ineffective water management, contributing to pockets of poverty.9 While the possibility of large storage
infrastructure was limited, the potential for developing small-scale storage systems was substantial. By
limiting the variability of irrigation water availability, improved water storage could limit the effect of
climate vagaries, particularly dry spells, provided solutions are tailored to the agroclimatic diversity.
3. Since the 1990s, West Bengal’s response to irrigation development has primarily focused on
infrastructure. Since the 1990s, the interventions of the Government of West Bengal (GoWB) have
emphasized structural measures with less attention paid to nonstructural measures.10 As a result,
irrigation schemes suffered from poor maintenance and the low capacity of irrigation water users.11
However, irrigation had the potential to play a vital role in reducing poverty12 through an increase in crop
1 Population Census of India, 2011.
2 Nearly 70 percent of the population lived in villages.
3 The figure reaches 70 percent when agriculture related sectors are considered.
4 Tribal populations represent about 6 percent of the population of West Bengal.
5 The annual income of Scheduled Tribes in West Bengal was about 50 percent lower than that of other groups. Tribal populations
are considered among marginalized groups. Adhikary, M., and R. Mazumder. 2010. “Income Inequality and Poverty among
Scheduled Castes and Scheduled Tribes in Selected States.” The Indian Journal of Economics XC (358): 997–1010.
6 The state has three major rivers systems, the Ganga, the Brahmaputra, and the Subarnarekha, that account for annual usable
surface water of 58.8 billion cubic meters. Annual renewable groundwater resources in the state is estimated at 27.4 billion cubic
meters. However, water availability varies greatly across both space and time.
7 West Bengal cuts across six agroclimatic zones with specific characteristics. See Saha, A., and C. Sarkar. 2005. “An Assessment
of Climatic Risk Involved in Growing Rainfed Rabi Crops in Different Agroclimatic Zones of West Bengal.” J Agromet 7: 36–43.
8 Refer to Das, A., A. Khan, P. Daspattanayak, S. Chatterjee, and M. I. Hassan. 2016. “Regional Model for Agricultural Imbalances
in West Bengal, India.” Modeling Earth Systems and Environment 2 (2): 58. The paper shows maps with low agricultural intensity
in southern districts due to groundwater salinity.
9 The World Bank’s 2017 publication ‘West Bengal - Poverty, Growth and Inequality’ reports that population below the poverty
line in 2012 in the western districts of Purulia, Bankura, and Jhargram ranged from 26 to 38 percent.
10 Structural measures refer to physical infrastructure development while nonstructural measures refer to capacity strengthening,
institutions, management, and technical assistance.
11 Deloitte. 2017. Study of Existing Minor Irrigation Schemes in West Bengal. 122 p.
12 Jin, S., W. Yu, H. G. Jansen, and R. Muraoka. 2012. The Impact of Irrigation on Agricultural Productivity: Evidence from India
(No. 1007-2016-79777).
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
yields, improvement in cropping intensity, and diversification in favor of higher-value crops. Most
irrigation schemes relied on traditionally designed tube wells operated with inefficient diesel pumps
leading to high operational costs. Adequate infrastructure with community-based irrigation management
was indispensable to support rural growth and improve food security for small and marginal farmers.
4. The rationale for World Bank intervention was threefold. First, the World Bank was well placed
to bring international experience to the project.13 Areas of partnership would include innovations in
planning and design of irrigation infrastructure and enhancing the performance of irrigation investments.
World Bank intervention would ensure sustainability through operation and maintenance (O&M)
arrangements and stakeholder ownership. The Project design incorporated lessons from similar World
Bank-financed projects in Assam and Karnataka.14 Second, a World Bank intervention would ensure better
targeting of poor rural areas through community mobilization and focus on relatively medium- and small-
size works that benefit small and marginal farmers. Third, the project objective was fully aligned with the
World Bank’s Country Strategy. The World Bank Group’s Country Assistance Strategy (CAS) for the
Republic of India, 2009–2012 (Report No. 46509-IN; November 14, 2008) focused, among others, on
development of infrastructure, including water resources, and support for poorer states.15 The project
was also consistent with the World Bank’s water resources strategy16 that recognizes (a) water resources
management and development are central to sustainable growth and poverty reduction, (b) there is a
need to develop and maintain appropriate stocks of well-performing hydraulic infrastructure, and (c)
assistance must be tailored to a country’s context and be consistent with the country strategy.
Theory of Change (Results Chain)
5. Problem statement: Community ownership and management of irrigation schemes are
insufficient; O&M of schemes is poor; irrigated area is insufficient; farmers’ knowledge of new agricultural
technologies is lacking. Underlying assumptions: A1. Communities are willing to participate in water user
associations (WUAs) and follow established guidelines and protocols including pay fees on time and in
full; A2. WUAs successfully maintain new schemes, A3. Damage from natural disasters (droughts, floods)
and pests is minimized; A4. Farmers use knowledge gained through the project to enhance production.
6. Project Development Objective (PDO). The PDO was “to enhance agricultural production of small
and marginal farmers17 in the project area18.” This objective was to be achieved through the development
of minor irrigation (MI) schemes, strengthening of community-based irrigation management, and support
to agricultural development, including provision of agricultural services and use of new technologies,
encouraging crop diversification, and creating income generating opportunities.
13 During implementation, the World Bank also mobilized national expertise.
14 Examples include Assam Agricultural Competitiveness Project (P084792) and Karnataka Community-Based Tank Management
Project (P102328).
15 In 2011, West Bengal gross domestic product per capita was estimated at US$690 much lower than the national average of
US$1,462 according to data from the World Bank and the Planning Commission, Government of India (GoI).
16 The Water Resources Sector Strategy: An Overview – Managing and Developing Water Resources to Reduce Poverty. 2004.
17 Average landholding size for marginal and small farm holders is 0.65 ha to support an average farm family size of five.
18 As stipulated in the Schedule 1 of the Loan Agreement 8090-IN. The PDO in the Loan Agreement is identical to the PDO in the
Project Appraisal Document (PAD).
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
Figure 1. Theory of Change
Higher-level Outcomes
Activities Outputs Lower Outcomes Middle Outcomes
(aspirations)
Support organizations (SOs)
recruited
WUAs formed and trained
Technical assistance for
strengthening Scheme development and
community-based management plans (SDMPs)
irrigation management developed and agreed
Management, operation,
WUAs operational for
and maintenance (MOM)
planning, managing, and
plans developed, budgeted,
sustaining schemes (A1)
with service fees
Agricultural production Rural incomes increased;
New minor surface water enhanced (A3) food security improved
irrigation schemes
Investments for
constructed Area under irrigation
development of irrigation
increased (A2)
schemes New minor groundwater
irrigation schemes
constructed
Farmers trained in crop
diversification Farmers have increased
Technical assistance for knowledge of water
provision of agricultural Farmers trained in new management and
development services agricultural technologies agricultural technologies and
(for example, horticulture, products (A4)
fisheries)
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
Key Expected Outcomes and Outcome Indicators
7. The four original PDO indicators were the following:
• Increase in yield of main agricultural crops
• Operational water user associations created
• Number of female and male water users (defined as member of the WUA) provided with
water delivery services: (i) number of female water users; (ii) number of male water users;
(iii) the percentage of female WUA executive committee members
• Resources generated by user groups to manage, operate, and maintain the developed
schemes.
Components
8. Component A. Strengthening Community-based Institutions (estimated US$8.10 million, actual
US$5.18 million). This component supported the development of WUAs and other farmer organizations
to assume the responsibilities for MOM of minor irrigation schemes and improved irrigated agricultural
practices. This was to be achieved by assisting with their formation and strengthening through various
training and support activities. The Department of Water Resources Investigations and Development
(DWRID) recruited SOs to assist with the formation of WUAs and with training and support during and
after scheme construction. The SOs provided assistance with the preparation, implementation, and
monitoring of brief Scheme Development and Management Plans (SDMPs) to spell out the proposed
developments and responsibilities at each scheme.
9. Component B. Irrigation System Development (estimated US$235.00 million, actual US$110.77
million). To improve availability of water for agriculture and fisheries, about 2,400 new surface flow minor
irrigation systems (command area varying from 5 to 50 ha) and about 2,260 new minor groundwater
irrigation schemes (command area varying from 20 to 36 ha) were to be developed. Development of
individual irrigation scheme followed the preparation of a brief SDMP framed by DWRID with the help of
SOs and in consultation with the users. The total area to be developed under the project was about
139,000 ha, benefiting an estimated 166,000 farm families.
10. Component C. Agriculture Support Services (estimated US$22.10 million, actual US$14.75
million). This component supported the provision of agricultural support services in the project area to
enhance productivity and diversification in agriculture involving improvements in production and water
management technologies for agriculture, horticulture, and fisheries and more efficient and effective
farm advisory services.
11. Component D. Project Management (estimated US$34.80 million, actual US$22.43 million) This
component supported the strengthening of DWRID to ensure effective project management through
State and District Project Management Units (SPMU and DPMU); provision of information management
and social, environmental, and fiduciary management systems; monitoring and evaluation (M&E) and
impact assessment activities.
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE)
Revised PDOs and Outcome Targets
12. The PDO was not revised. The outcome targets were reduced due to a partial cancellation of
US$95 million.
Revised PDO Indicators
13. The outcome indicators at project completion were the following:
• Relative change in value of outputs measured as ratio between post to pre-project values
• Operational water user associations created and/or strengthened
• Water users provided with new/improved irrigation and drainage services
• Water user associations that are generating at least 80% of resources required to manage,
operate and maintain the developed schemes
Table 1. Summary of Revisions Made to the PDO Indicators over the Project Period
Original PDO Revised PDO
End Revised PDO Indicators - End End
Indicators as Given in Indicators -
Target June 2017 Target Target
the PAD November 2017
Increase in yield of Relative change in value of 120 Same indicators 140
main agricultural outputs measured as ratio as previous
crops (MT/ha) between post to pre- restructuring
• Rice 4.2 project values (percentage)
• Oilseeds 0.9
• Vegetable 15.3
Operational water 4,200 Operational water user 1,400 2,000
user associations associations created and/or
created (IDA core strengthened (number)
indicator; measured in
number)
Number of female and 166,000 Water users provided with 63,000 100,000
male water users new /improved irrigation
(defined as member and drainage services
of the WUA) provided (number)
with water delivery
services
Resources generated 90 Water user associations 80 70
by user groups to that are generating at least
manage, operate, and 80% of resources required
maintain the to manage, operate and
developed schemes maintain the developed
(as percentage of schemes (percentage)
required resources)
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
Revised Components
14. The description and content of components and subcomponents were not revised. However, the
estimated costs associated with the components were revised following the cancellation of funds.
Other Changes
15. The project underwent three restructurings:
• First project restructuring (February 2016). This restructuring cancelled loan proceeds of
US$95 million from Loan No. IN-8090 following a request of the Department of Economic
Affairs. The objective of the partial loan cancellation was to adjust the project funding to the
capacity of the project management team and the state institutions. The financing plan was
changed to reflect a total financing package of US$155 million from the World Bank and
US$50 million from the borrower.
• Second project restructuring (June 2017). This restructuring introduced changes to the
Results Framework to align it with the reduced project scope after cancellation. Changes to
the Results Framework (table 1) were not included in the 2016 restructuring as the request
from the GoI did not include such a proposal.
• Third project restructuring (November 2017). This restructuring sought a two-year
extension of the project closing date from December 31, 2017, to December 20, 2019, along
with associated changes to the Results Framework (table 1), disbursement estimates,
implementation schedule, and change in implementing agency. The main rationale of the
restructuring was to provide sufficient time to ensure the completion of ongoing schemes
and ensure the sustainability of the community-level institutions at project completion
taking into account the increased focus on poorest districts. Considering its experience in
building construction, the restructuring introduced the Public Works Department of West
Bengal as one of the implementing agencies for carrying out construction of the
administrative building for the project.
Rationale for Changes and Their Implication on the Original Theory of Change
16. The project became effective in March 2012 and experienced some delays in setting up and
strengthening District Project Management Units (DPMUs) with a dedicated engineering and contracted
multidisciplinary team. This resulted in implementation lags in delivering irrigation schemes to the
farmers.
17. However, the midterm review (MTR) mission (August 2014) undertook an independent
assessment and recommended revising target of a few indicators in view of the time remaining for project
implementation. Changes in the indicators and their targets were justified by the need to simplify the
Result Framework considering the capacity of the state and the reduced financing. The closing date was
extended to allow completion of ongoing activities.
18. The restructurings did not affect the theory of change.
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IN West Bengal Accelerated Development of Minor Irrigation (P105311)
II. OUTCOME
A. RELEVANCE OF PDOs
Assessment of Relevance of PDOs and Rating
Rating: High
19. The PDO remained relevant through completion. It remained fully consistent with the current
World Bank’s Country Partnership Framework (FY18–FY22)19 for India at closing. The PDO was well aligned
with focus areas ‘Resource Efficient Growth’ and ‘Enhancing Competitiveness and Enabling Job Creation’.
Under the focus area ‘Resource Efficiency Growth’, the project contributed to “Promote more resource-
efficient, inclusive and diversified growth in rural sector” by enhancing agricultural productivity and
supporting diversification of income sources through various income-generating activities including
horticulture and aquaculture. The project also ensured inclusiveness by targeting women, poor, and tribal
communities. It promoted the efficient use of water resources through multiple channels: (a) different
productive activities undertaken in conjunction with the same water resources resulting in more value
per volume (example: irrigation and aquaculture carried out in the same ponds); (b) promotion of water-
efficient technologies and management systems including drip, sprinkler, and system of rice
intensification; (c) formation and trainings of WUAs in advanced water management approaches including
water resources assessment and irrigation water budgeting; (d) promotion of less water-intensive and
high-value horticultural crops in the project areas.
20. Under the focus area ‘Enhancing Competitiveness and Enabling Job Creation’, the project
contributed to “Increase access to market-relevant skill development” by emphasizing market-driven
agricultural diversification and generated good practices and innovations that are now being
institutionalized by the state. Good practices and innovations included SMS-based advisory systems to
enable access to day-to-day market information, especially crop prices and WUA-to-WUA services. The
project is also aligned with the National Agricultural Policy (2000) that promotes increase in agricultural
production.
B. ACHIEVEMENT OF PDOs (EFFICACY)
Assessment of Achievement of Each Objective/Outcome
21. The PDO is to enhance agricultural production of small and marginal farmers in the project area.
The PDO was achieved through development of minor irrigation (MI) schemes, strengthening community-
based irrigation management, and support to agricultural development, including provision of agricultural
services, encouraging crop diversification and use of new technologies, and creating income generating
opportunities. Overall, the project achieved both the qualitative and quantitative dimensions of the PDO.
Due to the project’s reduced scope after the first two restructurings, a split assessment was conducted to
obtain the final outcome rating. The project attained or exceeded most of its revised PDO indicator targets
and most intermediate indicator targets by the project closing date. Further, clear causal links exist
19 Report No.126667-IN
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between project outputs, intermediate outcomes, and PDO-level indicators and outcomes as described in
annex 1.
22. Overall, the project reached 124,700 beneficiaries, out of whom 111,203 (89 percent) are small
and marginal farmers and sharecroppers, exceeding the target of 100,000 set in the November 2017
restructuring. The number of beneficiaries is derived primarily from irrigation and drainage (I&D) services
and support to agriculture, horticulture, and fisheries services. Other beneficiaries enjoyed benefits
generated from orchard-related activities. The achievement of project outcomes can be imputed to the
adoption of various innovative approaches including (a) tailored solutions that were responsive to
agroclimatic constraints and farmer demands in community contexts, (b) extensive use of GIS and remote
sensing during planning and scheme siting for better targeting and monitoring, and (c) adoption of an
adequate mix of structural and nonstructural solutions to maximize project benefits. Four outcome
indicators, introduced in the third restructuring, are reviewed regarding achievement of the PDO. The
original indicators are also briefly discussed in table 4.
Table 2. Project Beneficiaries: Changes and Achievements
Parameter Original - September 2011 Restructuring - November 2017 Achievement
Number of WUAs 4,200 2,000 2,277
Command area (ha) 139,000 75,000 67,594
Beneficiaries 166,000 100,000 111,20320
Strengthening Community-based Irrigation Management
Outcome Indicator 1: Operational water user associations created and/or strengthened
• Operational water user associations created and/or strengthened (number). Achieved 2,277 (114
percent of revised target value and 54 percent of original target value)
23. WUAs are organizations created to bring together farmers for managing a shared irrigation system
by collectively performing O&M.21 The project supported the creation and/or strengthening of 2,277
operational WUAs throughout the project area to carry out O&M of irrigation infrastructure. This result
represents 114 percent of the revised target value of 2,000 and 54 percent of the original target value. In
the restructuring of 2017, the WUAs were merged to serve different strategic purposes. Fewer but larger
WUAs in terms of membership, compared to the original target value (4,200 WUAs), were deemed more
appropriate to foster economies of scale and to reduce the transaction costs that additional WUAs may
induce. The number of WUAs created is adequate to guarantee the functionality of irrigation schemes. In
fact, more than 50 percent of the WUAs have been operational for more than three years and have
performed well in managing delivery of irrigation water to their members. Some WUAs have advanced to
agribusiness-based activities, and mature WUAs are training new WUAs or providing them with
agricultural inputs. Further, more than 73 percent of the WUAs (against a revised target value of 70
20 Out of the 2,277 WUAs formed, 1,657 were formally handed over and fully operating by project completion. The remaining
WUAs are being handed over and the process is expected to be finalized by December 2020. Beneficiaries include the number
of farmers benefiting from the completed minor irrigation schemes. The total number of beneficiaries who are benefiting from
training and technical support under agriculture support services is 124,700.
21 As irrigation water and infrastructure are public goods, collective action of WUAs enables economies of scale and economies
of scope. Lopez-Gunn, E. 2003. “The Role of Collective Action in Water Governance: A Comparative Study of Ground water User
Associations in La Mancha aquifers in Spain.” Water International 28 (3): 367–378.
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percent) are currently generating at least 80 percent of resources required to manage, operate, and
maintain the developed schemes.22
24. These results were achieved through proactive community mobilization and engagement with
intensive participatory methods starting from identification stages. Involving local populations during the
first stages of community-level interventions boosted ownership and commitment to project
sustainability, leading to improved propensity to contribute financially to O&M.23 Community
participation was catalyzed by SOs that were both internationally and locally recruited nongovernmental
organizations (NGOs) familiar with communities and their cultural context. The SOs played a crucial role
in fueling communities’ engagement in irrigation solution design from inception to completion. The
formation of WUAs combined with other support activities, including the provision of technical assistance
at grassroots level, created tangible added value.
25. To strengthen implementation of subprojects, the project identified small and marginal farmers
who had successfully implemented irrigation services in their own villages as community service providers
(CSPs). Some 288 CSPs were appointed in 18 districts.24 The outcome of this process is illustrated through
an assessment by the International Water Management Institute (IWMI) demonstrating that the project
generated an incremental median income of US$319 per ha compared to a counterfactual government
scheme where capacity building of WUAs and scheme development were different.25 The project also
introduced an innovative WUA performance management system which involves ratings based on
different sets of criteria (governance, representativity, adoption of appropriate water and agricultural
management practices, creativity). The performance system created an additional incentive that is
fostering continuous improvement. The project developed guidelines for the development of community-
based institutions that are now adopted throughout the Water Department. Demonstration activities,
farm schools, networking, and interactions among WUAs promoted under the project enabled farmers to
evolve in an upward spiral of learning and innovation, ultimately resulting in benefits in agriculture and
fishery-based activities (table 3). Agricultural support services contributed to set up more than 20,000
small-scale demonstrations to promote crop diversification and adoption of new technologies.
Considering the sense of ownership of project assets among communities and strong commitment to
pursue productive endeavors, the activities of the WUAs are likely to be sustainable.26 The WUAs created
are inclusive organizations on three counts, as planned: (a) women membership exceeded target, (b) tribal
farmers were brought in, which also exceeded target, and (c) the majority of members (about 90 percent)
are small and marginal farmers.
Table 3. Number of WUAs Performing Activities Beyond O&M of Schemes
Agency Activities Number of WUAs
Executing agency Training, workshop, and exposure visits 1225
22 This indicator was added to the Results Framework during restructuring and had no original target value.
23 Socioeconomic impact of WUA including the contribution to O&M is evinced by an in-depth socioeconomic study carried out
by the Institute of Rural Management Anand (IRMA).
24 CSPs had the advantage of being highly trusted by communities as they belong there and have set examples through their
successful adoption of novel irrigation practices.
25 Refer to the IWMI report ‘WBADMI Project Rapid Impact Assessment Report’. See also annex 3.
26 The project was awarded the 2018–2019 UNESCO-supported Water Digest Award for ‘Best Community Project of The Year in
Water Sector - Government’.
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Agency Activities Number of WUAs
Entrepreneur Raising fingerling, seedlings, vermicomposting, 161
and so on, for other WUAs
Resource organization Newly formed WUAs are visiting lighthouse 233
WUAs to understand the WUA ecosystem
Social institution Response to others in distress/disaster, 1021
Celebration of important international days e.g.
Environment Day, Women's Day, Independence
Day
Campaign on social causes
Investments for Development of Irrigation Schemes
Outcome Indicator 2: Relative change in value of outputs measured as ratio between post to pre-project
values (introduced in 2017 restructuring).
• Relative change in value of outputs measured as ratio between post to pre-project values
(percentage). Achieved 282 percent (201 percent of revised target value of 140 percent).
26. The increase in the value of agricultural production in project areas as reflected by the ratio
between post-project and pre-project values attained 282 percent against the target of 140 percent.
Increase in agricultural production value was achieved through multiple pathways including: (a) an
increase in the area provided with new I&D services (67,594 ha against a revised target value of 75,000
ha); (b) an increase in water harnessed with new and improved irrigation services; and (c) an increase in
cropping intensity in the project area, reaching 192 percent against a target value of 170 percent. All major
crops experienced a substantial increase in production, achieving their target values, except for rice.
However, the production of rice is more than compensated by the additional value created by other less
water-intensive crops including oilseed, pulses, and other vegetables. Additionally, as more schemes are
delivered, the target value for rice production is expected to be achieved during the next kharif season,
by November 2020, which is favorable for rice farming.
27. The project enhanced access to irrigation water by supporting the development of different types
of water retention infrastructure in diverse terrains of the state, ranging from coastal lands to hilly areas
(annex 7). The water harvesting structures installed by the project included ponds, check dams, and
excavated creeks. The nature and design of the infrastructure were tailored to the agroecological
conditions and topography of the terrain to limit costs and boost benefits. For example, the project
exploited natural creeks in the southern coastal lands of the state and spring rejuvenation in the northern
hills. Concurrently implemented with structural measures, the project’s nonstructural measures provided
comprehensive support to the value chains which proved critical. Mobile SMS-based crop advisory
services facilitated through Reuters Market Light provided an innovative decision support system to
farmers from pre-sowing to marketing stages. The provision of agricultural services in the form of
improved seeds, access to mechanization, and access to markets boosted production beyond initial
expectations.27
27Mobile SMS-based crop advisory services facilitated through Reuters Market Light provided an innovative decision support
system to farmers from pre-sowing to marketing stages. Different technologies (drip irrigation, greenhouses, sprinklers) were
demonstrated on more than 6,000 ha.
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Outcome Indicator 3: Water users provided with new/improved irrigation and drainage services
• Water users provided with new/improved irrigation and drainage services (number). Achieved
111,203 (107 percent of the revised target value and 67 percent of the original target value).
28. The number of water users provided with new/improved I&D services stood at 111,203 by project
closing (representing 107 percent of the revised target value and 67 percent of the original target value).
This result was achieved through the development of 2,291 irrigation schemes and the formation of 2,277
adequately trained WUAs to manage them. Additionally, the project supported social inclusion by
ensuring representation of marginalized groups among beneficiaries. For example, the number of female
water users at closing stood at 17,099 against a target value of 12,000 (representing 142 percent of the
target value) and tribal farmers represented 12 percent of water users almost achieving its target value
of 13 percent. This outcome was achieved through the development of 67,594 ha of irrigated land with
2,328 schemes. The provision of improved irrigation services because of well-trained WUAs enhanced the
reliability of irrigation water. With more reliable irrigation water, an increasing number of farmers were
satisfied with project infrastructure and diversified high-value crops which stimulated additional income
generation.
29. The project brought about significant positive changes to siting, designing, implementing, and
monitoring minor irrigation infrastructure. The changes were supported by several outputs including (a)
updated guidelines for the construction of various types of schemes (tube wells, water detention
structures, check dams) and (b) innovative digital technologies and online tools for designing schemes
adapted to topographic conditions (annex 7). The innovative model emerging from the project led to (a)
low proportion of failed schemes, (b) targeting investments to most vulnerable farmers, (c) improved
sustainability of structures, (d) reliable service levels, and (e) better manageability and reduced cost of
operations. On the use of energy, the schemes delivered by the project for the first time in the state
replaced the costly option of diesel and the most unreliable option of electricity with solar power. Yet
another noteworthy aspect of the irrigation system development is the involvement of prospective user
farmers up front in the participatory planning process and preparation of SDMP. The immediate impact
of this has been ownership of the schemes by the farmers. Consequently, the schemes delivered under
the project were farmer friendly and supportive of their livelihood.
Support to Agricultural Development
Outcome Indicator 4: Water user associations that are generating at least 80% of resources required to
manage, operate and maintain the developed schemes
• The end target for WUAs that were generating at least 80% of resources required to manage,
operate and maintain the developed schemes. Achieved 73 percent (104 percent of the target
values).
30. WUAs that are generating at least 80 percent of resources required to manage, operate, and
maintain the developed schemes reached 73 percent against a target value of 70 percent indicating a
high level of involvement of project beneficiaries in sustaining their activities and the project assets. This
result was achieved because of the mobilization of communities who participated in particular aspects of
project design and the elaboration of SDMP. The mobilization of communities was supported by the
project through the recruitment of SOs (NGOs) that are highly familiar with communities and command
trust.
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31. The project was able to deliver affordable irrigation services through adoption of a series of design
and technical improvements. Adoption of energy generating devices including solar systems instead of
classic diesel option substantially reduced operational costs. Overall, scheme performance turned out to
be the right incentive for the farmers to pay for irrigation services. The WUA institutional mechanism,
irrigation scheduling, and crop planning helped equitable distribution of water resources. The project also
provided guidelines and trained WUA members on the norms and standards of computation of water
charges. Above all, the schemes delivered by the project are in areas where there existed unmet demand
for irrigation water. The changes brought about through the provision of the service included favorable
changes in the cropping patterns, increase in cropping intensity, and better price realization which
together enhanced the payment capacity of the users.
32. Agricultural support activities that helped introduce farmers to new technologies and new
adapted crops also played a crucial role in building confidence and ownership. More than 80 percent of
WUA members expressed their satisfaction with schemes developed under the project according to a
satisfaction survey. From an economic perspective, the outcome also stems from improved income that
beneficiaries are able to derive from irrigated schemes as explained under the efficiency section.
Table 4. Achievement Compared to Targets for Original and Revised PDO Indicators
Original PDO End Actual % End Actual %
Revised PDO Indicators
Indicators Target values Achieved Target values Achieved
Increase in Relative change in 140 282 201
yield of main value of outputs
agricultural measured as ratio
crops (MT/ha) between post to pre-
project values
(percentage)
Increase in production
(metric tons/year)
• Rice 4.2 4.3 102 • Rice 95,000 85,696 90
• Oilseeds 0.9 1.4a 156 • Oilseeds 8,800 14,406 164
• Vegetable 15.3 14.6a 95 • Pulses 2,500 2,970 119
Operational 4,200 2,277 54 Operational WUAs 2,000 2,277 114
WUAs created created and/or
strengthened (number)
Number of 166,000 106,963 64 Water users provided 100,000 111,203 107
female and with new/improved
male water irrigation and drainage
users (defined services (number)
as member of
the WUA)
provided with
water delivery
services
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Original PDO End Actual % End Actual %
Revised PDO Indicators
Indicators Target values Achieved Target values Achieved
Resources 90 62a 69 Water user 70 73 104
generated by associations that are
user groups to generating at least 80%
manage, of resources required
operate, and to manage, operate
maintain the and maintain the
developed developed schemes
schemes (as (percentage)
percentage of
required
resources)
Note: a. The project formally tracked these indicators until June 2017. The figures represent the actual values in June 2017.
Project Management
33. The project established a State Project Management Unit (SPMU) and a DPMU in each district. By
project completion, the project had strengthened the capacity of DWRID to ensure effective project
management through an SPMU and DPMUs. The project also supported SO staff to be better prepared to
achieve their mission of mobilizing communities. Table 5 shows actual values for indicators of project
management and capacity.
Table 5. Status of Staff in SPMU and DPMU
Project Management Actual Target
Number of DPMUs established 18 18
Number of workshops organized 107 72
Number of project staff trained in project activities 725 500
Justification of Overall Efficacy Rating
34. As the project was reduced in scope in the June 2017 restructuring, a split evaluation is used. At
the time of the second restructuring, the original project had disbursed US$72.95 million or 55.8 percent
of the final total disbursement and the revised project had disbursed US$57.84 million or 44.22 percent
of the total. The performance of the project evaluated against the original targets is ‘modest’ and against
the revised targets is ‘substantial’. (see table 6)
C. EFFICIENCY
Assessment of Efficiency and Rating
Rating: Substantial
35. At appraisal, an ex-ante economic and financial analysis was conducted to assess the economic
and financial performance of the project. The analysis encompassed all the key components of the project.
The ex post analysis followed a similar approach at completion (see annex 4).
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36. The project achieved benefits through various channels including (a) increase in irrigated areas,
(b) increase in yield of crops, (c) increase in cropping intensity, (d) diversification of crops, and (e) increase
in fish production. The project generated an incremental value estimated at US$1,077 per ha. The
economic analysis shows that the overall project was economically justified with an economic internal
rate of return (EIRR) of 22.8 percent (against an appraisal projection of 25.1 percent and a restructuring
projection of 12 percent) and an economic net present value (ENPV) of US$52.7 million (against an
appraisal projection of US$117.4 million and a restructuring estimate of US$13.8 million) with a 10 percent
discount rate. The financial results at completion show a financial internal rate of return (FIRR) of 20.5
percent and a financial net present value (FNPV) of US$46.8 million with a discount rate of 10 percent.
The sensitivity analysis confirms the robustness of these results. Results at completion are comparable
with projections at appraisal and much higher than projections at restructuring. The appraisal analysis had
showed that a two-year delay in project benefits will reduce the economic rate of return to 23.2 percent,
close to what is observed at completion - 22.8 percent. This economic and financial performance is the
result of improved design of irrigation structures, efficient procurement, and the active involvement of
beneficiaries. Details of the analysis are provided in annex 4 on efficiency analysis.
37. Implementation efficiency. The project experienced various capacity challenges (section III)
which resulted in slow implementation, particularly in processing procurement and financial reporting.
This ultimately led to a reduction in the project scope. The project was also extended by over 23 months
to allow the completion of planned activities.28 At closing, the project disbursed most of the allocated
funds.29 Further, sensitivity analysis proved that the extension of the closing date did not have a significant
impact on the economic performance of the project as the extension enabled the project to consolidate
the capacity of several community-based institutions. At appraisal, the cost per beneficiary was estimated
at INR 98,801 (INR 118,077 per ha). At completion, current estimates show a cost per beneficiary of INR
68,491 (INR 108,109 per ha). The result indicates greater value for money.
38. By mainstreaming a consistent approach to irrigation planning and development after the MTR,
and by adopting an adequate suite of technologies, the project improved administrative efficiency and
reduced management costs. Remote sensing technology proved to be a low-cost and effective alternative
considering the vast geographical spread of the project activities. Finally, the project procured competent
consultants and scaled up capacity building resulting in more efficient processes as teams acquired
increasing experience. The improvement in processes is well illustrated by the fact that the time between
work order and handing-over of schemes was reduced from an average of 494 days for Batch 1 to an
average of 105 days for Batch V.
D. JUSTIFICATION OF OVERALL OUTCOME RATING
Rating: Moderately Satisfactory
28 The costs of project management represented about 14 percent of total project costs. Although this value is on the high side,
it is important to note that the component on project management included more activities than other projects. It included
capacity building for the whole Water Department that includes more than 600 staff.
29 Undisbursed amount of about US$9.8 million was because of technical difficulties to file financial records due to COVID-19.
This is explained in annex 3.
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Table 6. Split Evaluation
Against Revised PDO
Against Original PDO Targets
Targets
Relevance of objective High
Efficiency Substantial
Efficacy Modest Substantial
Outcome ratings Moderately Unsatisfactory Satisfactory
Numerical value of the outcome ratings 3 5
Disbursement US$72.95 million US$57.84 million
Weight (% disbursed before/after change) 55.78 percent 44.22 percent
(US$72.95/US$130.79)
Weighted value of the outcome rating 1.67 2.21
Final outcome rating Moderately Satisfactory
(1.67 + 2.21 = 3.88 rounding to 4.0)30
E. OTHER OUTCOMES AND IMPACTS (IF ANY)
Gender
39. The project created gender awareness through targeted trainings, by encouraging female plot
holders to take up WUA committee positions and by promoting the inclusion of women in the running of
WUAs. On average, in the project schemes, females represented 16 percent of project beneficiaries, 15
percent of WUA members, and 25 percent of managing committee members. Compared to the control
schemes developed under state government irrigation programs, the previous figures on gender
composition fall respectively to 2 percent for beneficiaries, 2 percent for WUA membership, and 0 percent
for managing committee membership.31 Planned and effective interventions with focus on gender helped
bring female farmers to the forefront. The economic independence of women also resulted in improving
their overall decision-making power.32
40. These results were achieved through gender-based actions intently involving women in irrigation
and fisheries development activities. Forty WUAs are all women members estimated at 2,080. Nearly
18,500 women participated in various agricultural support services activities including 9,070 in agriculture
demonstrations, 5,937 in horticulture demonstrations, and 3,440 in fisheries demonstrations.
Institutional Strengthening
41. Component A was dedicated to strengthening community-based institutions. The project helped
form more than 2,270 WUAs. Owing to community mobilization and engagement, WUA members were
trained to plan, supervise, manage, operate, and maintain irrigation schemes. The agricultural support
activities combined with capacity building for nonagricultural activities increased the scope for economic
diversification. The activities undertaken by WUAs have further strengthened members’ commitment to
30 Actual reduction in ambition of the project took place when the project had disbursed only US$38.09 million.
31 The reader may refer to the socioeconomic study conducted by IRMA.
32 Rapid Impact Assessment Report, 2019.
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pursue productive endeavors. Further, several WUAs and fisheries associations have been able to develop
innovative business models including WUA-to-WUA services and lucrative recreational angling.
42. Capacity building of irrigation institutions progressed considerably during implementation. The
intensity of training activities increased to match the growing need for specialized skills in horticulture,
agriculture, fisheries, and monitoring. Trainings were delivered to divisional DWRID staff, including
divisional accountants, on the business processes and financial reporting requirements. The project also
supported training for DPMU and SO staff on topics including environmental due diligence and use of GIS-
based planning. Long-term institutional outcomes encompass the following:
• Creation of well-trained community-based institutions likely to sustain activities
• Introduction of advanced WUA management and governance systems combined with
performance improvement mechanism
• A substantial number of institutional staff have appropriated modern I&D planning and
development approaches that can now be mainstreamed into state government programs
• State-level experience in implementing complex community-level I&D project likely to
facilitate new projects
• State-level experience in advanced M&E techniques using a combination of management
information system MIS/GIS and remote sensing tools such as Google Earth Engine to assess
land use change on near real time basis.
Mobilizing Private Sector Financing
43. The project did not involve mobilizing World Bank guarantees. However, it promoted private
sector partnerships with farming communities through different approaches explained in paragraph 44.
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Support to Market Creation
44. To provide agriculture support services, the project tapped into the vast potential of private
sector-driven modern technologies to facilitate access by farmers. Specific benefits for farmers included
links to distribution networks, capacity building, and introduction to new practices. In remote areas, the
input distribution network was largely absent or weak; the project presented this ‘market creation’
opportunity with few lead private companies active in West Bengal. As the newly irrigated areas and the
smallholders mobilized in WUAs offered opportunities to create new market opportunities, national and
international agro-marketing companies expressed interest in working with the project. While the project
facilitated links of these companies with WUAs, the companies supplied demonstration kits and arranged
training programs and field visits at their own cost. This approach helped demonstrate improved practices
and triggered accelerated adoption of new technologies including the use of hybrid rice seeds at 102
locations in eight districts and use of small greenhouses for the cultivation of exotic vegetables.
International private companies contributed to building capacity of small farmers, technology transfer,
and post-project sustainability through continuous supply of seeds and planting material and access to
market. The partnership with private companies also facilitated market links with companies that
purchased the high-value vegetables from the farmgate at remunerative prices.
Poverty Reduction and Shared Prosperity
45. Although there was no direct assessment of the impact of the project on poverty because of the
lack of recent data, analysis of survey data indicates significant improvement of agricultural income in
project areas compared to comparable control areas. The project investment likely contributed to
significant reduction in poverty. For project beneficiaries, the average monthly per capita agricultural
incomes were INR 503 and INR 1,879, respectively, before and after the project, representing an increase
of 273 percent in incomes. For the control farmers, selected in the same villages and who did not directly
benefit from Accelerated Development of Minor Irrigation (ADMI) schemes but potentially benefited from
spillovers from the project, the average monthly per capita incomes were INR 928 and INR 1,684,
respectively, before and after the project, representing an increase of 81 percent -- much lower than
increase in incomes for ADMI beneficiaries. This result suggests a larger increase in income among project
beneficiaries. Further, the project successfully targeted poor and marginal communities mainly in the
western districts of Bankura, Birbhum, Bardhaman, Purulia, Paschim Medinipur, and Jhargram which
accounted for 26 percent of the schemes at the time of appraisal. At the time of restructuring, there was
a radical shift in focus toward these districts with almost 60 percent of all schemes planned to be located
in these six districts. These districts represent some of the poorest districts of the state. Considering the
strong associations between improvement of agricultural income and poverty reduction, the project likely
contributed to poverty reduction in vulnerable communities of West Bengal.33
Other Unintended Outcomes and Impacts
45. The project facilitated the generation of socioeconomic and sociocultural impacts that span
beyond outcomes captured by the project’s Result Framework. With improved access to water and
diversification of activities, anecdotal evidence suggests that the overall resilience of socioecological
33De Janvry, A., and E. Sadoulet. 2010. “Agricultural Growth and Poverty Reduction: Additional Evidence.” The World Bank
Research Observer 25 (1): 1–20.
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systems increased. The wide range of vegetables, pulses, and fisheries contributed to increased access to
diet diversity not only to direct beneficiaries but also to other villagers in the western districts.34
Additionally, innovative models have emerged among fishery communities including fee-based
recreational angling targeting urban dwellers. The project contributed to improve the self-confidence of
communities who are now more inclined to engage in innovative undertakings. Emerging impacts include
improved nutrition and education for children because families can afford school fees. Almost 82 percent
of the members reported that, after the introduction of Accelerated Development of Minor Irrigation
Project (ADMIP), their income improved which discouraged migration among their family members.35
Additionally, case studies in selected villages indicate increased expenditures on their children’s education
as reflected by improved school supplies and greater roles for private tutors.
III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME
A. KEY FACTORS DURING PREPARATION
46. The overall project concept integrated structural measures (irrigation system development) and
innovative non-structural solutions (institutional strengthening and agricultural support services).
Structural measures would focus on the development of new minor surface water and groundwater
irrigation schemes to promote irrigation services for small and marginal farmers. Non-structural measures
would form, train, and operationalize community-based organizations for water management and provide
farmers support for increasing production of agriculture, horticulture, and fisheries. The agriculture
support would help improve productivity through large-scale adoption of improved crop husbandry and
water management practices. This was the first project in West Bengal bringing together three line
departments—Department of Agriculture, Food Processing Industries, and Horticulture and Fisheries—to
work closely with DWRID. Moreover, the engineering department was now expected to work with the
communities.
47. The project design incorporated relevant lessons from previous projects. Successful factors
identified under other pertinent projects were reflected in the ADMIP design. Lessons included WUA
empowerment, meaningful community participation, strong agricultural support services, concurrent and
independent evaluation, and implementation arrangements built on multilevel Project Management
Units (PMUs).36 Based on international experience, the project integrated other broader lessons from
operations elsewhere including the design and establishment of a project-specific MIS.
48. Introduction of new concepts and approaches. The project design proposed new approaches on
multiple fronts. At the community level, the design introduced farm advisory services, efficient
technologies including drip and sprinkler systems, and crop diversification. WUAs would be constituted
and trained. Further, a performance management mechanism would be implemented to pave the way for
water management excellence. Water storage solutions would be diversified and adapted to various
34 A case study in Purulia shows an improvement of fish production from 350 kg/ha to 2,805 kg/ha due at least in part to trainings
in aquaculture (removal of weeds, supplementary feeding, health care, and harvesting). Bose, M. 2017. Accelerating
Advancement of Irrigation to Agricultural Technology Adoption of Small Farmers in West Bengal, India . 71p.
35 IRMA report.
36 Key projects considered included Assam Agricultural Competitiveness Project (Credit No. 4013-IN), Karnataka Community-
Based Tank Management Project (Credit No. 3635-IN), and Maharashtra Water Sector Improvement Project (Loan No. 4796-IN).
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agroecological realities throughout the state. Similarly, support services would be demand driven and
tailored to the community context with emphasis on gender aspects. Further, the project would promote
in-built sustainability through the development and implementation of SDMPs. At the department and
agencies, the project would progressively build capacity for integrated project management.
49. Implementation capacity of implementation agencies. While the project design incorporated
several advanced concepts for community-level irrigation management, in hindsight, the capacity
assessment appears to be overly optimistic. The identification of capacity gaps and mitigation measures
for such a complex project is crucial during preparation. As the proposed community-based approach to
irrigation development was innovative and a first of its kind in the water management landscape of the
state, DWRID lacked the specific expertise needed to operationalize the proposed concepts. Further, the
World Bank reengaged with the state and DWRID after almost two decades, so concerned institutions had
only limited familiarity with procedures and policies.37 Finally, the large geographical spread over several
districts made coordination and monitoring a challenge.38 This capacity gap resulted in a sluggish project
start and contributed to the decision to restructure the project to reduce its ambition.
50. Delays in environmental assessment (EA). EA experienced delays especially due to modifications
introduced into the project initial designs to meet the requirements of the World Bank’s Operational
Policy on International Waterways as a large number of schemes were located on international rivers. The
project design consciously (a) avoided groundwater schemes in the coastal saline belt areas adjoining
neighboring countries and (b) exploited only unconfined aquifers for minor irrigation schemes. The project
also had to substantially limit schemes in Atrai and Sankosh Rivers where the possible incremental
abstraction for the project could be around 15 percent. Different steps needed for rigorous assessment
to ascertain that the project complied with OP 7.50 took much more time than expected.39
51. Results Framework and monitoring. The PDO was stated clearly and was realistic. The different
project components contributed directly to the achievement of the PDO through infrastructure,
institutions, and capacity building as shown in the theory of change (figure 1). Overall, the Results
Framework was sound. A multidisciplinary team maintained constant dialogue with the state counterparts
during the four years of project preparation and provided support to the main project agencies on
technical, environmental, social, fiduciary, and economic aspects until appraisal. The SPMU would have
overall responsibility for planning and coordinating M&E activities while coordinating with DPMU and SOs.
Beneficiaries would also play an active role and that process would be facilitated by SOs.
52. Identification of risks and adequacy of mitigation measures. Critical risks were identified, and
corresponding mitigation measures were integrated into the project design. After accounting for
mitigation measures, overall residual risk was rated Moderate.40 Only the risk that MOM of schemes
would suffer because of inadequate irrigation service fees collections was rated Substantial; other risks
were rated Moderate. This risk would be mitigated through awareness and training sessions and
37 The previous minor irrigation project financed by the World Bank was completed in 1994 (Credit 1619-IN).
38 The project covered up to 18 out of the 19 districts of the state.
39 Assessment required the following information for each river crossing over to Bangladesh: (a) sub-basin flow (annual average
flow and lean flow) and current use estimates; (b) expected additional storage for the project (volume, proportion to average,
and lean flow); and (c) map of confined and unconfined aquifers in the state.
40 In hindsight, because of risks related to Water Department capacity, a risk rating ‘Substantial’ would have been more
appropriate.
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interventions that enhance irrigated agricultural production and hence strengthen incentive to pay
irrigation service fees. However, low capacity of implementing agencies should have been identified as a
substantial risk with more substantive mitigation measures put in place.
B. KEY FACTORS DURING IMPLEMENTATION
53. Challenges in human resources and organizational capacity. The project experienced slow
implementation in its first 43 months.41 The project suffered from delays in setting up and strengthening
DPMUs with dedicated engineering and contracted multidisciplinary team. The recruitment of
multidisciplinary teams was delayed due to difficulties in selecting a firm for recruitment of staff.42
Additionally, because of lack of transport provisions, and scattered schemes during Batch 1, NGOs were
unable to travel to all the schemes and devote time in preparation of SDMPs which affected the quality
and the timeliness of their outputs. Remedial measures included shift from scattered to clustered
approach, and frequent training of trainers and community workers. However, the problem of lack of a
dedicated team in the field and retention of staff persisted until 2014, over two years after Board
approval, and resulted in significant implementation lags.
54. Slow disbursement during initial period. Though the SPMU moved quickly with the identification
of the first batch of schemes, the delay in approval procedures for bids and recruitment of management
consultancies for the SPMU and DPMU resulted in delays in scheme implementation. Additionally,
shortage of contractors due to additional programs initiated by the state in focus districts and
unfamiliarity with Bank procurement bidding process delayed the implementation of scheme
construction. Slow implementation translated into slow disbursement that persisted through the MTR.43
55. MTR and incremental implementation improvements. Considering the slow pace of
implementation, an early MTR was undertaken in August 2014 to restructure the project and get it back
on track. MTR assessment confirmed that the PDO continued to be relevant and achievable. However, the
project was restructured with a cancellation of funds and a downscaling to focus on activities that would
optimize achievement of the PDO. The cancellation of funds took place in the context of a larger portfolio
clean-up effort that was led by the CMU and the Ministry of Finance, in consultation with the states. This
complex process, which entailed iterative negotiations between the national and sub-national
governments, required time to decide post-cancellation modalities. In the case of this project, the
Government of West Bengal was reluctant to surrender funds until it received confirmation from the
Ministry of Finance of GOI’s willingness to support a future project in the irrigation sector44. The
subsequent turnaround of the project is the result of series of incremental changes whose effects started
to enhance implementation progress in 2016 as explained in the following paragraphs.
56. Shift of focus areas and customization of activities. To improve the project development impact,
a major decision pertained to the shift of focus area to five drought-prone western districts, emphasis on
storage structures including check dams, and increased scope of agricultural support services especially
horticulture and fisheries (section II). The project increasingly prioritized investment in surface water
41 Implementation progress was rated Moderately Unsatisfactory or Unsatisfactory from November 2013 to December 2015.
42 As only few firms qualified for recruitment of staff in the state, the procurement method was adjusted from Quality and Cost-
Based Selection to Quality-Based Selection. This change was implemented after a first round of bids leading to delays.
43 At MTR, the disbursement was at 6 percent.
44 West Bengal Major Irrigation and Flood Management Project (P162679).
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storage instead of lift irrigation interventions that have been customized with increased focus on five
underdeveloped districts in western part of state with predominantly rainfed agriculture.45 This shift
improved the focus on marginal and vulnerable beneficiary communities for better development impacts.
The project also advanced the customization of irrigation solutions adapted to different agroclimatic, soil,
and hydrogeological conditions to ensure technical sustainability of the irrigation infrastructure services.46
57. Shift from scattered implementation to cluster-based approach. To facilitate logistical
arrangements and better provide effective multidisciplinary support, the project opted for a more
efficient selection process based on clusters of selected blocks and villages in each district. Modern survey
and design techniques were used to make schemes more cost-effective and with improved success rate.47
The updated approach focused on all aspects including location, design, construction technique, and
monitoring during and post construction. These changes made schemes more socio-environmentally
viable and reduced the cost by more than 30 percent.48
58. Shift from DPR to SDMP. The project made a shift from preparing traditional Detailed Project
Reports (DPR), which often ignored site-specific suitability of schemes, to preparing more comprehensive
and site-specific SDMP with socially, environmentally, and technically viable solutions documented
through meaningful consultation and active involvement of beneficiaries. The SPMU was strengthened
with a consultancy firm to support the specifications for scheme development and monitoring through
high-quality SDMPs. Modern survey and design techniques were used to make schemes more cost-
effective and with improved success rate.49
59. Introduction of modern technology. The use of modern GIS and remote sensing technology
played a critical role in project implementation. The project introduced various types of new information
and communication technologies (NICT) at different levels. Remote sensing combined with tools such as
Google Earth Engine allowed the project to locate appropriate areas for scheme implementation
considering water availability, topography, and sociodemographic characteristics of populations. The real
time tracking of cropping pattern and moisture content in command areas guided agricultural support
services. The project introduced annual performance grading of schemes based on this technology. It also
allowed advanced customization of scheme design to fit the diverse agroclimatic conditions of the state.
The online geographically targeted MIS proved to be a powerful tool for project monitoring. Finally, SMS-
based advisory services allowed the project to reach the most remote farming communities.50
60. Consolidation of achievements. During the last two years of implementation, decisive action
helped solve bottlenecks from earlier phases. The well-oiled planning mechanism developed in the early
years helped expedite the selection of subsequent batches of irrigation schemes. Additional SOs were
45 The five focused districts in West Bengal are Purulia, Bankura, Bardhaman, Birbhum, and West Medinipur.
46 Groundwater schemes were concentrated in central districts with high aquifer yield, surface irrigation in western districts,
and creek-based water detention structures in southern districts.
47 From Batch IV to Batch VI, the per area cost of solar tube well-equipped schemes declined from INR 2.94 million per ha to INR
1.69 million per ha.
48 Using remote sensing technologies also helped reduce the time from approval to hand-over of schemes. For Batch I to Batch
V, the time from approval to handing over was reduced from an average of 589 days to an average of 206 days and the time
from work order to handing over was reduced from 494 days to 105 days.
49 From Batch IV to Batch VI, the per area cost of solar tube well-equipped schemes declined from INR 2.94 million per ha to INR
1.69 million per ha.
50 Please refer to annex 7 for details on technologies used to address different challenges that the project faced.
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engaged to address needs for community mobilization and participation in scheme development and
O&M. This approach, fueled by a change of project leadership , further strengthened the planning process
with a watershed-based approach and with improved targeting of upland and tribal farmers who were
more vulnerable to drought. The adoption of a streamlined staffing plan allowed the SPMU to rehire
competent experts whose contracts were terminated. The two-year extension of the project closing date
was dedicated to the finalization of irrigation schemes, the consolidation of WUAs through the
implementation of a performance management system, and mainstreaming of key innovations, which
were maintained through closing and beyond.
IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME
A. QUALITY OF MONITORING AND EVALUATION (M&E)
M&E Design
61. The Results Framework included four PDO-level indicators to measure achievement of the PDO
and intermediate outcome indicators to track implementation progress. The results indicators were
aligned with the PDO with appropriate targets. However, target values were adjusted following a
cancellation of project funds and minor changes were made to the intermediate indicators’ definition and
description. The project design included a sound monitoring, learning, and evaluation framework to
facilitate (a) results-based management; (b) learning and process enhancement (through process
monitoring by participatory methods, involving group self-ratings, reviews, score cards, satisfaction
surveys, and so on); and (c) impact evaluation (involving use of appropriate baseline and controls).
62. M&E staffing arrangements were adequate with an M&E specialist and a data/documentation
analysis expert recruited at SPMU for planning, coordinating, and consolidating reporting from M&E
activities at the district level. These experts would have the overall responsibility for developing systems
and procedures for analysis and presentation of the collected data to ensure appropriate use of the
indicators for monitoring, evaluation, and learning. Additionally, the arrangements included contracting
the services of an external M&E agency for specific M&E and impact studies and partnering with WUAs.
However, the challenges of implementing such a complex arrangement were not fully appreciated.
M&E Implementation
63. M&E implementation faced start-up challenges due to staffing issues and inexperience of the
project team (section III). However, following the MTR, different systems were progressively put in place
to improve management and planning (section III). Robust GIS and remote sensing tools were adopted
with visible impact on project implementation. The use of these advanced tools enhanced the selection
process of project investment within the department. Project monitoring was strengthened with a web-
based MIS, GPS-based photographs, and real-time updates using mobile-based applications. WUAs
became effective partners in project monitoring. Owing to good bookkeeping practices, WUAs supported
the M&E team especially with the determination of crop types and cropped areas.
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M&E Utilization
64. At completion, the project M&E system was well synchronized with the MIS and GIS to support
PMUs through implementation and completion. This integrated system was instrumental for contract
management, disbursements, financial management (FM), tracking of implementation status, and the
implementation of safeguard instruments. This robust M&E system enabled the World Bank to conduct a
meaningful MTR in August 2014, readjusting the project focus. Specifically, the GIS component focused
interventions on poorer areas of the state where water constraints were serious impediments to the
development of irrigated agriculture. Finally, M&E data and evaluation studies provided vital information
to assess project outcomes and impact on beneficiaries during the preparation of the Implementation
Completion and Results Report (ICR).
Justification of Overall Rating of Quality of M&E
Rating: Substantial
65. Overall, the M&E system was adequately designed and implemented albeit with an initially slow
pace due to capacity challenges. However, the project overcame those issues and built a system that
became a reference in the state and beyond. The system was highly useful during the evaluation as it
allowed the capture of a vast amount of data thanks to the remote sensing technology combined with
ground-truthing data. Another value addition of the M&E system was that it integrated planning, design,
and implementation with operation and service delivery. Geotagging all investments added a layer of
transparency. Therefore, the overall rating of the quality of M&E is Substantial.
B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE
66. Relevant safeguard policies were identified at appraisal and no additional safeguard policy was
triggered during implementation. The project triggered the following safeguard policies: Environmental
Assessment (OP 4.01); Pest Management (OP 4.09); Indigenous Peoples (OP 4.10); Physical Cultural
Resources (OP 4.11); Safety of Dams (OP 4.37); and Projects on International Waterways (OP 7.50).
67. Environmental Assessment (OP 4.01). The project was assessed as an Environmental Category A
project. A full-size EA report and an Environmental Management Plan (EMP) were prepared for the
project. The EA report was disclosed on November 24, 2010 in the InfoShop and nationally on December
9, 2010. The major mitigation measures included the avoidance of areas where groundwater abstraction
is critical, the avoidance of contaminated areas, and assessment of water resources adaptability for
irrigation. Environmental provisions were included in construction contracts and strictly monitored by the
full-time Safeguards Unit. Mitigation measured were adequately implemented and progress reports
regularly submitted for World Bank review. OP 4.01 was rigorously complied with.
68. Pest Management (OP 4.09). Although the project was not expected to procure or promote the
use of pesticide, the creation of additional irrigation capacity could result in higher incremental use of
pesticides. A pest management plan was therefore developed and integrated into the EMP to ensure
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compliance with this policy.51 The measures proposed in the pest management plan were implemented
in a satisfactory manner. OP 4.09 was complied with.
69. Indigenous Peoples (OP 4.10). In September 2010, the project prepared and disclosed a Tribal
Development Plan with the following objectives: (a) ensuring inclusion through selective targeting, and
(b) establishing a new or strengthening the existing tribal institutions to undertake irrigated agriculture.
Throughout implementation, tribal populations received special consideration. As part of this strategy,
the project prepared a block-wise list of tribal dominated villages for all the districts of the state.
Additionally, the project set aside up to 13 percent of the total financial envelope for tribals and 11 percent
of the project beneficiaries were tribal farmers. The project complied with OP 4.10.
70. Physical Cultural Resources (OP 4.11). The project was not expected to affect any archaeological
or protected sites. However, OP 4.11 was triggered as a precaution because the possibility of an impact
on physical cultural resources could not be ruled out. The Environmental Impact Assessment outlined the
procedures to be adopted if culturally significant sites were discovered during project implementation.
Appropriate clauses detailing ‘chance find’ procedures were included in all construction contracts. No
prominent physical cultural resources were discovered during implementation.
71. Safety of Dams (OP 4.37). Although the project was not expected to build any dam higher than
15 m, about 117 surface schemes in three districts were anticipated to include the construction of a bund.
All structures were designed following design standards and guidelines already adopted in the state,
certified by an executive engineer of DWRID to ensure its compliance with the safety guidelines and
verified by a qualified design engineer at the SPMU with experience of implementing safety norms during
design and construction of dams. The project complied with OP 4.37.
72. Projects on International Waterways (OP 7.50). ADMIP was expected to support water
development activities in sub-basins that could be classified as international waterways shared with
Bangladesh, Bhutan, and India.52 By adapting the project design, the project ensured incremental water
abstraction from any of the eight rivers would be negligible. It also anticipated water abstraction in the
Ganga River basin. By letters dated September 23, 2010, the World Bank notified the states of Bangladesh,
Bhutan, and Myanmar on behalf of India in accordance with OP 7.50. OP 7.50 was complied with.
73. Procurement. The SPMU was responsible for the overall procurement system while the DPMUs
were in charge of procurement coordination and review at district levels using a procurement manual
developed following World Bank guidelines. Several trainings were successfully delivered to familiarize
staff with World Bank procurement procedures. The project team experienced initial challenges including
the selection of adequate staff recruitment firm. Those challenges were overcome through ad hoc
capacity strengthening and guidance on appropriate procurement methods. From 2013, the SPMU
maintained a permanent procurement specialist regularly submitting Procurement Plans to the World
51 Good agricultural practices were promoted with the bio-village program in 48 villages of eight districts.
52 The World Bank received from Bangladesh a response to the riparian notification requesting for water sharing agreements
before the project can be implemented. To avoid further delays in the preparation process, the World Bank team decided to
include only tributaries that would not adversely affect either the quality or quantity of any of the water flows or otherwise result
in appreciable harm to Bangladesh or any of the riparian.
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Bank to reflect implementation. Procurement efficiency improved as the project team gained experience.
Procurement policies were satisfactorily complied with.
74. Financial management. From the start, the FM arrangements were mainstreamed into the state’s
own accounting, internal controls, and financial reporting systems. Initially, persistent delays in
submission of interim unaudited financial reports affected the project’s ability to draw down on the
loan/credit on a timely basis. With simplifications and consistent implementation support, the project’s
performance progressively improved. Additionally, disbursement effectiveness was further improved by
adjusting financial arrangements through introduction of US$10 million advance withdrawal. The
submission of annual audit reports was delayed except in the last two years and resulted in the application
of World Bank remedies by way of discontinuation of disbursements. Undertaking financial planning
remained a challenge through completion, leading to an undisbursed amount of about US$9.8 million.
The audit reports were qualified during the first years of implementation but by project completion, the
PMUs were adequately staffed to carry out FM and audit reports and interim unaudited financial reports
were timely submitted. The project largely complied with World Bank FM policies albeit with difficulties.
C. BANK PERFORMANCE
Quality at Entry
75. The World Bank team mobilized a relevant mix of expertise to incorporate appropriate concepts
in the project design (section III). Project concept was well aligned with the CAS and lessons from previous
operations were adequately integrated. In hindsight, the project could have adopted a more realistic
assessment of the capacity to implement such an innovative approach to I&D development and a more
realistic assessment of the absorptive capacity of the implementing agencies53. Identifying skill gaps and
balancing different methods of skill acquisition would have helped SPMU and DPMU staff familiarize
themselves with the project’s concepts and facilitated implementation. The project faced readiness issues
resulting in implementation delays. Considering the level of ambition of the original project, intensive
capacity development could have started during preparation. The lack of a clear plan and ownership of
the SDMP approach also contributed to the start-up delays seen later during implementation.
76. During preparation, the State of West Bengal experienced political shifts leading to delays or
cancellation in a number of projects throughout the state.54 ADMIP preparation was affected by the
ensuing lags in decision-making and the bureaucratic changes.55 To some extent, the project preparation
was also delayed by the request of Bangladesh to establish water sharing agreements before project
implementation (see safeguard section and factors during preparation). The project was led by three
successive task team leaders (TTLs) from initiation to completion. However, the changes in TTL did not
significantly affect project quality as there was a continuity in task team.56 The project preparation costed
US$730,00057.
53 The overall appraisal value of the project was US$ 300 million, however the project disbursed only US$ 153 million at closing
54 During project preparation, the All India Trinamool Congress won the state elections after the Communist Party of India-led
Left Front government.
55 The project concept review took place on June 26, 2007, and was approved on October 04, 2011, representing 51 months.
56 Successive TTLs were already members of the project team at the time they took charge.
57 The project was also supported by Trust Funds (TF094837, TF093224 and TF017943) for a total amount of US$ 0.47 million.
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Quality of Supervision
77. Focus on development impact. In 2014, the World Bank team conducted the MTR to identify
corrective actions to ensure the achievement of PDO. To enable continued focus on development impact,
the project underwent major shifts including (a) increased emphasis on poorer areas in western districts,
(b) shift from scattered implementation to cluster-based approach, and (c) adoption of scheme
development management plan. Further, the World Bank team opted for significant flexibility and
innovations to adopt cost-effective solutions and adapt to local realities (section II). Processing with
formal restructuring including the cancellation of funds and alignment of Results Framework required
lengthy negotiations between different levels of government.58
78. Supervision of fiduciary and safeguard aspects. The World Bank provided ongoing
implementation support on fiduciary and safeguard issues during project implementation. Capacity
challenges were progressively addressed through ad hoc trainings (sections II) and considerable hand-
holding with the procurement of a recruitment firm. At project completion, fiduciary and safeguard
capacity had improved and reporting had become more regular.
79. Candor and quality of performance reporting. Following a steep learning curve early on, the
quality of performance reporting improved with the introduction of new technology and deployment of
field staff (section III). Project ratings in the Implementation Status and Results Reports (ISRs) were candid
and the Aide Memoires reflected project challenges and issued recommendations to address them.
Following the MTR, the World Bank team was instrumental in encouraging the adoption of major changes
to get the implementation back on track. The Bank recommended that the SPMU recruit competent staff
that were once part of the consultant team (section III). The World Bank also played an instrumental role
in creating an enabling environment that led to positive unintended outcomes. For example, the Bank
team, through its recommendations, oriented the project to establish partnership between farmers and
private companies that created substantial network and social capital for farmer and fishery groups.59
80. Adequacy of supervision inputs and processes. The World Bank helped overcome the start-up
challenges by developing an adequate project implementation plan and conducted a combination of
regular implementation support missions and just-in-time technical visits to the project areas. The World
Bank team offered regular, demand responsive, and thematic technical assistance besides regular
missions. Some major inputs that influenced project outcome include (a) standardization of the design of
specific types of schemes, (b) preparation of protocols for quality assurance and quality control, and (c)
use of modern survey and design techniques for more cost-effective and successful schemes. The
capacity-building efforts provided included field-level interactive sessions, thematic workshops, and
knowledge exchange events. To accelerate knowledge acquisition, the SPMU was advised to organize
exposure visits to other similar World Bank-financed projects.60 The World Bank mobilized
multidisciplinary teams with expertise in procurement, FM, community participation, and project
evaluation to review relevant implementation documents.
58 There were about 18 months between MTR and fund cancellation and another 16 months to formally introduce changes in
the Results Framework. In a Federal system such as India, negotiations between central government and state government
took inevitable but necessary time to arrive at a consensus.
59 Farmers are able to share experiences through formal and more informal forums.
60 Karnataka Community-Based Tank Management Project (P071033).
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Justification of Overall Rating of Bank Performance
81. Considering that the World Bank undertook several proactive actions, provided useful
recommendations while keeping a focus on impact, it was instrumental in making a major turnaround of
moving the project from initial slow implementation to a successful project. However, the Bank could
have made a better assessment to align the project ambition with the state implementation capacity. As
a result, the overall World Bank performance is rated Moderately Satisfactory.
D. RISK TO DEVELOPMENT OUTCOME
82. Three major categories of risks to development outcome have been identified. They are risk to
sustainability of activities, risk to sustainability of institutions, and risk to sustainability of infrastructure.
The overall risk to development outcome is rated Moderate.
83. Risk to sustainability of activities. The beneficiaries largely took ownership of the various
activities promoted by the project. In addition, the communities were able to adopt favorable business
models, allowing them to reap the full benefits of the water storage options (section II). Finally, the
diversification of activities and crops offered the opportunity for greater adaptation in the face of changes
in market conditions. With these considerations that substantiate financial sustainability of project
activities, risks associated with activities continuity remained Low at the project completion.
84. Risk to sustainability of institutions. The project focused on strengthening community-based
institutions and promoting convergence with other agencies and government departments. Several WUAs
were established (section II). The project continues to enjoy high support of government and grassroot
stakeholders. However, WUAs are new institutions in the state irrigation landscape and will need
continued support. Government adopted guidelines and protocols to continue the provision of adequate
hand-holding for WUAs. At completion, staff remained deployed at the district level to ensure extension
services to irrigation schemes. The risk to sustainability of institutions is rated Moderate.61
85. Risk to sustainability of infrastructure. The sustainability of infrastructure depends partly on
proper and regular O&M. The project made adequate provision for O&M using a flexible approach that
considers the need of communities (section III). Project works were realized following international
norms. Most of the O&M of small-scale storage facilities including ponds is under the control of
communities and there is emerging evidence that farmers can also maintain larger infrastructure such as
check dams to some extent62. The risk to sustainability of infrastructure remains Moderate.63
V. LESSONS AND RECOMMENDATIONS
86. An integrated design of structural measures (irrigation infrastructure), and nonstructural
measures (management institution development and agricultural support) is essential for a successful
61 Note that although the World Bank financing in the project was closed by December 20, 2010, from the Government side, the
project is still continuing with state funding and the approach promoted by the World Bank is still in use. Therefore, the
institutional sustainability is thought to be a moderate challenge.
62 Reports indicate at least eight WUAs removing sediments from check dams to prevent potential siltation issues.
63 The project O&M activities were not significantly affected by the COVID-19 situation.
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irrigated agriculture operation. While the project invested in infrastructure to improve water availability,
agricultural support services and institution building were cornerstones of the project outcomes. These
‘soft components’ were absent in state-supported I&D programs and constituted major value added for
ADMIP. Finding the right incentive mechanisms for WUAs through both agricultural service support and
performance monitoring was a key nonstructural innovation (section II). Such mechanisms that require
multidisciplinary teams are showing results on the ground and can contribute to sustainability.
87. Transforming rainfed farms into irrigated ones is a gradual process that should be factored in
project design. It takes around two years to fully convert rainfed farms to irrigated farms.64 The process
requires continuous support throughout the value chain. Knowledge acquisition is crucial to this process.
For ADMIP, the challenge of post-scheme development support is low because the project is still being
pursued by the GoWB. Future operations should find mechanisms to ensure farmers are accompanied for
at least two years following scheme completion. This can be done through the borrower’s firm
commitment to deploy adequate technical assistance after World Bank loan, credit, or grant closes.
88. Developing and implementing a sound human resources development strategy is a cornerstone
of project implementation. Adequate capacity assessment is a crucial step in project preparation.
However, human resources development strategy should also include risks to appropriate staffing level
and skills, staff retention, and bureaucratic hurdles. Adopting the right type of incentives to ensure staff
motivation can substantially reduce detrimental and frequent turnover. In hindsight, a full-fledged
strategy developed with key stakeholders and accounting for the constraints and risks could have limited
the impact of human resources challenges that the project faced (section III).
89. Complex projects with many subprojects scattered over large areas require active learning and
adaptive change management with innovations. The first phases of project implementation allowed
stakeholders to accumulate knowledge which proved crucial during successive phases. The experience
enabled adjustments which contributed to the turnaround of the project. Owing to flexible approaches,
the project capitalized on innovations such as MIS integrated into the GIS, the introduction of a cluster-
based approach, and the adoption of an integrated landscape management model. Also, the project
adopted a flexible approach by involving communities to express concerns and derive suitable solutions
(section II). This approach boosted beneficiary satisfaction and improved poverty targeting (section III).65
90. Adoption of SDMP can be a superior alternative to traditional DPR. In contrast with traditional
DPR, SDMP goes several steps beyond by developing an O&M plan delineating the roles and
responsibilities with funding arrangements. This inbuilt system was instrumental to the sustainability of
irrigation schemes and contributed to the low proportion of dysfunctional schemes following handing
over. The project approach to SDMP development was streamlined by adopting a standard format and
using digital online tools that enabled site-specific design of schemes and led to sustainability.
.
64 IRMA report.
65 Further details are provided in annex 7.
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ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS
A. RESULTS INDICATORS
A.1 PDO Indicators
Objective/Outcome: The project development objective is to enhance agricultural production of small and marginal
farmers in the project area.
Formally Revised Actual Achieved at
Indicator Name Unit of Measure Baseline Original Target
Target Completion
Relative change in value of Percentage 0.00 0.00 140.00 282.00
outputs measured as ratio
between post to pre-project 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
values
Increase in production of Metric 94756.00 0.00 95000.00 85696.00
major outputs: Rice tons/year
31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Increase in production of Metric 149.00 0.00 8800.00 14406.00
major outputs: Oilseed tons/year
31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Increase in production of Metric 0.00 0.00 2500.00 2970.00
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major outputs: pulses tons/year
31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Comments (achievements against targets):
Achieved 201% of revised target value thanks to increase in cropping areas and in cropping intensity beyond expectations. Original target does not apply
because this indicator was introduced during restructuring.
Formally Revised Actual Achieved at
Indicator Name Unit of Measure Baseline Original Target
Target Completion
Operational water user Number 0.00 4200.00 2000.00 2277.00
associations created and/or
strengthened (number) 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Comments (achievements against targets):
Achieved 54% of original target value and 114% of revised target value. For efficiency reasons, the project decided to promote larger Water User
Associations (WUAs). Although the number of WUAs created is slightly below formal target value, they are sufficient to operate and maintain adequately
irrigation schemes developed under the project funding.
Formally Revised Actual Achieved at
Indicator Name Unit of Measure Baseline Original Target
Target Completion
Water users provided with Number 0.00 166000.00 100000.00 111203.00
new/improved irrigation and
drainage services (number) 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Water users provided with Number 0.00 30000.00 12000.00 17099.00
irrigation and drainage
services - female (number) 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
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Water users provided with Percentage 0.00 0.00 80.00 83.00
new/improved irrigation
and drainage services: Small 31-Mar-2012 20-Dec-2019
and Marginal Farmers
Water users provided with Percentage 0.00 0.00 13.00 12.00
new/improved irrigation
and drainage services: Tribal 31-Mar-2012 20-Dec-2019
farmers
Comments (achievements against targets):
Achieved 67% of original target value and 111% of revised target value due to effective outreach and mobilization of farming communities.
Formally Revised Actual Achieved at
Indicator Name Unit of Measure Baseline Original Target
Target Completion
Water user association that Percentage 0.00 0.00 70.00 73.00
are generating at least 80% of
resources required to 31-Mar-2012 31-Dec-2017 10-Nov-2019 20-Dec-2019
manage, operate and
maintain the developed
schemes
Comments (achievements against targets):
Achieved 104% of revised target value thanks to water pricing systems adopted by WUAs and high collection rate. After 3 years of functioning, more than
82 percent of WUAs experience regular payment of water charges by all WUA members according to IRMA report. Original target does not apply because
this indicator was introduced during restructuring.
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A.2 Intermediate Results Indicators
Component: Component B. Irrigation System Development
Formally Revised Actual Achieved at
Indicator Name Unit of Measure Baseline Original Target
Target Completion
Area provided with Hectare(Ha) 0.00 139000.00 75000.00 67594.00
new/improved irrigation or
drainage services 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Area provided with Hectare(Ha) 0.00 139000.00 75000.00 67594.00
improved irrigation or
drainage services 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
Increase in water harnessed Cubic 0.00 0.00 250000000.00 202800000.00
with new/improved Meter(m3)
irrigation services
31-Mar-2012 20-Dec-2019
Area diversified to less Percentage 5.00 0.00 20.00 30.00
water intensive cash crops
31-Mar-2012 20-Dec-2019
Comments (achievements against targets):
Achieved 49% of the original target and 90% of the revised target value. The value of this indicator is expected to increase over the coming year as
schemes delivered towards the project closing date becomes fully exploited.
Formally Revised Actual Achieved at
Indicator Name Unit of Measure Baseline Original Target
Target Completion
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Change in cropping intensity Percentage 122.00 0.00 170.00 192.00
in areas provided with
new/improved irrigation 31-Mar-2012 31-Dec-2017 10-Nov-2017 20-Dec-2019
services
Comments (achievements against targets):
Achieved 113% of the revised target value. This achievement is mainly the result of intensive awareness campaign to promote a large variety of fruit and
vegetable crops.
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B. KEY OUTPUTS BY COMPONENT
Objective/Outcome 1: Enhance agricultural production for small and marginal farmers
1. Relative change in value of outputs measured as ratio between post to pre-project values
2. Operational water user associations created and/or strengthened
Outcome Indicators 3. Water users provided with new/improved irrigation and drainage services
4. Water user associations that are generating at least 80% of resources required to manage,
operate and maintain the developed schemes
1. Area provided with new/improved irrigation or drainage services
Intermediate Results Indicators 2. Area diversified to less water intensive cash crops
3. Change in cropping intensity in areas provided with new/improved irrigation services
1. Number of WUAs formed (Component A): 2,277 formed and 1,657 formally registered (original
target: 4,200; revised target: 2,000)
2. Members of the WUAs (Component A): 111,203 members provided with new irrigation services
(original target: 166,000, revised target: 100,000)
3. Women members of WUAs (Component A): 22,336 formed and 17,099 formally registered
(original target: 30,000, revised target: 12,000)
4. Beneficiaries of development of orchards (Component A): 4,000
5. Irrigated land developed (Component B): 67,594 ha (revised target: 75,000 ha)
Key Outputs by Component 6. Guidelines for the construction of tube well
(linked to the achievement of the 7. Guidelines for the construction of water detention structures (Component B)
Objective/Outcome 1) 8. Guidelines for implementation of small-size schemes by WUAs (Component B)
9. Online tools including remote sensing-based MIS and GIS (Component B)
10. Demonstration area for agriculture (Component C): 7,068 ha (original target: 5,040 ha)
11. Demonstration area for horticulture (Component C): 2,841 ha (original target: 252 ha)
12. Demonstration area for fisheries (Component C): 1,151 ha (original target: 600 ha)
13. 98 plastic greenhouse with drip irrigation to 50 WUAs and 110 users (Component B)
14. Direct seeded rice in 40 ha (Component B);
15. Hybrid rice promotion and system of rice intensification 270 ha (Component B)
16. Bio-village program in 48 villages of 8 districts covering 372 ha (Component B)
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ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION
A. TASK TEAM MEMBERS
Name Role
Preparation
Joop Stoutjesdijk Task Team Leader
Musa S.C. Asad Co-Task Team Leader and Sr. Financial Analyst
Paul Singh Sidhu Sr. Agricultural Specialist
R.R. Mohan Sr. Social Development Specialist SASDI
S. Satish Sr. Social Development Specialist
Tapas Paul Sr. Environmental Specialist
Debabrata Chakraborti Sr. Procurement Specialist
Manvinder Mamak Sr. Financial Management Specialist
Juan Carlos Alvarez Sr. Counsel LEGES
Jacqueline Julian Program Analyst
Jai Mansukhani Program Assistant
Lilac Thomas Program Assistant
Prabir Joardar Consultant - Engineer
S. Selvarajan Consultant - Economist
Kunduz Masylkanova Economist
Supervision/ICR
Anju Gaur, Raj Ganguly Task Team Leader(s)
Satyanarayan Panda Procurement Specialist(s)
Manvinder Mamak Financial Management Specialist
Tapas Paul Environmental Specialist
Jai Mansukhani Procurement Team
Parthapriya Ghosh Social Specialist
Pamela Patrick Procurement Team
Yoro Sidibe ICR Main Author
Stuti Sharma Team Member
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Biri Singh Consultant – Agricultural Specialist
C.S. Renjit Consultant – Community Development Specialist
Hitesh Kumar Thakur Consultant – M&E and MIS
K.A.S. Mani FAO-CO Groundwater Specialist
Kirtida Gandhi Consultant Design Engineer
Mahesh Somchand Patel Consultant - Construction Specailst
Pooja Khosla Consultant-Economist
Prabhat Chandra Chandra Consultant-Senior Geophysist
Shouvik Mitra Consultant – Social Development Specialist
Vinay Tuli Consultant – Agriculture Specialist
B. STAFF TIME AND COST
Staff Time and Cost
Stage of Project Cycle
No. of staff weeks US$ (including travel and consultant costs)
Preparation
FY07 11.425 61,794.07
FY08 12.502 58,849.31
FY09 16.503 90,027.17
FY10 26.076 275,533.55
FY11 28.087 212,052.49
FY12 7.532 31,632.37
Total 102.13 729,888.96
Supervision/ICR
FY12 10.693 66,141.29
FY13 26.854 101,366.35
FY14 29.050 80,999.38
FY15 33.919 121,795.71
FY16 25.798 133,473.47
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FY17 28.106 248,318.12
FY18 41.383 153,662.06
FY19 40.090 143,238.41
FY20 41.208 192,077.45
Total 277.10 1,241,072.24
ANNEX 3. PROJECT COST BY COMPONENT
Amount at Actual at
Amount at
Approval Project Percentage of Percentage
Components Cancellation
(US$, Closing (US$, Cancellation of Approval
(US$, millions)
millions) millions)
Component A. 8.10 5.00 5.18 103.20 63.91
Strengthening
Community-based
Institutions
Component B. 235.00 149.00 110.77 74.10 47.13
Irrigation System
Development
Component C. 22.10 15.00 14.75 98.00 66.74
Agricultural Support
Services
Component D. 34.80 36.00 22.43 62.11 64.47
Project
Management
Total 300.00 205.00 153.12 74.40 51.04
Source: Latest financial information.
Note: The final US$ equivalent of the IDA financing was US$110,592,904 instead of the US$125,000,000 because of
the fluctuations in the SDR exchange rates. The project disbursed US$110.6 million of IDA and US$20.2 million of
IBRD. Undisbursed balance of US$9.8 million was cancelled from IBRD loan as of June 26, 2020. Due to the
exceptional circumstances created by COVID-19 situation in the country, processing of expenditures to document
the spending of part of the US$9.8 million to the IBRD loan proved too challenging. Therefore, the expenses were
rather credited to state funds.
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ANNEX 4. EFFICIENCY ANALYSIS
Introduction
1. The objective of the economic and financial analysis is to assess the ex post economic and financial
performance of the West Bengal Accelerated Development of Minor Irrigation (WBADMI) project at
completion in December 2019. At appraisal, the project total costs were estimated at US$300 million
equivalent including contributions from IDA, IBRD, and the borrower. The project underwent a
restructuring to adjust its scope and was completed with an estimated cost of US$152.6 million. The PDO
was to enhance agricultural production of small and marginal farmers in the project area. The PDO was to
be achieved through development of minor irrigation (MI) schemes, strengthening community-based
irrigation management, and support to agricultural development, including provision of agricultural
services, encouraging crop diversification and use of new technologies, and creating income generating
opportunities. The PDO was not revised during project implementation.
2. Specifically, the following components contributed to PDO achievement.
3. Component A. Strengthening Community-based Institutions. This component facilitates the
development of WUAs and other farmer organizations to assume the responsibilities for MOM of minor
irrigation schemes and improved irrigated agricultural practices. This will be achieved by assisting with
their formation and strengthening through various training and support activities.
4. Component B. Irrigation System Development. This component facilitates the construction of
about 1,340 new minor surface water irrigation schemes (command area varying from 1.5 to 150 ha) and
about 990 new minor groundwater irrigation schemes (command area varying from 0.5 to 64 ha). The
total area to be developed under the project is about 37,130 ha, benefiting an estimated 106,700 farm
families.66
5. Component C. Agriculture Support Services. This component facilitates the provision of
agricultural support services in the project area to enhance productivity and diversification in agriculture.
This will involve improvements in production and water management technologies for agriculture,
horticulture, and fisheries and more efficient and effective farm advisory services.
6. Component D. Project Management. This component facilitates the strengthening of DWRID to
ensure effective project management through the SPMU and DPMUs; provision of information
management and social, environmental, and fiduciary safeguard management systems; and M&E and
impact assessment activities.
7. At appraisal, the analysis estimated that the economic and financial returns to farm households
and the economy will be derived from investments in I&D infrastructure, capacity building, and support
services. It was expected that benefits to farming households would result from (a) expansion of irrigated
areas, (b) intensification of irrigation, (c) diversification to high-value crops, (d) fisheries development, (e)
66 Only schemes that were formally handed over were considered in the analysis.
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efficient water management, and (f) drought mitigation. The project was anticipated to generate net
incremental economic and financial benefits with an EIRR of 25.1 percent and an FIRR of 21.6 percent.
8. Although the project objective set at appraisal remained unchanged through implementation, the
project’s total funding, scope, and closing date were adjusted. The first restructuring cancelled US$95
million from Loan No. IN-8090. The second restructuring introduced changes to the Results Framework to
align it with the reduced project scope after cancellation. The third and final restructuring extended the
project closing date from December 31, 2017, to December 20, 2019. The ex post economic and financial
analysis closely follows the appraisal methodology while accounting for the closing date extension of
nearly 24 months, the actual project benefits, and the cancellation of funds. It also makes conservative
assumptions regarding future changes in irrigation, fisheries, and other benefits over the project horizon
estimated at 15 years. Economic and financial benefits are estimated as incremental variation between
the ‘with project’ (WP) scenario and the ‘without project’ (WoP) scenario. A 10 percent discount rate is
used in the analysis. However, sensitivity analyses are conducted to assess the robustness of the results
in relation to key variables that may be subject to uncertainty.
9. The analysis builds on several studies conducted from the appraisal to the completion of the
project. The studies include regular M&E information, socioeconomic surveys, and institutional
assessment. As part of the World Bank’s effort to ground-truth the project’s administrative data, a
representative household survey was conducted for a sample of 240 handed-over schemes.
Comprehensive information was collected on WUAs, their membership and governance, socioeconomic
characteristics of farms, irrigation technology, and output and input prices in the project areas. Roughly
two beneficiaries (treatment group) and one nonbeneficiary (control group) were randomly selected and
surveyed in each village. A total of roughly 450 ADMI and 230 non-ADMI farmers were surveyed. The
questions included details of cropping patterns, production, farming practices, and incomes of individual
farmers both before and after the scheme was constructed. The analysis presented in this section builds
on the data collected in the ground-truthing surveys.67 The net incremental benefits are estimated for
farmers benefiting from WBADMI project intervention, also referred to as the ‘treatment’ farmers. To
account for the WoP scenario, the net incremental income is estimated for farmers who did not benefit
from any irrigation intervention, also referred to as the ‘control’ farmers.
10. To summarize, the cost-benefit analysis (CBA) assesses the stream of benefits and costs over the
project horizon in the WP and WoP scenarios. For the WP scenario, the net incremental benefits were
calculated from agriculture and fishery activities accruing to the farmers as a result of the project using
information from before and after scheme hand-over. Similarly, in the WoP scenario, the net incremental
benefits were calculated from agricultural and fishery activities that would have accrued to farmers in the
absence of project intervention by examining trends for the control farmers. A comparison of the WP and
WoP scenarios gives the project benefits. The project costs consider the investment costs and the
recurring costs due mainly to recurring O&M. The CBA for inputs and outputs uses 2011 constant prices
to enable comparability over time.
67Data suggest that non-ADMI farmers were slightly better-off than ADMI farmers before the start of the project. This suggests
that ADMI farmers might have been positively selected.
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Irrigation System Development
11. At appraisal, the project planned to provide irrigation services to about 139,000 ha in 19 districts
in West Bengal.68 During implementation, the project was restructured to adjust scope to capacity. US$95
million was cancelled and as a result the target of areas provided with irrigation services was reduced to
75,000 ha. At completion, the project provided irrigation services to about 67,600 ha, representing 90
percent of the revised target.
Project Benefits
12. The project generated significant benefits increasing irrigation farmers’ net margins. The irrigation
development allowed for increased and reliable supply of irrigation water and strengthening of
community-based institutions, WUAs, coupled with agricultural support services that contributed to
enhanced management of I&D infrastructure. The overall project contributed to enhanced revenues
through different channels, including (a) increase in cropped area, (b) increase in cropping intensity, (c)
increase in crop yield for almost all major crops, (d) changes in cropping pattern favoring high-value crops,
and (e) increase in fish production.
(a) Variation in cropping areas. The various surveys as well as remote sensing data show a
remarkable increase in cropped areas in both project and non-project intervention areas.
However, the project intervention areas experience a larger increase due to increased water
availability in the dry seasons. The majority of irrigation schemes became operational in
2018 and 2019 when the project was coming to a close. Therefore, the surveys provide only
a conservative picture of the full potential. Table 4.1 shows the change in gross cropping
areas before and after the project for the 19 districts. These estimates are calculated using
cropping patterns observed in the individual farmer surveys. A 27 percent increase is found
in cropped area for treatment farmers and 17 percent for control farmers. Further, the
analysis indicated an increase in cropped area both on the extensive (new area brought
under cultivation) and intensive (intensity of cultivation) margins.
Table 4.1. Gross Area Cropped
Gross Cropped Gross Cropped Change in Cropped
District
Area, Before (ha) Area, After (ha) Area (ha)
Bankura 1,383 1,913 531
Bardhaman 4,027 4,552 524
Birbhum 1,392 1,861 469
Dakshin Dinajpur 4,568 4,440 −128
Darjeeling 1,458 1,674 216
Hooghly 802 1,605 804
Howrah 664 683 19
Jalpaiguri 7,720 8,689 968
68At the time of appraisal there were 18 districts in West Bengal. Over the project period, 2 new districts have been carved out
from these 18 districts. There were 19 districts at the time of restructuring and for the current analysis, those 19 districts are
considered (instead of 18 at appraisal or 20 at completion).
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Gross Cropped Gross Cropped Change in Cropped
District
Area, Before (ha) Area, After (ha) Area (ha)
Jhargram 2,615 3,900 1,285
Cooch Behar 5,672 6,444 772
Malda 1,957 2,521 564
Murshidabad 1,536 1,812 276
Nadia 1,233 1,456 223
North 24 Parganas 946 1,187 241
Paschim Medinipur 1,915 4,065 2,151
Purba Medinipur 2,078 3,976 1,897
Purulia 1,990 2,547 557
South 24 Parganas 4,674 6,093 1,419
Uttar Dinajpur 2,800 3,188 388
(b) Changes in cropping intensity. The surveys show an increase in cropping intensity in
different WUAs and for different crops. Table 4.2 presents the district-wise cropping
intensities before and after the schemes were constructed. Overall, the treatment farmers
experienced a 35.5 percentage point increase in cropping intensity while the control farmers
saw a 21.5 percent increase in cropping intensity. Note that control farmers were positively
selected and may have been in a better position to invest in tube wells once the government
restrictions on them were eased in 2011. This can explain the significant increase in cropping
intensities even without irrigation development or extension services. It is also possible that
the control framers may have benefited from other government schemes in the region or
from the ADMI scheme if there were spillovers (there is evidence of water being provided
to non-WUA members too). If so, this will lead to an underestimation of project benefits.
Table 4.2. Change in Cropping Intensity
Cropping Intensity, Cropping Intensity, Change
District
Before (%) After (%) (Percentage Points)
Bankura 104 144 40
Bardhaman 131 148 17
Birbhum 113 151 38
Dakshin Dinajpur 168 164 −5
Darjeeling 135 155 20
Hooghly 116 232 116
Howrah 170 175 5
Jalpaiguri 148 167 19
Jhargram 118 175 58
Cooch Behar 149 169 20
Malda 108 139 31
Murshidabad 159 188 29
Nadia 145 172 26
North 24 Parganas 157 197 40
Paschim Medinipur 103 218 115
Purba Medinipur 100 191 91
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Cropping Intensity, Cropping Intensity, Change
District
Before (%) After (%) (Percentage Points)
Purulia 103 132 29
South 24 Parganas 129 168 39
Uttar Dinajpur 170 193 24
(c) Changes in crop yield. The household surveys also indicate an increase in yields of major
crops in the project intervention areas due to improved access to water, increased capacity
in water management, and enhanced access to market opportunities. Non-project areas also
experienced modest increases in yield for some crops. For this analysis, it is assumed
conservatively that no further yield improvements would occur during the project horizon.69
Table 4.3 shows change in paddy yields that are observed across different districts using
household-level survey data. Yields for other crops such as potato increased from 2,096
kg/bigha to 3,895 kg/bigha, brinjal from 1,066 kg/bigha to 1,361 kg/bigha, and sesame from
116 kg/bigha to 150 kg/bigha.70
Table 4.3. District-wise Improvements in Paddy Yield (kg/bigha)
Paddy Yield, Potato Yield, Paddy Yield,
District
% Change Before (kg/bigha) After (kg/bigha)
Bankura 50 436 652
Bardhaman 50 435 653
Birbhum 69 404 681
Dakshin Dinajpur 38 476 656
Darjeeling 37 447 611
Hooghly 34 447 599
Howrah 35 438 593
Jalpaiguri 25 474 593
Jhargram 29 444 575
Cooch Behar 46 408 594
Malda 23 471 581
Murshidabad 142 273 661
Nadia 38 468 644
North 24 Parganas 42 487 694
Paschim Medinipur -6 475 446
Purba Medinipur 14 500 568
Purulia 55 379 588
South 24 Parganas 43 414 592
Uttar Dinajpur 73 329 571
69 One could think of it as a situation where both project and non-project areas experience similar changes in yield over time. As
a result, there will be no further incremental improvements in yield due to the project. Since project areas are likely to reap the
benefits from improved agricultural practices and irrigation facilities gradually over time, this assumption will underestimate
the benefits that will accrue over the project cycle.
70 For pulses, oilseeds, and some vegetables, there is variation across districts with some experiencing improvements and
others experiencing decline. This is probably a result of sampling variation (differences in rainfall in the baseline periods,
characteristics of the farmer) but a deeper examination is required to understand why this might be the case.
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(d) Changes in cropping patterns. The surveys show a shift of cropped areas away from paddy
and in favor of more profitable crops. High-value crops including vegetables (for example,
brinjal, potato, cauliflower); oilseeds; and pulses now represent a significantly larger portion
of cropped area. Cropping pattern assumptions (as observed in survey data) are summarized
in table 4.4. This clearly demonstrates a diversification in cropping patterns in the project
areas after the project interventions.
Table 4.4. Cropping Patterns Assumptions by Regions
Before Project (% Area) After Project (% Area)
District
Paddy Vegetables Oilseeds Pulses Paddy Vegetables Oilseeds Pulses
Bankura 96 1 3 0 67 22 5 3
Bardhaman 69 21 9 0 59 24 11 0
Birbhum 90 5 5 0 60 14 22 1
Dakshin Dinajpur 78 8 6 0 79 8 5 0
Darjeeling 80 12 0 0 58 27 2 0
Hooghly 80 10 9 0 42 35 20 0
Howrah 45 26 23 6 41 29 20 6
Jalpaiguri 68 14 3 0 59 22 2 0
Jhargram 84 3 10 3 57 7 31 1
Cooch Behar 66 9 2 0 70 12 2 0
Malda 58 0 0 0 60 10 2 0
Murshidabad 71 2 17 0 33 32 8 14
Nadia 43 10 26 10 31 19 15 3
North 24 Parganas 70 12 2 0 52 24 8 0
Paschim Medinipur 100 0 0 0 77 0 23 0
Purba Medinipur 100 0 0 0 100 0 0 0
Purulia 97 2 1 0 58 21 17 3
South 24 Parganas 69 20 0 0 93 5 0 2
Uttar Dinajpur 75 6 11 0 59 10 7 0
13. All benefits arising from (a) to (d) are clubbed together as agricultural benefits. They are reflected
in the net income of farmers before and after the project. It is assumed that only 20 percent of the benefits
are realized in the first year after project hand-over and 50 percent in the next year, and the full potential
is only realized in the third year after WUAs have taken charge of the scheme.
14. Increase in fish production. The surveys found that increased support for fisheries under the
project was associated with increased production and greater income through various channels including
increase in fish variety, increase in area under fisheries, modern practices, and improved access to
markets. Major fish species cultivated by project beneficiaries are Rohu (99 percent), Catla (96 percent),
Mrigal (63 percent), Silver (39 percent), and Tilapia (18 percent), while previously Rohu and Catla were
the dominant (100 percent), followed by few other fishes such as Mrigal (20 percent) and Silver (15
percent). This trend suggests that diversity of fish under cultivation has increased. Further, farmers
involved in fisheries increased from 4.3 percent to 14.3 percent. Demonstration centers and mass
demonstrations were conducted on almost 1,870 ha of pond over the project period with an adoption
rate of almost 45 percent. Anecdotal evidence suggests that farmer interest group members are using
savings from fishery activities to further expand area under fisheries. For the economic and financial
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analysis , it is assumed conservatively that the area under fisheries does not increase after the project
period. There has been a significant increase in fish yield as well providing substantial benefits to rural
communities in project areas, especially to women. Mean income per hectare of pond was substantially
higher after scheme intervention at around INR 176,935 per ha compared to INR 57,300 per ha before the
WBADMI project. The net incremental benefit is estimated from adopting advanced practices (WP
scenario) compared to fishing using traditional practices (WoP scenario) as a result of the project
interventions.
Project Costs
15. This analysis considers different costs associated with the project. First, it accounts for all the
investment costs, including capacity building and coordination costs. These costs were estimated at
US$152.60 million. Second, project costs also conservatively assume that O&M costs will represent up to
1 percent of investment costs annually over the lifetime of the project. Lastly, using primary data from
field surveys, membership and irrigation fees collected from the WUA members are also included. These
amount to roughly US$51,500 for each WUA on average. Note that some of these costs might be used for
O&M and irrigation costs have been accounted for in costs of cultivation. However, to be conservative
these costs are included separately.
Results of the CBA
16. Financial returns to the farm households. The investments in irrigation system development and
the accompanying measures generated incremental gross margin to farm households estimated at
US$1,077 per ha annually compared to non-rehabilitated areas over a horizon of 15 years. The FIRR is
estimated at 20.5 percent and the FNPV estimated at US$46.8 million at a discount rate of 10 percent.
Benefit-to-cost ratio is estimated at 4.12. The results are summarized in table 4.5.
Table 4.5. Results of the CBA - Financial Results
Economic and Financial Indicators ICR Values
Incremental gross margin (US$/ha) 1077
FNPV - financial net incremental benefits (US$, millions) (discount rate 12 percent) 30.6
FNPV - financial net incremental benefits per ha (US$/ha) (discount rate 12 percent) 823
FNPV - financial net incremental benefits (US$, millions) (discount rate 10 percent) 46.8
FNPV - financial net incremental benefits per ha (US$/ha) (discount rate 10 percent) 1,260
FNPV - financial net incremental benefits (US$, millions) (discount rate 8 percent) 69.7
FNPV - financial net incremental benefits per ha (US$/ha) (discount rate 8 percent) 1,877
FIRR (percent) 20.5
Discounted benefit-to-cost ratio (discount rate of 10 percent) 4.12
17. The economic analysis shows that the project generates an EIRR of 22.8 percent and an ENPV of
US$52.7 million at a discount rate of 10 percent. The benefit-to-cost ratio is estimated at 4.26, as shown
in table 4.6.
Table 4.6. Results of the CBA - Economic Results
Economic and Financial Indicators ICR Values
ENPV - financial net incremental benefits (US$) (discount rate 12 percent) 35.8
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Economic and Financial Indicators ICR Values
ENPV - financial net incremental benefits per ha (US$/ha) (discount rate 12 percent) 965
ENPV - financial net incremental benefits (US$, millions) (discount rate 10 percent) 52.7
ENPV - financial net incremental benefits per ha (US$/ha) (discount rate 10 percent) 1,419
ENPV - financial net incremental benefits (US$, millions) (discount rate 8 percent) 76.3
ENPV - financial net incremental benefits per ha (US$/ha) (discount rate 8 percent) 2,056
EIRR (percent) 22.8
Discounted benefit-to-cost ratio (discount rate of 10 percent) 4.26
Sensitivity Analysis of the Project Results
18. To assess the robustness of the results, a sensitivity analysis was performed on key variables,
including cropping intensity in the project areas. The analysis tests the impact of a 10 to 50 percent
decrease in the cropping intensity (or overall benefits) on the EIRR starting from 2019. The results are
shown in table 4.7.
Table 4.7. Results of Sensitivity Analysis - Economic Results
Assumptions for Sensitivity Analysis EIRR Values
EIRR for 10 percent decrease in benefits (percent) 21.3
EIRR for 20 percent decrease in benefits (percent) 19.7
EIRR for 30 percent decrease in benefits (percent) 17.9
EIRR for 40 percent decrease in benefits (percent) 15.9
EIRR for 50 percent decrease in benefits (percent) 13.6
19. The economic results are robust to changes in the cropping intensity (or overall benefits). The
project remains economically justified even for a cropping intensity reduced by 50 percent. The results
are presented in table 4.8.
Summary of Financial and Economic Results
Table 4.8. Summary of Financial and Economic Results
Economic or Financial Indicator Values
Financial Results
FNPV - financial net incremental benefits (US$, millions) (discount rate 10 percent) 46.8
FNPV - financial net incremental benefits per ha (US$/ha) (discount rate 10 percent) 1,260
FIRR (percent) 20.5
Discounted benefit-to-cost ratio (discount rate of 10 percent) 4.12
Economic Results
ENPV - financial net incremental benefits (US$, millions) (discount rate 10 percent) 52.7
ENPV - financial net incremental benefits per ha (US$/ha) (discount rate 10 percent) 1,419
EIRR (percent) 22.8
Discounted benefit-to-cost ratio (discount rate of 10 percent) 4.26
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Comparison of the Appraisal, Restructuring, and ICR Analyses
Table 4.9. Summary of Results and Assumptions Adopted by the Appraisal and ICR Analyses
Key Assumptions Appraisal Restructuring ICR
Total project area (ha) 138,901 38,752 37,130
Number of beneficiaries 166,370 54,170 106,700
Total ENPV (US$, millions) 117.4 13.8 52.7
EIRR (%) 25.1 12 22.8
Total FNPV (US$, millions) 93.5 n.a. 46.8
Per area ENPV (US$/ha) 845 356 1,419
Per area FNPV (US$/ha) 673 n.a. 1,260
Note: Total project area, number of beneficiaries, and economic and financial analysis calculations are for handed-
over schemes only. These will be revised upward once ongoing schemes are handed over.
Intangible/Unquantified Benefits
20. The project led to a range of other benefits that have not been quantified for the economic and
financial analysis. Quantifying some of these benefits would require medium- to long-term time series
data and complex modelling. Therefore, a qualitative description of the benefits is presented here.
• Education. In several scheme areas, the increase in farm surplus translated into increased
spending on children’s education, especially private tuitions in support of higher education.
Some case studies by IRMA also found increased expenditure on accessories such as school
bags, uniforms, and medical expenses among WUA members. Such investments in human
capital would improve employment opportunities and have implication for
intergenerational mobility.
• Health and nutrition. Since the project inception, several farmers have diversified their
crops in favor of fruits and vegetables. Several others have taken up fisheries. This
significantly increased farmer incomes, and at the same time improved household
consumption of vegetables and fish (IWMI). With almost 86 percent survey respondents
indicating increase in food availability, there is suggestive evidence that the project
improved nutrition outcomes of the small and marginal farmers and their families. This could
in turn contribute to better health and labor productivity. Some studies also found increased
food availability for livestock. This could in turn improve returns from owning livestock.
• Migration. By increasing water availability in the dry seasons, the project led to increased
agricultural potential and consequently demand for labor. Alternative livelihood and
income-generating opportunities within the village itself reduced the need for
seasonal/permanent migration to urban centers. An independent study by IRMA confirms a
downward trend, albeit marginal, in the degree of migration since the inception of the
project. Migration is not only costly for the individual (involving both monetary and
nonmonetary costs) but it also imposes externalities in urban cities by increase in
congestion, overburdening of existing infrastructure, and crime, among other things. The
observation that farmers ‘choose’ to not migrate when given the option suggests that they
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are better off after the project. Social welfare is also higher due to reduction in congestion
externalities. Quantifying these indirect benefits, however, is not straightforward.
• Women empowerment. The ADMI project consciously tried to involve women at all
stages—from inception (site selection, design, and construction) to O&M of irrigation
scheme. All the executive bodies of the WUAs aim at having a quarter or more of the
members as women. The project also provides for awareness creation and targeted training
for women in effective committee membership and in technical subjects related to good
irrigation and agricultural practices. The early signs are encouraging with several women
participating actively in the WUAs. In some scheme areas, women have been involved in
activities such as fisheries, cultivation in poly house, vermicomposting, and orchards. This
important implications for women empowerment through their greater involvement in
decision-making at home. A survey of female WUA members by IRMA revealed significant
increases in participation of women in decision-making processes on financial issues. Even
though participation in nonfinancial issues remained low, there is suggestive evidence that
the project led to qualitative changes in the lives of women members. A large body of
literature in economics shown that women empowerment is associated with increased
household expenditures on health and education of children (something found in the
current project areas as well). Such benefits are hard to quantify.
• Improved saving habits. WUA survey respondents demonstrate improved saving habits. For
previously credit constraints households, this can provide opportunities to investment in
better seeds and inputs for the next season. It could also be used as a cushion against
adverse weather or health shocks that have been shown to push agricultural households
into poverty.
• Improved social habits. Anecdotical evidence from a few tribal communities pointed to a
reduction in the drinking habit of men in the community as a result of increased incomes
and socialization possibilities offered by WUAs.
• Flood management. Creeks developed in the coastal area of West Bengal are likely to
contribute to flood management by creating drainage channels for the evacuation of excess
water that may result from intensive rainfalls.
• Ecological benefits. By increasing water availability, the project helped bring orchards to
previously fallow lands. This can help reduce soil erosion. Introduction of system of rice
intensification cultivation, drip and sprinkler irrigation, and soil moisture monitors helped
improve the efficiency of irrigation water.
Table 4.10. Overview of Main Assumptions Used in the CBA
No. Description Value Unit Source
Overall Assumption
1. Discount rate 10 % Same as in the PAD
2. Exchange rate US$/INR in 0.0132 US$/INR IMF website
2019
3. Project horizon 2019–2034 Years Same as in the PAD
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No. Description Value Unit Source
4. Inflation rates 10, 9.4, 5.8, 4.9, 4.5, % https://www.statista.com/statisti
3.6, 3.43, 4.54 cs/271322/inflation-rate-in-
(2012–2019) india/
Cost Assumption
5. Investment costs 152.6 US$, From the project financial data
millions
6. Annual O&M costs 1 % Assumption based on economic
analysis of other similar projects
Benefit Assumption
7. Area covered for fisheries 1,867 ha MIS of the project
under the project
8. Area covered under the 37,130 ha MIS of the project
project
9. Proportion of benefits 20% after year 1, 50% % IWMI studies
accruing after scheme hand- after year 2, and 100%
over after year 3
10. Cropping patterns and input See summary in Survey from IWMI study and
and output prices previous tables and ground-truthing data
details in survey report
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ANNEX 5. BORROWER, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS
WBADMIP Comments on ICR
WBADMI Project (2012-2019) with the World Bank support was an innovative project to reach out to the
small & marginal farmers particularly tribal and women. The Project is unique in the sense that till now all
the irrigation project/programs were executed in the silos/isolation. This is for the first time that an
integrated effort was made wherein Irrigation facilities combined with Agriculture, horticulture and
fishery activities in the created command area. More importantly, Water Users Associations (WUAs) have
been organized and empowered to operate & maintain their Irrigation schemes and better manage
available water resource in a sustainable manner. The project provided the full flexibility, human &
financial resources and single window delivery system to demonstrate integrated development model
around irrigation.
WBADMIP created irrigation potential for 67000 Ha covering 1, 00,000+ farmers (Small & Marginal
Farmers-83%, Tribal-12% and Women-17%).
The State Government is very much satisfied with the learning & experiences from WBADMIP. It has
clearly demonstrated the importance of community involvement as WUAs for long term sustainability of
the project interventions. Introduction & facilitation for the adoption of agriculture, horticulture and
fishery activities has helped in improving more effective & efficient functioning of the irrigation schemes.
Crop diversification, Introduction of Pulses & Oil seed crops in cultivable waste land, development of
private wastelands, facilitating adoption of Good practices & technologies, organic practices and
entrepreneurial activities particularly fisheries has helped in improving the socio-economic status
collectively.
The project has been very effective in improving the socio-economic status of the community especially
tribal and women, improved health-nutrition-education and has reduced conflicts & stressed migration.
WUA is now an accepted entity in the villages which participates in water management and conflict
resolution. They have operated effectively even during COVID-19, during flood etc.
Use of various technologies particularly GIS has revolutionized departmental planning, approval, design
& estimation, monitoring and impact assessment of the project. It has helped in more effective decision
making, effective, efficient & quality delivery of the desired outputs, judicious use of available resource &
cost estimates, saving in costs & wasteful expenses, establishing two way communications between the
State and District teams. More importantly it helped in taking corrective actions based on the experiences.
WBADMIP experiences & learning were intensively used in State flagship Project “Jaltirtha” Project on
Minor irrigation schemes in Western Districts since 2015. Another scheme, namely, “Matir-Sristi” deals
with Mix-fruit plantation on wastelands which has been designed based on the experiences. GIS expertise
developed under the project has been used by Panchayat & rural development Department, Ananddhara
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Project (State Rural Livelihood Mission), Kolkata Municipal Corporation etc. World Bank has also shared
these experiences at various platforms.
WBADMIP also explored and executed the possibilities of collaboration through convergence with various
departmental schemes/programs. Now the Project facilitated models are emerging where the
Departmental schemes/programs are coming forward to help the Project promoted WUAs. Project also
initiated the convergence/collaborative efforts with Private sector for high value crop production and
floriculture in Poly houses. Recently initiated Mobile based agri-advisory services “Krishi-Katha” for
agriculture and fishery activities to WUA members has been a very effective tool to reach the community
during Covid-19.
The project has collaborated with prestigious national and international institutions for Impact evaluation
and recommendation for further improvement. Those institutes include Harvard Kennedy School,
International Water Management Institute (IWMI) and Institute of Rural management Anand (IRMA),
Australian Centre for International Agricultural Research ACIAR), Indian Institute of Technology Kharagpur
etc. and reached at the stage of collaborative working agreement with International Center for
Agricultural Research in Dry Areas (ICARDA) and World Agro Forestry Center etc.
Department has proposed formation of design-cum-GIS Cell and WUA cell in the Department supported
by Project’s experience. This is to ensure WBADMIP’s Standard operating procedures as Department’s
common practice. The only challenge is to meet the cost of NGOs as support organizations for promoting
WUA system. The proposal is being submitted to the finance Department for their approval.
WBADMIP has demonstrated and has come out with various District/Agro-Climatic region / different
topography specific models and now the Department has realized the importance of these models and is
willing to adopt these experiences in their departmental regular practices. The challenge with the
department is to institutionalize the whole process and continued World Bank support will help the
department to institutionalize and replicate the Project learning/experiences.
Accordingly the Department has submitted proposal for the World Bank support as WBADMIP-Phase II as
replication phase for six years. It is with the objective to increase the income of the 250000 farmers by
creating 125000 Ha additional command area through agribusiness support to Water Users
Associations/Federations (Farmers Producer Organizations-FPOs). It will be mainly to upgrade existing
Schemes/WUAs, Strengthening Departmental Schemes and new schemes created by the Project.
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ANNEX 6. SUPPORTING DOCUMENTS (IF ANY)
1. World Bank. 2011. West Bengal Accelerated Development of Minor Irrigation Project. Project
Appraisal Document. Report No: 60529-IN, 122p.
2. World Bank. 2011. West Bengal Accelerated Development of Minor Irrigation Project. Loan
Agreement. Loan Number 8090-IN, 14p.
3. World Bank. 2011. West Bengal Accelerated Development of Minor Irrigation Project. Financing
Agreement. Credit Number 5014-IN, 13p.
4. World Bank. 2016. West Bengal Accelerated Development of Minor Irrigation Project. Restructuring
Paper. Report No: RES18898.
5. World Bank. 2017. West Bengal Accelerated Development of Minor Irrigation Project. Restructuring
Paper. Report No: RES28658.
6. World Bank. 2017. West Bengal Accelerated Development of Minor Irrigation Project. Restructuring
Paper. Report No: RES29816.
7. Project supervision documents, Aide Memoires, and ISRs.
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ANNEX 7. PROJECT INNOVATIONS AND GOOD PRACTICES
Project Management through NICT
1. During the initial implementation phase, the project faced challenges associated with the
agroclimatic diversity of the State of West Bengal. The crucial challenge of the project was then to
reconcile the objectives of targeting poverty with the imperatives of accounting for the availability of
water resources in the context of geographic diversity. To overcome these difficulties, the project adopted
the use of a robust system based on NICTs supported by WebGIS technology. The system harmoniously
combined remote sensing datasets with GIS-enabled tools such as the Google Earth Engine. This system
was used to conduct sound project management with the following specific outcomes.
2. NICT provided opportunity to modernize and expedite the planning process during the second
phase of implementation. The ability to locate appropriate project areas is a crucial part of the irrigation
planning process. Extensive use of remote sensing and GIS was instrumental in achieving the project
objective. These tools played a major role in rapid identification and assessment of suitable areas for the
development of various types of irrigation schemes. The villages were selected based on GIS data which
enabled field officials to reach to those areas and start fieldwork. This reduced selection time
considerably. The WebGIS system enabled stakeholders to access appropriate information on agriculture
practices and advanced technologies ultimately contributing to increased production.
3. By allowing customization, the system supported the design of I&D structures in the context of
agroclimatic variety. The construction of minor irrigation structures was one of the main investments
under the project. By design, structures are dispersed over large tracts of rural areas that are often difficult
to access. Due to the lack of adequate hydrogeological information, several government projects have
failed to account for the diversity of communities’ situations and resulted in flawed designs. Traditionally,
weir type structures on streams were constructed with inaccurate assumptions due to unreliable
hydrogeological data, resulting in hydraulic failure of the structure with the loss of public money. With
the implementation of the GIS-based approach under the WBADMI project, the information needed to
design schemes was easily available to workers in the field even in remote areas which enabled the
construction of adapted structures. The online automated system generated vital parameters including
the catchment area, peak flood discharge, and suitable width and height of check dams. With these data,
the design was fine-tuned, leading to safer and more economically viable structures.
4. The GIS-MIS based IT system was instrumental in project monitoring. Although each subproject
is located in remote rural areas, they could be individually tracked with the live monitoring system in the
online platform supported with project’s photos. The automated system facilitated the decision-making
for midcourse correction by allowing to assess the adequacy between resource availability, irrigation
technology, and community needs. The system informed evidence-based approach to shift the focus of
the project to western districts and was a powerful instrument to persuade stakeholders. It also facilitated
regular project monitoring by updating the project manager with current status of projects supported by
geotagged photos.
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Figure 7.1: Illustration of impact of intervention through change in cropping area and cropping intensity
5. NICT offered a powerful suite of products for the impact assessment of the project. Through
satellite imagery combined with Google Earth Engine, the project was able to monitor the evolution of
various indicators including cropped area and agricultural production. By analyzing images before and
after implementation of schemes, the project collected precious information on areas cropped in rabbi,
kharif, and pre-kharif as well as the volumes of water available to estimate production. Owing to this
visualization of the landscape, the project could observe visible transformation from single cropped to
double cropped area, tracking the performance of schemes and the demonstration programs.
Adaptation of Solutions to Agroclimatic Zones and Adoption of a Holistic Landscape Management
Approach
6. One of the success factors of the project was the flexibility to tailor interventions to the diversity
of communities and of agroclimatic zones. West Bengal’s agroclimatic zones range from the northern hilly
areas to the southern coastal saline areas. These zones correspond to a large variety of geological realities.
Smart interventions in the form of minor irrigation and innovative intercropping and plantation supported
by the right information and tools have significantly improved the socioeconomic conditions and reduced
vulnerability of the farmers in the project area.
7. In the southern coastal area, the project took advantage of the presence of preexisting creeks
that were excavated to create more than 205 km of water detention structures, especially in the coastal
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region of Sundarbans. This increased water availability, resulting in an extra winter crop on more than
2,000 ha of land. These water detention structures allowed communities to promote novel ideas such as
profitable recreational angling targeting city dwellers.
8. In the western lateritic zone, waste land located in upper lands were converted to orchards by
planting over 1.26 lakh saplings (for example, mango, cashew, pineapple) through intercropping. In 2019,
more than 300,000 saplings were planted on 522 ha of waste land.
9. In the northern zone, the project adapted agronomic solutions to the context of the area. One of
the main issues pertains to the presence of elephants causing damage to plantations. This situation could
be a great disincentive for farmers to engage in new ventures. The project proposed the cropping of
pepper and lemon trees that are repulsive to elephants.
Adoption of a Watershed-based Approach
10. The project progressed from a scheme-level implementation to cluster approach and then finally
watershed-based approach. At the community level, it was the first time that communities were involved
from the planning stage and the schemes were customized to manage them. The project philosophy was
to serve the village and not only a selected group in the village. The watershed scale ensures balancing of
surface water and groundwater use while also extending the scope of project to upland development.
11. The major event that shaped project implementation was the MTR 2014. The MTR in addition to
recommending fine-tuning of the Results Framework recommended strategic way forward actions which
shaped project implementation on a result-oriented trajectory: (a) adopting segmentation approach to
target irrigation services to most needy areas, (b) revitalizing already made minor irrigation investments,
(c) empowering WUA for institutional sustainability, (d) strengthening SPMU capacity for accelerating
implementation, and (e) strengthening need-based skill mixes within the SPMU/DPMU. In addition, the
project brought about a series of operational innovations to reduce cost, improve sustainability and create
demand for irrigation services.
(a) Segmentation approach. Based on the current status of irrigation development already
achieved and potential diversities in agro-climatological and hydrogeologic factors existing
in the project districts, a segmentation approach was adopted. The project districts were
segmented into (i) focused districts characterized by low cropping intensity, mainly rainfed,
limited groundwater potential where 70 percent of new irrigation investments will be
targeted and (ii) the currently irrigated areas where the need will be efficient water
management practices and introduction of high-value agribusiness investments. The
focused districts were Purulia, Bankura, Birbhum, Paschim Medinipur, and South 24
Parganas.
(b) Empowering WUA for institutional sustainability. To build the organizational capacity of
WUA, hand-holding support on social accountability, governance, conflict resolution
mechanism, grading system for WUA, and manuals were provided. These measures helped
sustain performance of WUA on equity, participation, transparency, and accountability.
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(c) Market-based cultivation of high-value crops with ‘safe-to-eat’ concept. To convert gains
of productivity and production improvement into incomes for farmers, the project
introduced crop scheduling and planning, access to market information, bio-village
initiatives, and so on. Rather than focusing on all traditional crops, selected crop value chains
were targeted for crop diversification to high-value and nutritive crops. Organic cultivation
initiatives using good agricultural practices was introduced through bio-villages. One of the
major improvements was enhanced private participation and resources leveraged.
(d) Strengthening SPMU capacity for accelerating implementation. The project strengthened
the skill mix of the SPMU/CPMU to bring in expertise in the emerging areas of project vision
and strategic focus as compared to original staff plans. Since a lot of focus was initially on
process improvements, technology innovations, and quality than quantity, the project
needed additional staff support to accelerate implementation and chase project targets.
Operational Innovations
12. The project was following an active learning approach in implementation. Implementation issues
were documented and innovative solutions were creatively sought. Such an approach of continuous
improvement resulted in a homegrown model for picking the right technology type given the contextual
characteristics of the area including socioeconomic parameters. The key innovations are summarized
below in table 7.1.
Table 7.1: Key innovation areas and good practices
Innovation Area Usual Practice Innovation Implemented Benefits Achieved
Selection of scheme Randomly select locations Cluster of schemes within a • Equity in meeting irrigation
sites preselected polygon based needs
on micro-watershed • Sustainability of schemes
Selection of scheme Arbitrarily without Used digital technologies • Reduction in proportion of
type hydrological evaluation such as GIS, remote sensing, defunct schemes
georesistivity, digital logging
for evaluation
Scheme proposal Conventional DPR format Participatory SDMP • Comprehensive technical,
preparation preparation social, geographic, technical,
and livelihood focus.
Energizing schemes Erratic electricity or costly Solar-based hybrid • Reliability of service
diesel mode • Reduction in operating
costs
• Reduction in carbon
footprint
Lift irrigation Old model design Only mini river lift irrigations • Failure rate reduced
, with water storage
development first and then
lift
Check dams One design across the state GPS integrated total • 50% reduction in cost and
station/3D imaging data for stable structures, sustainable
designing schemes
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Innovation Area Usual Practice Innovation Implemented Benefits Achieved
Tube well All types of schemes Light duty deep tube Well • Manageable schemes by
with submersible pumps, WUA
after locating aquifer using
digital georesistivity survey
Strengthening Community-based Institutions
13. The project created and strengthened WUAs to perform basic I&D functions. These functions can
be grouped into three categories (a) O&M of irrigation scheme; (b) water management practices including
water budgeting, schedules of water deliveries, water use efficiency, and water application at the field
level; and (c) agricultural support services including crop plans, crop diversification, and market links
embedded in key guiding principles including participation and inclusion. The process of formation and
nurturing of WUA followed a robust phased approach. During preplanning, intensive awareness campaign
motivated farmers, especially tribal communities, to play a central role in appropriating the project
concept. The planning phased followed rigorous SDMP that enabled to prepare integrated I&D solutions.
During implementation, WUA registration, trainings, and demonstrations contributed to the uptake of
advanced practices.
14. Performance management mechanism. To incentivize WUAs, the project adopted performance
management mechanism based on broad grading parameters pertaining to governance, water
management, market links, and innovation. A+, A, and B scores were used to classify WUAs. This
instrument allowed the monitoring of WUAs to calibrate the support to be provided. It also acted as an
information and comparison tool among WUAs which were able to engage in healthy competition.
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