This article provides and overview of flood forecasting work of Central Water Commission (CWC) in 2019 after looking closely at each site details for the five regions of India: North East[i], East[ii], North[iii], West[iv] and South[v] India.
The table below provides an overview of number of Level Forecasting, Level Monitoring and Inflow forecasting sites as per CWC’s FF website during 2019 floods for all the states and regions of India.
Central Water Commission is the only agency doing flood forecasting in India. As per CWC’s Flood Forecasting website[i] the Data Flow Map has information about 226 Flood Forecast Sites in the country comprising of 166 Level Forecast Sites and 60 Inflow Forecast Sites. It also monitors 700 other sites, information is made available through List Based Exploration and Hydrograph View, but no flood forecasting is done for these sites.
The state of Assam in the northeastern India annually bears the brunt of floods and where embankment construction and repairing seems like permanent affair. Displacement of people living on the banks of rivers due to river bank erosion is another major issue here. The braiding and meandering river Brahmaputra and its tributaries continue to erode the banks rapidly. The Brahmaputra is well known for the rate in which it erodes. Among the places in the path of the river where the brunt of erosion has been felt severely include the following:
– Rohmoria and Dibrugarh town in Dibrugarh district,
– Matmora in Dhakukhana subdivsion of Lakhimpur district,
– Majuli and Nimati Ghat in Jorhat district,
– Lahorighat in Morigaon district and
– Palashbari and Gumi in Kamrup district.
Map of areas taken up for erosion protection in Assam. Source– Assam 2011, A Development Perspective, published by Planning and Development Dept., Govt. of Assam
SANDRP recently traveled to Matmora and Nimati ghat, two of these areas.
Bearing the Brunt of Erosion Silently Once a large village now only the name Matmora remains. Locals show us towards the middle of the river, to indicate where the village used to be. The rate of erosion is such that the Brahmaputra dyke from Sissikalghar to Tekeliphuta (popularly known as Sissi-Tekeliphuta dyke/embankment) takes the shape of a bow for nearly five kilometers at this place. From 2010, Matmora became very significant in the embankment history of India since country’s first embankment using geo-textile technology was constructed here. This was constructed at the bow shaped eroded line using geotextiles tubes. These tubes were filled up using water and sand from the banks of the river. This five kilometer embankment became a part of the Brahmaputra dyke from Sissikalghar to Tekeliphuta which is 13.9 km long. For the state government and Water Resources Department (WRD) of Assam, Matmora geotube embankment is a story of success of preventing floods and erosion. But what we saw in Matmora presents a different picture.
At Nimati Ghat, the river Brahmaputra is eroding its banks ferociously and people are intimidated by the river. A local person whose village used to be nearly two kilometers from the present bank line, told me, “Nothing can stop Baba Brahmaputra from claiming what he wants”. At Nimati Ghat, the Water Resources Department (WRD) is doing anti erosion work using geo-bags.
Funding for Embankments in Assam The total length of embankments in Assam is 4448 km as stated in a debate in the Legislative Assembly of Assam in 1998. Even though the present length of embankments is not known, it is very clear that the state of Assam continues to construct of newer embankments. In a recent analysis by SANDRP, it was found that the funds continue to increase for construction of embankments in the state. In five years from January 2009 to December 2013, the Advisory Committee in the Union Ministry of Water Resources for consideration of techno-economic viability of Irrigation, Flood Control and Multi-Purpose Project Proposals (TAC in short) had given clearance to projects worth Rs 1762.72 crores. A detailed list of these sanctioned projects can be found in Annexure 1 below.
Matmora Geo-tube embankment after its construction in 2010. Source– Assam 2011, A Development Perspective, published by Planning and Development Dept., Govt. of Assam.
Has Geo-tube been helpful for the people Between January 2009 to December 2013, the Brahmaputra dyke from Sissikalghar to Tekeliphuta, was considered twice by the TAC. The committee in its 95th meeting on 20th January 2009 accepted the project titled “Raising and Strengthening to Brahmaputra dyke from Sissikalghar to Tekeliphuta including closing of breach by retirement and anti-erosion measures (to protect Majuli and Dhakukhana areas against flood devastation by the Brahmaputra, Lakhimpur district, Assam). The estimated cost of this project was Rs 142.42 crore and its project proposal envisaged – (i) Raising and strengthening of embankment for a length of 13.9 km, (ii) Construction of retirement bund with geo-textile tubes of length 5000 m. (iii) Construction of 2700 m long pilot channel.
Geo-tube embankment in Matmora, three years after construction. Photo: SANDRP.
Protection work of the same dyke was considered in the 117th meeting held on 21st March 2013 under the proposal for “Protection of Brahmaputra dyke from Sissikalghar to Tekeliphuta at different reaches from Lotasur to Tekeliphuta from the erosion of river Brahmaputra Assam.” The estimated cost of this project was Rs 155.87 crore. According to the minutes of 117th TAC meeting, the scheme envisaged “restoration of existing embankment in a length of 15300m at upstream and downstream of existing geo-tube dyke, Sand filled mattress in a length of 15604 m at river side slope, geo-tube apron length of 7204 m and Reinforced concrete porcupines as pro-siltation device at different reaches to prevent floods and erosion in Dhakukhana Civil sub-division of Lakhimpur district and Majuli sub-division of Jorhat district.” In the same minutes,while referring to the previous project proposal of 95th meeting the minutes stated that, it “was taken up primarily for closure of breach in the existing embankment including raising of embankment around the breach area only. The proposed works in the present scheme were in the same river reach and these would be required to protect the bank from further erosion and provide flood protection.”
This clearly shows that the geo-tube embankment in Matmora cannot be called a success. Government documents which showed that major part of the Brahmaputra dyke from Sissikalghar to Tekeliphuta remained vulnerable even after the construction of the geo-tube embankment. In fact submitting a proposal for the whole Sissi-Tekeliphuta embankment at first and later saying that the money was spent in constructing a smaller part of the embankment also raise questions. The time gap between the two proposals also raises questions. If the whole money from first proposal was to be spent in constructing only a part of the embankment, why was it not stated clearly in the first proposal? In fact, this was not stated in the first proposal and second proposal reflects that the first project failed to achieve the objectives. If the first proposal was indeed only for part of the embankment, why the proposal to strengthen the larger part of the embankment took 5 years to appear before the committee? The latter proposal also did not mention about the breach which swept away a large part of the Sissi-Tekeliphuta embankment from Jonmichuk to Amgiri Tapit under Sissikalghar and Jorkata village panchayat. According to the local people this breach occurred in the morning hours of 25th June 2012. The photo below shows the breach happened at the Jonmichuk end.
The breached area of 2012. This photo is taken from the new embankment and the lake formed at this spot can also be seen. Photo – SANDRP
Jonminchuk area is nearly 15 km upstream of the geotube embankment in Matmora and part of the Sissi-Tekeliphuta embankment. A new embankment of nearly four kilometer long is being constructed at this place but the remnants of the old embankment still exist. The embankment was breached for nearly 3 kms and the water which entered the fields during that time could no longer go out and a large lake has been formed at this place, see the photo. It was surprising to see people living in the patches of the old embankment.
In the downstream, right from the point where the geo-tube embankment ends, the condition of the Sissi-Tekeliphuta embankment is pathetic. There were cracks in the embankment and water seepage has almost shattered the embankment. The embankment was in need of urgent repairs.
Condition of the Sissi-Tekelphuta embankment at the end point of the geo-tube embankment towards the village side. Photo – SANDRPSissi-Tekelphuta embankment at the same spot mentioned above towards the river side. Photo – SANDRP
Besides, one does not have to travel far to find erosion in the downstream of the geo-tube embankment. After travelling, less than three kilometers from the end point of the geo-tube embankment, rapid erosion was observed at the place where the Matmora and Tekeliphuta ghats join, due to low water level. This joint ghat is more than a kilometer from the toe line of Sissi-Tekeliphuta embankment but seeing the rapidity of the erosion the locals opine that the river would reach the toe of the embankment within this monsoon. It was difficult to believe that the river can erode so fast, until a young man pointed towards a black line in the middle of the river and said that that area which now seemed to be char/sand bar used to be his village three years back. He with his family now live beside the embankment. In this ghat we also witnessed that spurs constructed from the embankment inside the river, mainly to divert the flow of water, have been eroded as well.
The Spur has also been eroded. Photo – SANDRPErosion at Matmora-Tekeliphuta Ghat. Photo – SANDRP
It is also important to note that protection of Majuli from floods was one of the main aims of the geo-tube embankment project, but there were reports of devastating floods affecting Majuli in 2012 & 2013.
After geo-tube comes geo bags With the construction of geo-tube embankments being hailed as a success by the state government, construction of embankments using geo-bags followed. Geo-bags are smaller than geo-tubes and come at a cheaper cost. Embankments on many rivers were constructed using geo-bags which were also used for erosion protection. But effectiveness of the geo-bags as protective measure to flood and erosion, still remains disputed. A news report titled “ADB, river engineers differ on geo-bags” published in Assam Tribune on 9th September 2010 reported about the difference of opinion among the water resource engineers of Assam and powerful lobby of the Asian Development Bank (ADB) for the use of geo-bags to resist Brahmaputra erosion in Palasbari-Gumi and Dibrugarh. Referring to the engineers the news report stated “They have alleged that the ADB provided 23,000 geo-bags for an experiment. They were dumped in the month of September 2009 at a 150-metre-long selected erosion-prone reach at Gumi for testing their efficacy. But, a diving observation made in the month of December 2009, suggested that the bags were not launched uniformly in a single layer as it was claimed. They were found lying in a haphazard manner in staggered heaps with gaps in between and the total distance they covered was only about 8 metres, against the claimed and required 35 metres…..The ADB then carried out another diving observation at Gumi in May last (2010) and found no bag at the site. The State WRD did not get any feedback from the ADB on this issue.”
Work of piling up the geo-bags is going on in Nimati Ghat. Photo – SANDRPStatus of the geo-bags put last year. Photo – SANDRPThe spot where not a single Geo-bag was seen. Photo – SANDRP
Nimati Ghat was the other place which SANDRP visited to find out the effectiveness of geo-bags. The work of piling up the geo-bags for erosion protection was going on when SANDRP visited the area in the second week of April 2014. The bags which were used previously for the same purpose were seen to be mostly lying in water in shattered condition. Locals told us that majority of the bags are now under water. In the eroded bank line, these geo-bags were lying without any order and in a way suggesting how the river has dealt or to say played with these jumbo bags. In this bank line, there was a stretch of nearly five meters where the river has eroded more than the other parts. At this stretch none of the geo-bags were to be seen.
There were also contradictions regarding when the present erosion protection work at Nimati ghat had started. Some of the shopkeepers of the ghat said that the work of putting up geo-bags started in February 2014. But according to the contractor in charge of the work, the work started in November 2013. Construction or repairing of embankment just few months before the advent of monsoons is one of the constant criticisms, leveled against the Water Resources department of the state and in Nimati too we heard the same complaint.
Is Geo-tube really a ‘permanent solution’ to floods? In the present discourse of floods in Assam this has become a very significant question. The local people have been fed with various information about geo-tube and most of which are wrong. The life of embankment constructed using geo-tube is of 100 years, we were told by the locals when we travelled to the upstream areas of Matmora geo-tube. This is absolutely not true. In fact, for Prof Chandan Mahanta of IIT Guwahati the scouring[1] done by the river Brahmaputra will be the major cause of concern for geo-tube embankments in the long run.
The geo-tube embankment has already faced threat of scouring right after its construction in the monsoons of 2011. It was on the morning of 14th July, 2011 when two of the apron tubes at the tail of the embankment, were launched due to increase force of water. The apron tubes were laid at the toe of the geo-tube embankment and with the increased force of water scoured at the bottom by the embankment toe line. WRD engineers flung into action and immediate repairing work was taken up at the site. According to WRD engineers this had happened because the trees which were left outside the embankment had obstructed and increased the force of water and they were immediately cut down. Concrete porcupines were also thrown into the water. Asomiya Pratidin, a regional newspaper reported this on that day but thereafter no report on this could be found. The incident was almost forgotten. When we visited the geo-tube embankment, it was observed that along the toe-line of the embankment a scour line runs for substantial length of the embankment. This clearly shows that scouring by the river has increased in this area. The news report published in Assam Tribune [2]also points out a significant problem associated with geo-bags – “The lobby is mounting pressure for use of geo-bags in the form of bank revetment. Bank revetment is generally not adopted in Brahmaputra because of many reasons. Most important of them is – it produces a permanent deep channel along the existing riverbank.”
On the issue of lobbying behind geo-tube, an interesting perspective was provided by activist-researcher Keshoba Krishna Chatradhara who coordinates ‘Peoples’ Movement for Subansiri and Brahmaputra Valley (PMSBV)’. He opines that the construction of geo-tube embankment in Matmora was an experiment, done to see whether such embankments can withstand the flood and erosion of Brahmaputra. The reason for choosing Matmora first and not other severe erosion affected places like Dibrugarh or Rohmoria, was because even if the embankment fails it won’t be as significant loss for the state compared to those places. Dibrugarh is one of the most important towns of upper Assam with a glorious history whereas Rohmoria became important for the state when Oil India Limited found oil deposits in Khagorijan[3]. Infact several local people and activists also opined that the Sissi-Tekeliphuta embankment which is on the north bank of the river was cut several times, to save the areas in the upstream south bank, mainly the Dibrugarh town. They said that in the past, before the geo-tube embankment came, whenever there was any news of water rising in Dibrugarh, there would soon be a breach in Sissi-tekeliphuta embankment. In fact considering these breaches in the larger Sissi-tekeliphuta embankment, Mr. Chatradhara opined that even if the geo-tube embankment survives the flood, erosion and breaches in future, it might become a small island in midst of a submerged land as there will surely be breaches in the rest of the Sissi-Tekeliphuta embankment.
ADB loan for Geo-textile Embankments in Assam After the construction of the geo-tube embankment at Matmora, the state government is leaving no stone unturned to make it sound like a glorious success. But it is surprising to know that, even before the Matmora embankment was commissioned in December 2010, the state government have filed proposal for two more embankment project where geo-textile would be used for construction and got it cleared. The two subprojects of Assam Integrated Flood River Bank Erosion Risk Management Project (AIFRERM) in Dibrugarh and Palashbari were cleared in the 106th meeting of TAC held on 16th September 2010. It is important to note that for the total AIFRERM project ADB is giving a loan of $56.9 million. The cost of Dibrugarh and Palashbari subprojects are Rs 61.33 crore and Rs 129.49 crore respectively. But these investments have been cleared without even doing a post-construction impact assessment of Matmora geo-textile embankment. The Palashbari subproject also included erosion protection for Gumi area through the use of geo-bags but the Assam Tribune report quoted above already mentioned about how geo-bags scheme has failed in that area.
It is important to note here that, the first geo-tube embankment has been constructed only three years back and it would be premature to give any verdict of success, on the contrary there are many signs of failure. But the state government of Assam and the Assam Water Resources department are claiming it as success without really any credible basis and than have used that self certification to go on building more embankments using geo-textile and in several occasions these plans have failed. They first should have done a detailed impact assessment of the embankment at Matmora before going on building more embankments of the same nature.
It seems the Assam government, ADB and CWC are pushing these projects to deflect attention from the failure of embankments in flood management. Such attempts won’t succeed, but it is possibly a ploy to prolong the use of embankments as a flood management technique.
Parag Jyoti Saikia (meandering1800@gmail.com)
Annexure 1
Flood and Erosion Projects approved for Assam – 2009 to 2013
TAC meeting no & date
Project
Appr. year
River/ Basin
L of Emba. (m)
Original (revised) Cost-CrRs
Benefitting area (Ha)
Decision
95th -20.01.2009
Protection of Sialmari Area from the erosion of Brahmputra
2002
Brahmaputra
NA
14.29 (25.73)
NA
Accepted
Protection of Bhojaikhati, Doligaon and Ulubari area from the erosion
2002
Brahmaputra
NA
14.52 (27.92)
NA
Accepted
Raising & strengthening Brahmputra Dyke from from Sissikalghar to Tekeliphuta including closing of breach by retirement and anti erosion measures
New
Brahmaputra
NA
142.42
NA
Accepted
96th -16.02.2009
Flood protection of Majuli Island from Flood and Erosion Ph-II & III
New
Brahmaputra
NA
115.03
NA
Accepted
Restoration of Dibang & Lohit rivers to their original courses at Dholla Hattiguli
New
Brahmaputra
NA
23.32 (53.11)
NA
Accepted partly & suggested that proposal of coffer dam, pilot channel, etc. to be put up for expert opinion
101st -30.11.2009
Raising and strengthening to Puthimari embankment
New
Brahmaputra
NA
30.23
15000
Accepted
Anti Erosion measures to protect Brahmputra Dyke on left bank
New
Brahmaputra
NA
27.97
5000
Accepted
Protection of Gakhirkhitee & adjoining areas from erosion
New
Brahmaputra
NA
19.06
20,000
Accepted
102 -28.1.’10
Emergent measures for protection of Rohmoria in Dibrugarh District
New
Brahmaputra
NA
59.91
18,000
Accepted
106th -16.09.2010
Raising and strengthening of tributary dyke along both banks of Kopili River
New
Kopilli/ Brahmputra
NA
110.72
NA
Accepted
Assam Integrated Flood River Bank Erosion Risk Management Project
New
Brahmaputra
NA
61.33
NA
Accepted
Assam Integrated Flood River Bank Erosion Risk Management Project
New
Brahmaputra
NA
129.49
NA
Accepted
110th – 20.07.2011
Protection of Majuli from Flood and Erosion Ph II & III
2011
Brahmaputra
115.03
Accepted
Restoration fo rivers Dibang & Lohit to their original courses at Dholla Hatighuli
2011
Brahmaputra
54.43
Accepted
111th – 17.08.2011
Protection of Biswanath Panpur including areas of upstream Silamari and Far downstream Bhumuraguri to Borgaon against erosion
New
Brahmaputra
167.09
Accepted
117 – 21.3.’13
Protecion of Sissi-Tekeliphuta dyke from erosion – Lotasur to Tekeliphuta
New
Brahmaputra
153000 m
155.87
153000 m
Accepted
118th – 30.07.2013
Flood management of Dikrong along with river training works on both banks embankment
New
Dikrong/Brahmaputra
105.96
Accepted
Flood management of Ranganadi along with river training works on both bank embankments
New
Ranganadi/Brahmaputra
361.42
Accepted
[1] Scour can be termed as a specific form of the more general term erosion. In case of geo-tube embankments Scour is the removal of sediment from the bottom of the geo-tubes. Scour, caused by swiftly moving water, can scoop out scour holes, compromising the integrity of a structure.
[3] See ‘Rohmoria’s Challenge: Natural Disasters, Popular Protests and State Apathy’ published in Economic and Political Weekly, Vol XLVI NO 2, Janurary 8, 2011.
This is analysis of the decisions of the Advisory Committee in the Union Ministry of Water Resources for consideration of techno-economic viability of Irrigation, Flood Control and Multi Purpose Project Proposals (TAC in short) for North East India[1] from 95th meeting of January 2009 to 122nd meeting held in December 2013. In our last analysis of TAC minutes we have covered the decision taken for NE states from July 2011 to December 2013 which is available at – https://sandrp.wordpress.com/2014/03/19/lack-of-transparency-and-accountability-remains-the-norm-of-functioning-for-mowrs-advisory-committee/. In this analysis, we have covered the same for an extended period. In these five years TAC has accepted project proposals worth of 5515.46 crores. In calculating the total cost of the projects considered we have considered only the projects whose proposals were given clearance by TAC. In these five years, some of the projects also made two appearances with revised costs. In such cases the higher revised cost has been taken into consideration, e.g. Khuga Multipurpose Project and Dolaithabi Barrage Project, both located in Manipur were accepted by the committee in its 100th meeting (held on 9th October 2009) with revised cost of Rs 381.28 crore and 251.52 crore respectively. In the 115th meeting (held on 24th July 2012) of the TAC, these two projects were considered again where the cost for Khuga Project was Rs. 433.91 cr and for Dolaithabi Project it was Rs. 360.05 Cr. The same is the case for the Thoubal Multipurpose Project which appeared in 101st and 115th meeting of the TAC.
Within these five years, TAC has given financial clearance to 26 flood and erosion control projects and majority of these projects are from Assam. The committee gave the clearance to 6 irrigation projects, 3 barrage projects and 3 multipurpose projects.[2] The committee also gave clearance to a strom water drainage improvement project below Greenfield Airport at Pakyong in Sikkim within this period.
In this period, largest no of considered (25) and approved (20) projects were from Assam. Assam also has the maximum cost of projects among all states (Rs. 2631.99 Cr). Highest number of projects were considered (16) and approved (14) in the year 2009, with total cost of Rs 2321 Crores, which too was highest among all the years.
As found in our previous analysis, in the last five year from 2009 to 2013 TAC has not rejected a single project. Five projects had been deferred but were approved in the subsequent meetings within the same period. In the 108th meeting (held on 4th January 2011), the TAC did not discuss two projects on the Brahmaputra river stating “It was observed that the flood control and anti erosion scheme of Brahmaputra Board are implemented through Central Fund, which do not require investment clearance from the Planning Commission. Therefore, these schemes need not be put up to the Advisory Committee. However, the technical aspect of such project may be looked into by Central Water Commission as per past practice.” But both these projects were reconsidered in the 110th meeting of TAC (held on 20th July 2011) and were cleared by the committee.
So this seems like a rubber stamping committee, clearing everything that comes to it. Reading of the minutes of the meetings also reveals that there are hardly any critical questions asked on merits of the questions for the massive delay and cost escalations that most of the projects suffer. Nor is there an discussion about the performance of the projects.
As we noted earlier, this committee functions in most non transparent, non participatory and unaccountable way. Neither the minutes nor the agenda notes of the meetings are in public domain. Following our letters along with TAC analysis in April 2011, addressed to Planning Commission, Union Ministry of Water Resources, Central Water Commission and members of the National Advisory Council, for the first time, TAC minutes were put up on CWC website (see: http://www.cwc.gov.in/main/webpages/TAC%20minutes.html). However, the last uploaded minutes were for the 115th meeting held in July 2012, after which minutes have stopped being uploaded. Secondly, some of the links are not working and all the files are unnecessarily large PDF files since only scanned pages of the minutes are put up, in place of the PDFs of normal word files, which would be of much smaller size. The TAC also has no independent, non government members, all the members are government officials. As we wrote to MoWR and Planning Commission in April 2011 and again in March 2014, there is urgent need for TAC to have such members so that they provide objective perspective about the projects that come up before TAC.
The importance of functioning of this committee cannot be over emphasised. As we wrote in our letter to MoWR and Planning Commission, TAC “considers dozens of such projects with huge economic, social, environmental and other implications for the country in every one of its meetings. All of these projects are supposed to be public purpose projects, and are taken up using public resources. The Planning Commission accords investment clearance to the projects only after the TAC clearance. This Committee’s decisions are perhaps the ones which impact on India as a whole the most – as they relate to land and water – which are the basic life sustaining and livelihood providing resources for the people.”
It is high time that first effective steps are taken to ensure that the functioning of this committee becomes more transparent, participatory and accountable.
State-wise list of projects cleared by TAC
State
No of Projects Considered
No of projects approved
Total cost of the projects
Arunachal Pradesh
4
4
106.6
Assam
25
20
2631.99
Manipur
10
10
2268.99
Meghalaya
1
1
5.63
Sikkim
1
1
48.55
Tripura
6
6
453.7
Note: No projects from Mizoram and Nagaland have come to TAC in this 5 years period.
Year-wise List of Projects Cleared by TAC
Year
No of Projects Considered
No of projects approved
Total cost of the projects
2009
16
14
2321
2010
5
5
663.67
2011
12
9
497.33
2012
5
5
2208.81
2013
9
9
1439.45
Meeting-wise List Projects Cleared by TAC January 2009 to December 2013
Sl. No
Meeting no
Date of meeting
No of projects considered
No projects approved
No of projects deferred
No of projects rejected
Total cost of the accepted projects, Rs Crore
95th
20.01.2009
4
3
1
0
196.07
96th
16.02.2009
2
2
0
0
168.14
100th
09.10.2009
6
5
1
0
264.73
101st
30.11.2009
4
4
0
0
77.26
102nd
28.01.2010
1
1
0
0
59.91
103rd
11.03.2010
1
1
0
0
302.22
106th
16.09.2010
3
3
0
0
301.54
108th
04.01.2011
2
0
2
0
0
109th
04.03.2011
3
3
0
0
70.13
110th
20.07.2011
5
4
1
0
211.56
111th
17.08.2011
1
1
0
0
167.09
112th
14.09.2011
1
1
0
0
48.55
115th
24.07.2012
5
5
0
0
2208.81
117th
21.03.2013
1
1
0
0
155.87
118th
30.07.2013
2
2
0
0
467.38
119th
29.08.2013
2
2
0
0
601.67
120th
13.09.2013
1
1
0
0
42.96
121st
08.10.2013
2
2
0
0
146.01
122nd
20.12.2013
1
1
0
0
25.56
Total
47
42
5
0
5515.46
95th meeting (20.01.2009): Accepted TOTAL – Rs 196.07 crores (revised costs have been taken into consideration)
SN
Project
Dist/ State
Appr. year
River/ Basin
Original (revised) Cost-CrRs
Decision
1
Protection of Sialmari Area
Morigaon/ AS
2002
B’putra
14.29 (25.73)
Accepted
2
Protection of Bhojaikhati, Doligaon and Ulubari
AS
2002
B’putra
14.52 (27.92)
Accepted
3
Protection of Majuli Island Ph II-III
AS
New
B’putra
116.02
Deferred the proposal with suggestion to prepare the cost at current prices.
4
Raising & strengthening Dyke from from Sissikalghar to Tekeliphuta including closing of breach by retirement and anti erosion measures
AS
New
B’putra
142.42
Accepted
96th meeting (16.02.2009): Accepted Total – Rs 168.14 crores
SN
Project
Dist/ State
Appr. year
River/ Basin
Original (revised) Cost-CrRs
Decision
1
Flood protection of Majuli Island Ph-II & III
AS
New
B’putra
115.03
Accepted
2
Restoration of Dibang & Lohit rivers to their original courses at Dholla Hattiguli
AS
New
B’putra
23.32(53.11)
Accepted partially & suggested that proposal of coffer dam, pilot channel, etc. may be put up to the Standing Committee for expert opinion
100th meeting (09.10.2009): Accepted: TOTAL – Rs 897.53 crores
SN
Project
Dist/ State
Appr. year
River/ Basin
L of Dam
Original (revised) Cost-CrRs
Benefit Irri CCA
Annual Irrigation
Decision
1
Borolia Irrigation Project
AS
1980
Brahmaputra
92 m
6.775 (135.93)
9717
15,000 Ha
Deferred due to non-submission of State Finance Concurrence
2
Khuga Multipurpose (Major- Revised)
Manipur
1980
Khuga/ Imphal
230 m
15 (381.28)
9575
14,755 Ha
Accepted
3
Dolaithabi Barrage Project (Med Revised)
Manipur
1992
Iril/ Manipur
79 m
18.86 (251.52)
5,500
7,545 Ha
4
Gumti Irrigation Project (Revised)
Tripura
1979
Gumti
96 m
5.88 (83.01)
4,486
9,800 ha
Accepted
5
Khowai Irrigation Project (Revised)
Tripura
1980
Khowai
96 m
7.10 (83.01)
4,515
9,320 Ha
Accepted
6
Manu Irrigation Project
Tripura
1981
Manu
82 m
8.18 (98.71)
4,198
7,600 Ha
Accepted
101st meeting (30.11.2009): Accepted TOTAL – Rs 1059.26 crores
SN
Project
State
Appr. year
River/ Basin
L of Dam
Original (revised) Cost-CrRs
Benefit Irri CCA/ flood prot.
Annual Irrigation
Decision
1
Raising & strengthening to Puthimari embankment
Assam
New
B’putra
NA
30.23
15000 Ha
NA
Accepted
2
Anti Erosion measures to protect left B’putra Dyke
Assam
New
B’putra
NA
27.97
5000 Ha
NA
Accepted
3
Protection of Gakhirkhitee and its adjoining areas
Assam
New
B’putra
NA
19.06
20,000 Ha
NA
Accepted
4
Thoubal Multipurpose Project (revised)
Manipur
1980
Thoubal/ Imphal
1074 m
47.25 (982)
21,862 ha
33,449 Ha
Accepted
102nd meeting (28.01.2010): Accepted TOTAL – Rs 59.91 crores
SN
Project
Dist/ State
Appr. year
River/ Basin
Original Cost-CrRs
Benefit-flood protsn
Decision
1
Emergent measures for protection of Rohmoria in Dibrugarh Dist
Assam
New
Brahmaputra
59.91
18,000 Ha
Accepted
103rd meeting (11.03.2010): Accepted: TOTAL Cost of approved projects: Rs 302.22 crores
Project
Dist/ State
Appr. year
River/ Basin
L of Dam
Original (revised) Cost-CrRs
CCA (Ha)
Annual Irrigation (Ha)
Decision
Champamati Irrigation Project
Chirag/AS
1980
Champamati/B’putra
258.5 m
15.32 (309.22)
17,414
24,994
Accepted
106th meeting (16.09.2010): Accepted TOTAL – Rs 301.54 crores
SN
Project
Dist/ State
Appr. year
River/ Basin
Original (revised) Cost-CrRs
Decision
1
Raising & strengthening of tributary dyke on both banks of Kopili River
Assam
New
Kopilli/ B’putra
110.72
Accepted
2
Assam Integrated Flood River Bank Erosion Risk Management Project
Dibrugarh/ Assam
New
Brahmaputra
61.33
Accepted
3
Assam Integrated Flood River Bank Erosion Risk Management Project
Palasbari/ Assam
New
Brahmaputra
129.49
Accepted
108th meeting (04.01.2011): Accepted TOTAL- Rs 0
SN
Project
Dist/ State
Appr. year
River/ Basin
Original (revised) Cost-CrRs
Decision
1
Restoration of Dibang & Lohit rivers to their original courses at Dholla Hattiguli
AS
New
Brahmaputra
23.32(53.11)
The technical aspect pf this type of project may be looked in to by CWC as per past Practices.
2
Protection of Majuli Island from flood & erosion, Ph II-III
AS
New
Brahmaputra
116.02
The technical aspect pf this type of project may be looked in to by CWC as per past Practices.
109th meeting (04.03.2011): Accepted TOTAL – Rs 70.13crores
SN
Project
Dist/ State
Appr. year
River/ Basin
Original (revised) Cost-CrRs
Decision
1
Anti Erosion & Flood Protection work in Dikrong Basin
Arunachal Pradesh
New
Dikrong
23.68
Accepted
2
Anti Erosion & Flood Protection work in Bhareli sub Basin
Arunachal Pradesh
New
Bhareli
16.81
Accepted
3
Anti Erosion & Flood Protection work in Siyom Basin
Anti erosion work along river Gumti from Dlak Samatal Para to Durgapur under Amarpur, Udaipur & Sonamura subdivision
S & West Tripura
Gumti
54.99
2209
Accepted
Anti erosion work along river Khowaii from Netajinagar to Banglahour under Telimura subdivision and from south L. N. Pur to Paharmura bridge under Khowai subvision
[1]While this article only contains the details of the North East India Projects considered in TAC for the five years, we hope to soon provide details of the projects considered by TAC from all over India.
[2] Sicne Khuga Multipurpose, Thoubal Multipurpose and Dolaithabi barrage project, all from Manipur appears twice in this period, they have calculated only for once here.
The Advisory Committee in the Union Ministry of Water Resources (MoWR) for consideration of techno-economic viability of Irrigation, Flood Control and Multi Purpose Project Proposals (TAC in short) is a very important committee. It accords the financial clearance for any irrigation, flood control and multipurpose project. TAC is supposed to discuss the techno-economic viability of projects as per the resolution published in the Union of India Gazette Notification No. 12/5/86-P-II dated Nov 27, 1987. This committee came into being replacing a similar committee that existed earlier in the planning commission. Even now, the guidelines for functioning of the committee are issued by the Planning Commission.
The Gazette notification cited above also said, “The committee may also invite representatives of any other Government organizations, scientific body of experts in the relevant fields to participate in its deliberations.” This seems like a window to appoint credible, independent, non-government persons in the committee, but this window does not seem to have been used. Among the functions of the committee listed in this notification include, “The functions of the Committee will be to examine projects proposed by State Governments, Central Government or other organizations and satisfy itself that the schemes have been prepared after adequate investigations” and “the need of environment conservation and proper rehabilitation of project-affected persons have been taken into account.” However, our perusal of the functioning of the TAC shows that TAC has failed to fulfill both these mandates.
As noted in the Guidelines for Submission, Appraisal and Clearance of Irrigation and Multipurpose Projects, 2010 available on the CWC website (see: http://www.cwc.nic.in/main/webpages/publications.html), “The project proposal, thereafter, is put up to the Advisory Committee for clearance, which is, by and large, like single window clearance.” The importance of such a single window clearance becomes all the more important. The guidelines further note, “On the basis of examination conducted by the Advisory Committee, decision on techno-economic viability of the projects is taken in the meeting of this Committee. The projects found acceptable by the Advisory Committee shall be recommended for investment clearance by the Planning Commission and inclusion in the Five Year Plan/Annual Plan.” This shows how important is the role of the TAC in judging techno-economic viability of projects and also from the point of view of prudent planning.
No Transparency, independent participation or accountability of TAC Considering the above, there is strong case for clearly defined norms for transparency, participation and accountability in (1) functioning of TAC; (2) The screening process of the projects at initial stages that also happen under these guidelines in the Central Water Commission, based on which approval for DPR preparation is given.
In view of the significance of TAC, this is SANDRP’s third analysis of the decisions taken in TAC meetings. The present analysis covers decisions taken for North East India from 110th to 122ndTAC meeting. In the two previous analysis done by SANDRP, TAC meeting decisions taken from 95th meeting to 109th meeting has been covered. Here it is important to note that lack of transparency has been observed right from the agenda and minutes of the TAC meetings. The agenda and minutes of the TAC meetings should be uploaded on CWC website but CWC website has minutes only till the 115th meeting held on 24th July 2012 and the website has been last updated on 31/08/2012.
In this analysis we have covered 13 TAC meetings held from July 2011 to December 2013. In these 13 meeting, 21 projects from 6 northeastern states have been considered. But out of the 13 meetings held, projects from northeast were considered only in 10 meetings. TAC has accepted the proposals for projects with a total cost of rupees 4075.46 crore. Majority of the projects were given clearance at the first time of consideration. Thus, on an average TAC had cleared projects worth of 407.55 crores from the North East in each of these 10 meetings. Number of the projects considered by TAC in each meeting along with their total cost is given below. A state-wise and a project-wise list is also provided.
Total Cost of Projects Cleared by TAC July 2012 to December 2013
Sl No
Meeting no
Date of meeting
No of projects considered from NE
No projects approved
No of projects deferred
No of projects rejected
Total cost of the accepted projects, Rs Crore
1
110th
20-07-11
5
4
1
0
211.56
2
111th
17-08-11
1
1
0
0
167.09
3
112th
14-09-11
1
1
0
0
48.55
4
115th
24-07-12
5
5
0
0
2208.81
5
117th
21-03-13
1
1
0
0
155.87
6
118th
30-07-13
2
2
0
0
467.38
7
119th
29-08-13
2
2
0
0
601.67
8
120th
13-09-13
1
1
0
0
42.96
9
121st
08-10-13
2
2
0
0
146.01
10
122nd
20-12-13
1
1
0
0
25.56
Total
20
4075.46
State-wise list of projects cleared by TAC
Sl. No
State
No of projects approved
Total cost of the approved projects, Rs Crore
1
Arunachal
1
36.47
2
Assam
7
1526.85
3
Manipur
7
2268.99
4
Meghalaya
1
5.63
5
Sikkim
1
48.55
6
Tripura
3
188.97
Note: No projects from Mizoram and Nagaland have come to TAC in this 30 month period.
Some observations regarding TAC meetings
1. Zero Rejections The TAC did not reject a single project. There was only one project which was deferred in the 110th meeting but it was approved in the next meeting. Rest of the new projects were were approved in the very first meeting of their consideration.
2. Lack of information The TAC minutes provide little information about projects. Specially in case of newer projects, detailed discussions should have happened. The minutes of TAC meetings do not give much of an idea about size, location, benefits of a particular project. In the project- wise list provided towards the end of this analysis, we have provided limited information available in the minutes. Some of the noteworthy missing information is listed below:
– In the 115th meeting, 5 projects from Manipur were considered. Out of these five projects, 2 were multipurpose projects and 3 were barrage projects. Surprisingly, there was no information about where these projects are located, on which river, what the size of these projects. None of the minutes mentioned about whom these projects will actually benefit. Only two projects mentioned about increase in annually irrigated land but no more detail was provided.
– In the 118th meeting, construction of embankments on both banks of river Ranganadi for flood management and river training was considered. But the cost of the project was on the higher side compared to the embankment construction work to be done on the river Dikrong, considered in the same meeting. This cost escalation may be due to the difference in the length of the projects. But this cannot be confirmed since minutes do not mention the length of the proposed embankments.
India’s First Geo-tube embankment in Matmora in Dhakuakhana sub-division of Lakhimpur district in Assam. Photo: Parag Jyoti Saikia
But the increased costs may also be due to the use of Geo bag technology for construction of Ranganadi embankments. Use of Geo-bag technology is a costly affair but nothing has been mentioned about the use of this technology in the minutes of 118th meeting. This is stated in the annexure (Annex VI as mentioned in the document) of the meeting. Interestingly this annexure too has been mentioned only as a corrigendum.
3. No Detailed Discussion on Projects Considered This was very evident in the two previous analysis done by SANDRP and situation remains the same this time as well. In case of all the projects, including the ones considered for the first time, there was no detailed information or any detailed discussion. There is no discussion on technical viability of the project. Reading through the minutes gives an impression that approval for any project considered by TAC is fait accompli.There is no discussion about whether the project is a desirable project, if there are other options available, if this is the best option and so on. Under the mandate given to it, TAC is supposed to discuss all these issues. TAC accepted projects proposals with huge cost and time overruns but little enquiry has been made why such escalation happened.
Dhansiri irrigation project This is a glaring example of cost escalation. The project was discussed in the 119th meeting on 29.08.2013 for consideration of cost of Rs 567.05 crores. But, it was surprising to find that original cost of the project in 1975 was Rs 15.83 crores as according to the information available in Assam State Irrigation Department website.[1] The same website states that project started in 1975 and supposed to be completed 35 years later in 2010. In the TAC meeting a new time schedule of March 2015 was stated. The cost of the project has increased by 35.82 times over a period of 40 years but the advisory committee accepts proposal without much scrutiny or enquiry.There was no detailed assessment of the reasons for time and cost over runs (there is no question of delay due to clearances or agitations here) or whether this project which will take 40 years just to complete will be viable or not. On the contrary, the planning commission representatives said, “the benefit cost ratio of the project was 1.2 and any further escalation in cost would result in the project becoming techno-economic unviable.”
The TAC should have done a detailed assessment why the project took so long time to complete. But it seemed to be contended with the rational that the project authorities provided which was that due land acquisition and law and order problem the project has not been completed. But in the meantime minutes of the meeting also showed that that major components of the project are in advanced stages of construction with 93% of barrage work, 99% of the canal works and about 83% of works in the distribution system were reported to have been completed. There has been no detailed assessment in to any of these aspects.
Imphal Barrage project In this project, the cost of the project mentioned in the minutes of the 115th meeting contradicted with the cost provided in the annexure. The cost of Extension, Renovation and Modernization (ERM) of the Imphal barrage project as mentioned in the minutes is Rs 16.80 crores. But a letter from the Under Secretary, Govt. of Manipur to the Chief Engineer of Irrigation and Flood Control Department, Manipur dated 21.07.2012 stated the cost of the project as 23.41 crores. This reflects the lack of serious discussion over projects in TAC. It is also surprising that TAC, being the committee which gives the techno economic clearance to projects, does not have clarity about even the cost of the project.
4. No Discussion over Social, Environmental and Other impacts of the Projects The projects cleared by TAC have serious social, environmental and other impacts but the committee never discussed these impacts. TAC does not at all take into account the impacts a project would have on the environment.
In the 118th meeting (30.07.2013), while considering the proposal for flood management of Dikrong along with river training works on both banks, the minutes stated “Effectiveness of existing embankments of river Dikrong has been deteriorating due to lack of repair, siltation of river bed and consequential change in river behaviour, change in flow pattern due to release of Ranga Nadi hydel project etc.” But this is one of the rare instances when TAC mentioned about the environmental impacts on embankments. But rather than asking for more details on these impacts or to see whether embankment would really be a viable option or not, the TAC accepted the proposal. On the other hand nowhere the committee discussed what impacts an embankment has on river bed, siltation or downstream stretches of a river.
Dikrong Power Station at Hoz where water from Ranganadi HEP is released in Dikrong/Pare. Photo: Parag Jyoti SaikiaRiver Dikrong at Dikronghat in Lakhimpur district of Assam where it erodes rapidly. The impacts of change is water flow is clearly visible. Due to release of water in upstream water at night covers the lower portion of the bank. This photo was taken around 8am in the morning when the water receded. The lower bank portion was wet in the morning. According to the local the water further recedes by the evening and again increases at night. Photo: Parag Jyoti Saikia
It is also important to note here TAC also does not take into consideration impacts of the hydropower projects on the embankments in the downstream of the river. In the above mentioned case, the increased costs of Dikrong embankment should have been charged on the Ranga Nadi HEP, but there is no discussion on this. The Pare hydropower project (110 MW) in Papumpare district of Arunachal Pradesh is currently under construction on Dikong / PareRiver. Moreover there are at least 10 hydropower projects at various stages in the combined Ranganadi-Dikrong basin in Arunachal Pradesh, including one operating, three TOR approvals given and five additional MoA signed (in addition to a proposed project). There is no provision to assess the impacts of these projects on the embankments downstream of DikrongRiver in Assam. In fact there is no provision for any impact assessment study for embankments even though studies show the disastrous impacts of embankments on environment, floods and on the lives of the people living close to the river.
5. Clearing Same Embankment Projects over Years In terms of embankments, it is observed that the TAC had cleared same projects over the years. Not emphasizing on the environmental impacts of embankment projects is one of the major reasons for this. In the 117th TAC meeting held on 21.03.2013 the proposal for “Protection of Brahmaputra dyke from Sissikalghar to Tekeliphuta at different reaches from Lotasur to Tekeliphuta from the erosion of river Brahmaputra Assam” was considered. The estimated cost of the project was Rs 155.87 crore. But on the same embankment, a project titled “Raising and Strengthening to Brahmaputra dyke from Sissikalghar to Tekeliphuta including closing of breach by retirement and anti-erosion measures (to protect Majuli and Dhakukhana areas against flood devastation by the Brahmaputra, Lakhimpur district, Assam) was accepted in the 95th TAC meeting held on 20.01.2009. The estimated cost of the earlier project was 142.42 crore.
A Hoarding on the way to Geo-tube embankment in Matmora, describing the project. Photo: Parag Jyoti Saikia
The minutes of the 117th meeting, about the previous scheme said that it “was taken up primarily for closure of breach in the then existing embankment including raising of embankment around the breach area only.” But the minutes of the 95th TAC meeting had said something totally different about the project. The minutes stated that project proposal envisaged – (i) Raising and strengthening of embankment for a length of 13.9 km, (ii) Construction of retirement bund with geo-textile tubes of length 5000 m. This shows how the discussion on the Brahmaputra dyke Sissikalghar to Tekeliphuta is 117th meeting is completely misleading. TAC does on even take into account its previous meeting discussions before clearing a project. This possibly gives a hint of a scam.
The Brahmaputra dyke from Sissikalghar to Tekeliphuta has a long history of facing severe erosions. The first geo-tube embankment was constructed on this dyke in Dec 2010. Crores have been spent for the protection of this embankment. But even after that the Dhakukhana sub-division always remained in the headlines during the flood season in Assam. There is need for area specific detailed study assessing the impact on and of the embankment, but little has been done in this regard. Besides, the Bogibeel Bridge, the fourth one on the BrahmaputraRiver, is coming up in the upstream of this embankment. Construction of this bridge would make this dyke even more prone to erosion since the length of this bridge will be 4.94 km, shrinking the wide river to great extent. In a personal visit to the area, one of the government officials informed that as a result of this “funneling action”, the force of water will increase and it will directly hit the embankment leading to more erosion. But TAC has never dealt with these issues in its meetings but cleared all the proposals that it considered. Short History Brahmaputra Dyke from Sissikalghae to Tekeliphuta[2]
6. There is no independent, critical voice in the meetings. The agenda, proceedings, or decisions of the meetings are not even in public domain.
7. There is no mechanism to hold the TAC accountable for any wrong decisions taken.
8. The TAC is clearly not fulfilling the mandate given to it in the guidelines for TAC meetings. The guidelines themselves need revision from several points.
9. There is no attempt to assess the justifiability of the kinds of projects that are being accepted and if they are indeed delivering the promised benefits.
Anti erosion work along river Gumti from Dlak Samatal Para to Durgapur under Amarpur, Udaipur & Sonamura subdivision
S & West Tripura
Gumti
54.99
2209
Accepted
2
Anti erosion work along river Khowaii from Netajinagar to Banglahour under Telimura subdivision and from south L. N. Pur to Paharmura bridge under Khowai subvision