The Ministry of Jal Shakti is responsible for the development, maintenance and efficient use of water resources in the country and coordination of drinking water and sanitation programs in rural areas.   The Ministry was created in 2019 by integrating the Ministries of: (i) water resources, river development, and Ganga rejuvenation, and (ii) drinking water and sanitation.

This note presents budgetary allocations to the Ministry of Jal Shakti, and analyses various issues related to water resources in the country and the schemes implemented by the Ministry.

Allocations in Union Budget 2020-21

In 2020-21, the Ministry of Jal Shakti received an allocation of Rs 30,478 crore.  This is an increase of Rs 4,600 crore (18%) over the revised estimates of 2019-20.  Table 1 provides details on allocations to the two departments under the Ministry.

Table 1: Budgetary allocation to the Ministry of Jal Shakti (in Rs crore)

Department	Actuals (18-19)	Revised (19-20)	Budgeted (20-21)	% change (RE to BE)
Drinking Water and Sanitation	18,412	18,360	21,518	17%
Water Resources	7,422	7,518	8,960	19%
Total	25,834	25,878	30,478	18%

Note: BE is budget estimate and RE is revised estimate.

Sources: Demands for Grants 2020-21, Ministry of Jal Shakti; PRS.

Policy proposals for Jal Shakti in Union Budget 2020-21 

• Cities with over a million population will be encouraged to provide piped water supply to all households in 2020. 
• The government will focus on solid waste collection, source segregation, and processing.  

Department of Drinking Water and Sanitation

The Department of Drinking Water and Sanitation administers programs for safe drinking water and sanitation in rural areas.  It is responsible for the monitoring and implementation of Swachh Bharat Mission-Gramin and the Jal Jeevan Mission (the National Rural Drinking Water Programme). [1]  

The Department has an allocation of Rs 21,518 crore, accounting for 71% of the Ministry’s allocation.  This was a 17% increase in allocation over the revised estimates of 2019-20. 

Over the past 10 years, the expenditure by the Department of Drinking Water and Sanitation increased at an annual growth rate of 9%.  In the last ten years, the Department saw the highest increase in expenditure (49%) in 2016-17, over the previous year.  Figure 1 below shows the trends in expenditure by the Department in the last decade.

Figure 1: Expenditure by the Department of Drinking Water and Sanitation ( in Rs crore) 

Note: Values for 2019-20 are revised estimates and 2020-21 are budget estimates.  Allocations before 2019-20 were towards the erstwhile Ministry of Drinking Water and Sanitation.  

Sources: Union Budgets 2010-11 to 2020-21; PRS.

From 2011-12 (when the Department of drinking water and sanitation was created) to 2014-15, the Department’s expenditure was focused on drinking water.  From 2015 to 2019, the focus of expenditure shifted on rural sanitation.  However, since 2019-20 the allocation towards both the schemes has been approximately equal.

Figure 2: Expenditure on drinking water and rural sanitation over the years (as a % of Department’s expenditure)

Note: Values for 2019-20 are revised estimates and 2020-21 are budget estimates.  

Sources: Union Budgets 2011-12 to 2020-21; PRS.

Figure 3 shows the expenditure utilisation by the Department over the last nine years (% change between actual expenditure and budgeted expenditure).  Between 2011-15, the actual expenditure was lower than the budgeted expenditure.   During 2015-18, the Department spent more than the allocated amount.  The actual expenditure in 2015-16 was 78% higher than the budgeted expenditure for the year.  However, in 2018-19 and 2019-20 (revised estimate), the expenditure was again less than the budget estimate for these years. 

Figure 3: % change between actual and budgeted expenditure

Note: The expenditure figure for 2019-20 is revised estimate.

Sources: Union Budgets 2011-12 to 2020-21; PRS.

Schemes under the Department of Drinking Water and Sanitation

Expenditure by the Department is primarily towards the two major schemes, the Jal Jeevan Mission (JJM) and the Swachh Bharat Mission-Gramin (SBM-G).  Table 2 provides details on allocation to the Department over the past three years.

Table 2: Budgetary allocation to the Department of Drinking Water and Sanitation (in Rs crore)

Major head	Actual 18-19	Revised 19-20	Budgeted 20-21	% change (20-21 BE/ 19-20 RE)
JJM	5,484	10,001	11,500	15.0%
SBM-G	12,913	8,338	9,994	19.9%
Others	15	21	24	13.6%
Total	18,412	18,360	21,518	17.2%

Note: RE is Revised Estimates, BE is Budget Estimates.

Sources: Demands for Grants 2020-21, Department of Drinking Water and Sanitation; PRS.

JJM aims to provide adequate and safe drinking water to the rural population in the country.  It has been allocated Rs 11,500 crore in 2020-21, which is a 15% increase over the revised estimates of 2019-20.  SBM-G aims to achieve universal sanitation coverage and improve cleanliness in the country.  It has been allocated Rs 9,994 crore in 2020-21, which is a 20% increase over the revised estimates of 2019-20.  

Department of Water Resources

The Department of Water Resources, River Development, and Ganga Rejuvenation is responsible for: (i) planning, policy formation, and coordination of water resources in the country, (ii) scrutiny and monitoring of irrigation and flood control projects, (iii) supporting state level activities for ground water development, and (iv) reduction of pollution and rejuvenation of rivers. [2]  

In 2020-21, the Department has an allocation of Rs 8,960 crore, accounting for 29% of the Ministry’s allocation.  This is 19% higher than the revised estimates of 2019-20.  In the past six years, expenditure by the Department of Water Resources has increased at an annual growth rate of 5%.  

Figure 4:  Expenditure by the Department of Water Resources over the years (Rs crore)

Note: Values for 2019-20 and 2020-21 are revised estimates and budget estimates respectively. 

Sources: Union Budgets 2015-16 to 2020-21; PRS.

Major schemes under the Department of Water Resources

In 2020-21, 57% of the Department’s expenditure is estimated to be on the Pradhan Mantri Krishi Sinchai Yojna.  This is followed by the National River Conservation Plan (9.4%), Namami Gange (8.9%), and Water Resources Management (8.6%).

Table 3: Allocation to the Department of Water Resources (in Rs crore)

Major Head	Actuals (18-19)	Revised (19-20)	Budgeted (20-21)	% change (RE to BE)
PM Krishi Sinchai Yojna	3,439	4,026	5,127	27%
National River Conservation	1,620	1,200	840	-30%
Namami Gange	688	353	800	127%
Water Resources Management	569	636	775	22%
Central Water Commission	362	403	403	0%
Central Ground Water Board	227	243	245	0%
Others	1,106	1,303	1,418	9%
Total	7,422	7,518	8,960	19%

Note: BE is budget estimate and RE is revised estimate.  Others include central sector projects like river basin management, and major irrigation projects.

Sources: Demands for Grants 2020-21, Department of Water Resources, River Development, and Ganga Rejuvenation, Ministry of Jal Shakti; PRS.  

Issues to consider

Irrigation 

The Economic Survey (2016-17) highlighted that 52% of the total net sown area in India is unirrigated and depends on rainfall for agriculture. [3]   It noted that when rainfall is significantly less than usual, the unirrigated areas have higher adverse effects compared to the irrigated areas.  Therefore, it argues that India needs to spread its irrigation cover.  

The Pradhan Mantri Krishi Sinchai Yojana (PMKSY) was launched during 2015-16. [4]   The scheme seeks to: (i) expand coverage of irrigation, (ii) improve water use efficiency on farms, and (iii) introduce sustainable water conservation practices. [5]  The Jal Shakti Ministry implements certain components of the scheme, such as PMKSY – Har Khet Ko Pani and Flood Management and Borders Area Programme. ⁴   The other components of the scheme are implemented by the Ministry of Agriculture and Farmers Welfare and the Ministry of Rural Development.

Utilisation:  Figure 5 shows the expenditure on the scheme from 2016-17 to 2020-21.  The scheme has been allocated Rs 5,127 crore in 2020-21.  Its share in the Department’s expenditure increased from 35% in 2016-17 to 57% in 2020-21. 

Figure 5: Expenditure on PMKSY over the years (in Rs crore)

Sources: Union Budgets 2016-17 to 2020-21; PRS.

Har Khet ko Pani:  This scheme’s objectives include: (i) creation of new water sources, (ii) restoration and repair of traditional water bodies, (iii) command area development, and (iv) strengthening of distribution network from irrigation sources to the farm. [6]^{, [7]}

Some components of the scheme are:

Accelerated Irrigation Benefit Programme (AIBP):  Under this scheme, financial assistance is being provided for faster completion of irrigation projects.  From June to December 2019, of the target 43 lakh hectare, projects in 29 lakh hectare (69%) were completed. [8]   

Of the 106 projects selected under the scheme, 21 (20%) projects are facing constraints such as land acquisition, legal, and contractual issues.⁸  

Command Area Development and Water Management Programme:   The objective of the programme is to enhance utilisation of irrigation potential created.  This is achieved through activities such as construction of field channels, land levelling, and reclamation of waterlogged area. [9]  Currently, there are 88 projects under the programme, of which only 12 (14%) have achieved more than 50% physical progress. [10]

Flood Management

The National Water Policy (2012) identifies that the climate change has deepened incidences of water related disasters like floods, increased erosion and increased frequency of droughts. [11]  The centre supports states by providing financial assistance for undertaking flood management works in critical areas through the Flood Management and Border Areas Programme (under PMKSY).  From 2016-17 to November 2019, central assistance of Rs 1,429 crore has been released under the scheme. [12]  

The Standing Committee on Water Resources (2017-18) notes that out of 522 flood management works approved under the programme during 2007-17, only 298 (57%) were completed up to March 31 2017. [13]   Further, in most of the projects, the financial progress was in the range of 10% to 30%, due to less release of funds because of inadequate budget allocation. ¹³ 

Conservation and Rejuvenation of rivers

The Ministry of Jal Shakti implements the Namami Gange Mission with the objective of rejuvenation of river Ganga and its tributaries through activities such as treatment of municipal sewage and industrial effluents, river surface cleaning, rural sanitation, and afforestation. [14]  Currently, 114 (37%) of the 310 projects sanctioned under the Mission have been completed. [15]  

The scheme was launched with a budget outlay of Rs 20,000 crore for the period 2015-2020. [16]  During the period 2014-15 to 2018-19, Rs 6,106 crore (31%) has been spent on the programme.¹⁵  In 2020-21, the scheme has been allocated Rs 800 crore, which is 126% more than the revised estimates for 2019-20.  

Table 4 shows the trends in budget allocation and actual expenditure on Namami Gange from 2015-16.  Note that the utilisation under the scheme has always been under 50% of its allocation. 

Table 4: Budgeted versus actual expenditure on Namami Gange (in Rs crore) 

Year	Budgeted	Actuals	% of Budgeted
2015-16	-	100	-
2016-17	-	1,675	-
2017-18	2,300	700	30%
2018-19	2,300	688	30%
2019-20	750	353	47%

Note: The ‘actuals’ figure for 2019-20 is the revised estimate.

Sources: Union Budgets 2015-16 to 2019-20; PRS.

The Standing Committee on Water Resources (2017-18) notes that the physical progress under the scheme has not been satisfactory. [17]   In response to the Committee’s observations, the Ministry responded that the following bottlenecks affect the implementation of projects: (i) delay in tendering process, (ii) non-availability of land for sewage treatment plants leading to delay in execution of projects, (iii) underutilisation of sewage treatment plants’ capacities due to inadequate house sewer connections in cities, and (iv) non-effective implementation of public outreach programmes and community consultation, among others.¹⁶

Swachh Bharat Mission - Gramin

In 2014, the Swachh Bharat Mission (Gramin) was launched by restructuring the Nirmal Bharat Abhiyan. [18]  The Mission aimed to achieve universal sanitation coverage, improve cleanliness and eliminate open defecation in the country by October 2, 2019. [19]    

In 2020-21, the Mission has been allocated Rs 9,994 crore, which is an increase of 20% from the revised estimate of 2019-20.  The expenditure on towards rural sanitation schemes has increased from Rs 1,580 crore in 2010-11 to Rs 12,913 crore in 2018-19.  

Figure 6: Expenditure on rural sanitation scheme (in Rs crore)

Note: Values for 2019-20 and 2020-21 are revised estimates and budget estimates respectively.

Sources: Union Budgets 2009-10 to 2020-21; PRS.

Figure 6 shows the expenditure on the scheme from 2009-10 to 2020-21.  Expenditure on rural sanitation has increased at an annual growth rate of 21% from 2009-10 to 2020-21.  A significant part of this increase was seen from 2015-16 onwards, after the launch of SBM-G.  

Table 5 shows the trends in budget allocation and actual expenditure on rural sanitation over the past 11 years.  Note that from 2015-16 to 2017-18, actual expenditure on SBM-G exceeded the budget estimates.  

Table 5: Budgeted versus actual expenditure on SBM-G (in Rs crore) 

Year	Budgeted	Actuals	% of Budgeted
2009-10	1,080	1,200	111%
2010-11	1,580	1,580	100%
2011-12	1,650	1,500	91%
2012-13	3,500	2,474	71%
2013-14	3,834	2,244	59%
2014-15	4,260	2,841	67%
2015-16	3,625	6,703	185%
2016-17	9,000	10,484	116%
2017-18	13,948	16,888	121%
2018-19	15,343	12,913	84%
2019-20	9,994	8,338	83%

Note: The ‘utilised’ figure for 2019-20 is the revised estimate.

Sources: Union Budgets 2009-10 to 2019-20; PRS.

Construction of Individual Household Latrines (IHHLs):  The cost for constructing a household toilet was increased from Rs 10,000 to Rs 12,000 in September 2014 when the Nirmal Bharat Abhiyan was restructured into SBM-G. [20]  This cost for constructing toilets is shared between the centre and the state in the ratio of 60:40.  Table 6 gives the number of household toilets constructed since the inception of the scheme.   

Table 6: Toilets constructed since 2014-15

Year	Toilets Constructed
2014-15	48,51,153
2015-16	1,24,48,886
2016-17	2,16,32,580
2017-18	2,96,01,619
2018-19	2,24,49,812
2019-20	1,18,83,221
Total	10,28,67,271

Sources: SBM Dashboard, Ministry of Jal Shakti; PRS. 

As per the Department, 43.2% of the rural households had access to toilets in in 2014-15, which has increased to 100% in February 2020. [21]  Figure 7 illustrates the total coverage of household toilets since the inception of the SBM programme.  

Figure 7:  Percentage of households with toilets (2014-2019)

Sources: Management Information System Reports of SBM, Ministry of Jal Shakti; PRS. 

Open Defecation Free (ODF) villages:  Under SBM-G, a village is declared as ODF when: (i) there are no visible faeces in the village, and (ii) every household as well as public institution uses safe technology options for faecal disposal. [22]   

After a village declares itself as ODF, states are required to verify the ODF status of such a village.  Since sanitation is a state subject, the department has set some broad guidelines for ODF verification.  This includes indicators that are in accordance with the ODF verification definition, such as access to a toilet facility and its usage, and safe disposal of faecal matter through septic tanks.  

The guidelines for ODF state that since it is not a one-time process, at least two verifications must be carried out. [23]  The first verification must be carried out within three months of the declaration to verify the ODF status.  Further, to ensure sustainability of ODF, a second verification must be carried out around six months after the first verification.  

As per the Management Information System of SBM-G, a total of 6,03,175 villages across 706 districts and 36 states and union territories have been declared as ODF as of February 2020.  Of these, 5,99,266 villages (99.4%) have been verified as ODF under the first level verification. [24]  1,66,047 (28%) of these villages have been verified ODF under the second level verification. [25]  State-wise details on the number of villages declared and verified ODF are presented in the annexure.

Jal Jeevan Mission

The Jal Jeevan Mission was launched in 2019 with the aim to provide functional household tap connection to every rural household by 2024. [26]   It subsumed the National Rural Drinking Water Programme.  The total estimated cost of JJM is Rs 3.6 lakh crore. ²⁵

In 2020-21 it has been allocated Rs 11,500 crore, which is an increase of 15% from the revised estimates of 2019-20.  In 2019-20, the scheme was allocated Rs 10,001 crore which remained the same in the revised estimate stage.  Figure 8 shows the expenditure on drinking water schemes over the last nine years.

Figure 8: Expenditure on Drinking Water schemes (in Rs crore)

Values for 2019-20 and 2020-21 are revised estimates and budget estimates respectively.

Sources: Union Budgets 2009-10 to 2018-19; PRS.

After a reduction in expenditure on the scheme from 2015-16 to 2018-19, the expenditure on the scheme increased from 2019-20 onwards.  Note that expenditure on the scheme from 2019-20 is similar to the expenditure on it before 2015-16.

Target versus achievements:  JJM aims to provide functional household tap connections to every household at the rate of 55 Litres Per Capita Per Day (LPCD).  

The coverage of the National Rural Drinking Water Programme (NRDWP) was monitored in terms of habitations having provision of minimum 40 LPCD of potable drinking water sources at a reasonable distance.   Table 7 gives details on rural habitations and population covered under NRDWP.  State details of coverage of rural habitations under the scheme are provided in the Annexure. [27]

Table 7: Rural habitations covered under NRDWP

Drinking water sources	% Rural habitation covered	% Population covered
More than 40 LPCD	81%	77%
Less than 40 LPCD	16%	19%
Water with quality issues	3%	4%

Note: The data is as reported by states as of December 2019.

Source: Starred Question No. 351, Department of Drinking Water and Sanitation, Ministry of Jal Shakti, Lok Sabha; PRS.

Note that the coverage of piped-water-supply remains low.  As of December 2019, only 18.4% of rural households have piped-water supply connections. [28]  

Contamination of drinking water:  The Estimates Committee in its report on ‘Evaluation of Rural Drinking Water Programmes’ (2015) had noted that NRDWP is over-dependant on ground water. [29]  It also noted that ground water is affected by arsenic and other contaminants in several districts of the country.  

Table 8 shows the number of habitations affected due to the presence of Flouride, Arsenic, Iron, Nitrate and other contaminants.  As of January 2019, 3.6% (61,551) of the total habitations (17,24,423) were affected by contamination of ground water. [30] 

Table 8: Habitations affected by contamination of groundwater (as of January 1, 2019)

Contaminants	Number of affected habitations	% of affected habitations
Arsenic	15,795	0.9%
Fluoride	9,655	0.6%
Heavy Metal	2,106	0.1%
Iron	18,939	1.1%
Nitrate	1,562	0.1%
Salinity	13,494	0.8%
Total	61,551	3.6%

Sources: Unstarred Question No. 2738, Ministry of Drinking Water and Sanitation, Rajya Sabha,  PRS.

The National Water Quality Sub-Mission (NWQSM) was launched in March 2017 to provide safe drinking water to 27,544 Arsenic/Fluoride affected rural habitations in the country, over a span of four years. [31]  

The Standing Committee on Drinking Water and Sanitation (2019-20) observed that out of these, 11,884 habitations (43%) have been covered under the scheme.  4,100 habitations (15%) have been found with quality improved on retesting or have been covered under state plan schemes.³⁰ 

Ground water depletion

Currently, 245 Billion Cubic Meter (BCM) of the 398 BCM of net annual ground water availability (62%) is being utilised. [32]  However, note that ground water development is not uniform across states in India.   It has exceeded 100% in some states such as Haryana (133%), Delhi (137%), and Punjab (172%).  This implies that the annual ground water utilisation in these states is higher than the net annual ground water availability.  

The Ground Water Management and Regulation scheme was launched in 2008 with the aim to regulate and control the development of ground water resources of the country. [33]

Figure 9: Expenditure on Ground Water Management Scheme (in Rs crore) 

Note: Values for 2019-20 are revised estimates and 2020-21 are budget estimates.

Sources: Union Budgets 2011-12 to 2020-21; PRS.

Over the past ten years, the expenditure on the scheme increased at an annual growth rate of 9%.  In 2020-21, the estimated expenditure is 13% more than the revised expenditure estimates of 2019-20.  These trends are illustrated in Figure 9.

The Standing Committee on Water Resources (2019-20) recommended the Ministry to increase the budgetary support for the scheme and formulate short term and long term policies and programmes in consultation with states.   The Committee also recommended the Ministry to constitute an Expert Committee for identifying specific regions with rapidly depleting groundwater levels.

 

Annexure

Table 9: State-wise ODF declared and verified villages (as of June 2019)

State	Total Villages	Total declared	Total Verified	Total Verified  (2nd level)	% Verified 2nd level
Andaman and Nicobar Islands	192	192	192	192	100%
Andhra Pradesh	18,841	18,841	18,841	18,819	100%
Arunachal Pradesh	5,389	5,389	5,389	5,389	100%
Assam	25,503	25,503	25,503	8,416	33%
Bihar	38,691	38,691	36,760	-	-
Chandigarh	13	13	13	-	-
Chhattisgarh	18,769	18,769	18,769	18,769	100%
Dadar and Nagar Haveli	69	69	69	69	100%
Daman and Diu	26	26	26	26	100%
Goa	365	365	18	-	-
Gujarat	18,261	18,261	18,261	18,261	100%
Haryana	6,908	6,908	6,908	6,908	100%
Himachal Pradesh	15,921	15,921	15,921	9,295	58%
Jammu and Kashmir	7,263	7,263	7,191	-	-
Jharkhand	29,564	29,564	29,333	164	1%
Karnataka	27,044	27,044	26,900	-	-
Kerala	2,027	2,027	2,027	2,027	100%
Ladakh	302	302	302	5	2%
Lakshadweep	9	9	9	-	-
Madhya Pradesh	50,228	50,228	50,228	2	-
Maharashtra	40,505	40,505	40,505	-	-
Manipur	2,556	2,556	2,556	-	-
Meghalaya	6,028	6,028	6,028	2,101	35%
Mizoram	696	696	696	537	77%
Nagaland	1,451	1,451	1,142	-	-
Odisha	46,785	46,785	46,785	-	-
Puducherry	265	265	265	265	100%
Punjab	13,726	13,726	13,700	13,700	100%
Rajasthan	42,860	42,860	42,860	-	-
Sikkim	442	442	442	429	97%
Tamil Nadu	12,524	12,524	12,524	-	-
Telangana	14,200	14,200	14,001	5,252	37%
Tripura	1,178	1,178	629	32	3%
Uttar Pradesh	97,640	97,640	97,623	20,227	21%
Uttarakhand	15,473	15,473	15,473	12,800	83%
West Bengal	41,461	41,461	41,377	22,362	54%
Total	6,03,175	6,03,175	5,99,266	1,66,047	28%

Sources:  Management Information System Reports of SBM; PRS.  

Note:  The total number of villages is taken from Census 2011.
 

Table 10:  State-wise details on number of habitations covered under National Rural Drinking Water Programme (NRDWP) – as on December 9, 2019

State	Total habitations	Fully covered habitations	Partially covered habitations	Habitations with water quality issues
Andaman & Nicobar Islands	400	324	76	-
Andhra Pradesh	48,663	34,578	13,805	280
Arunachal Pradesh	7,525	3,303	4,195	27
Assam	88,076	55,767	23,663	8,646
Bihar	1,10,218	70,988	35,422	3,808
Chhattisgarh	74,753	72,792	1,455	506
Goa	347	345	2	-
Gujarat	35,996	35,996	-	-
Haryana	7,655	7,305	263	87
Himachal Pradesh	54,469	42,631	11,838	-
Jammu & Kashmir  (including Ladakh)	14,625	8,750	5,864	11
Jharkhand	1,20,591	1,19,729	334	528
Karnataka	59,774	34,345	24,979	450
Kerala	21,520	6,165	15,031	324
Madhya Pradesh	1,28,231	1,28,080	2	149
Maharashtra	99,641	84,835	14,636	170
Manipur	2,976	2,050	926	-
Meghalaya	10,470	4,124	6,339	7
Mizoram	720	490	230	-
Nagaland	1,450	742	708	-
Odisha	1,57,013	1,54,477	127	2,409
Puducherry	266	153	113	-
Punjab	15,190	10,485	1,500	3,205
Rajasthan	1,21,526	62,783	41,918	16,825
Sikkim	2,337	861	1,476	-
Tamil Nadu	1,00,014	96,876	3,138	-
Telangana	24,597	15,405	8,848	344
Tripura	8,723	5,020	1,326	2,377
Uttar Pradesh	2,60,018	2,56,913	1,950	1,155
Uttarakhand	39,311	23,202	16,100	9
West Bengal	1,07,328	61,905	32,100	13,323
Total	17,24,423	14,01,419	2,68,364	54,640

Sources:  Starred Question No. 351, Ministry of Jal Shakti, Lok Sabha; PRS.

 

 

[33] Lok Sabha Unstarred Question No.737, Ministry of Jal Shakti, November 21, 2019,  http://164.100.24.220/loksabhaquestions/annex/172/AU737.pdf.

 

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