Water, Social Differentiation, Politics and Participation
A Review
Essay
Sailen Routray
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A View of Tungabhadra River (Wikimedia Commons)
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Over the last three decades, water has become as much a focus of
environmental debates as forests. This is true across quite a few disciplines
like environmental sociology, environmental history and institutional economics.
The shift has come about with a growing concern over water scarcity, its
implications for livelihoods and human survival in the future. There is a widespread agreement that the
world in the twenty first century will face major health, security or economic
crises due to increasing water scarcity. The solution generally preferred by
technocrats is to prescribe the treatment of water as economic goods. But what
kind of economic goods is water? Water is not one goods but many. These goods
differ along the dimensions of physical and biological characteristics and in
the varied ways that human societies construct and evaluate them.
The framework of tragedy of commons initially governed the study of
natural resources, including water. It was generally observed that the
management of the natural resources in the commons leads to the degradation of
the resource over a period of time due to the problem of free riding (Hardin,
1968). Therefore, establishing private property rights or rights of the state
over the resource was seen as key to optimal resource utilization.
Quite a lot of subsequent scholarship of the analysis surrounding
natural resource management draws from Common Property Resource (CPR) theories.
These theories, by demonstrating theoretically, and in some cases empirically,
the potential for collective action in natural resource management have
provided a foundation for a whole wave of experimentation in community-based
management of common property resources.
CPR analysts often take their theoretical groundings from game
theory and show how rules can be purposively crafted to produce collective
action. Institutions are seen as ‘rules of game’ and collective action is seen
as a rational option that produces results beneficial to all, whereas self-interested
action would produce sub-optimal results for the collective. This model has
been at the center of a clutch of policy prescriptions. These prescriptions
include investments in establishing formal legal systems, fixing property
regimes, and formalizing informal institutional arrangements. The discourse of
‘design principles’ comes from such an approach (Ostrom, 1990).
As opposed to these ‘mainstream’ views that focus on local areas,
bounded communities and rule-based management, emerging views in the study of
natural resources look at multiple levels (global to local) and diversity (in
terms of livelihoods and perceptions) and see institutions as part of the
constant process of negotiation that involves power and conflicting interests
within communities, and between their members and other actors. Emerging views
try to break down the distinctions between local/global and between
formal/informal institutions in order to understand better the complexities and
uncertainties that face the governance of natural resources like water today
(Cleaver, 2001).
The books under review can be seen as attempts to
rethink the issues surrounding the water sector in India along the lines
discussed above and to take the emerging concerns forward. One of the most
important changes has been the shift from looking at water only as a natural
resource that needs to be managed, to seeing it as an important factor in the
process of social differentiation. One of the central themes of Peter
Mollinga’s study, titled On the Waterfront: Water Distribution, Technology
and Agrarian Change in a South Indian Canal Irrigation System, is social
differentiation in the context of a canal irrigation-based economy. The canal
in question is the Tungabhadra Left Bank Canal. In the study of this system
Mollinga tries to locate the linkages between the introduction of protective,
localised irrigation in the command areas of the Tungabhadra Left Bank Canal, to
particular patterns of agrarian change in the region.
One of the important features of the Left Bank Canal case is the
role of migrant farmers in the process of social differentiation and its spatial
characteristics. In fact, migration seems to be an important result of almost
all medium to large irrigation schemes in peninsular India. The settler farmers in the Left Bank Canal
mainly came from the coastal districts of Andhra Pradesh and were mostly small
and medium sized farmers in their home region. The combination of smallholdings
and a high land price difference between coastal Andhra Pradesh and Raichur,
Karnataka was the major reason for farmers to migrate. Canal irrigation induced
a dynamic process of agricultural intensification and commoditisation. Because
of the protective nature of the canal system’s design, this intensification
process resulted in unequal water distribution. There seems to be some
correlation between availability of water and the concentration of land
holdings. Thus, particular patterns of agrarian differentiation seem contingent
upon particular types of irrigation technology.
In contrast to this view from the present, David Mosse in his book titled
‘The Rule of Water: Statecraft, Ecology and Collective Action in South India’
brings us a much more historically rooted analysis about social
differentiation, water management and political change. Mosse bases his study in the tank irrigation
systems of the old Ramanathpuram district in south-eastern Tamilnadu. According
to Mosse “In the region under study tank-based agriculture developed after 1300
during a period of major transformations in the human geography of south India
when people moved out of the core irrigated zones, and the older medieval order
of the Pandyas was disturbed by the military adventurers and agricultural
settlements of south India’s largest empire, the Vijaynagar empire”.
In this region Ramnad was a kingdom that was ruled by its dominant
social group, the martial caste of Marvars. They rose to prominence with the
militarisation of the plains of south India under the Vijaynagar Empire in the
mid-14th century. The growth of military power depended upon the
expansion of agriculture in hitherto marginal areas. This involved growing investments
in tank-irrigation systems that could sustain wetland paddy cultivation. Thus,
militarisation encouraged the expansion of agriculture. This expansion was made
possible by massive population displacements that brought in new settlers.
Emerging local needs and local political power drove this process of
cumulative, interdependent building of tanks.
This historical picture tells us that the patterns of resource
extraction that made irrigation and agriculture possible in the Ramnad district
were products of particular processes of social differentiation and caste-based
domination. These patterns of resource extraction and utilisation (either
directly or as idealisations) have subsequently formed the basis of
legitimising the power of particular social groups and political institutions. Mosse points at the fact that warfare and tank building were two elements in the
same mode of statecraft in the pre-colonial era. The political logic of this
mode of statecraft mostly favoured investments in new irrigation works rather
than maintaining or repairing them after damage.
The pre-colonial institutions of water management that were
transformed by colonialism were neither stable nor ecologically adapted
institutions of autonomous communities. And these forms bore all the signs of
ecological vulnerability and economic uncertainty. Even after the colonial
encounter tank systems remained political institutions incorporated into strategies of rule. But after 1800, the Zamindars had little real
political power to disperse. The willingness and the ability of Zamindars to
invest in tanks, even in their own estate villages, were generally undermined by
tenurial insecurity. It was this state of tank irrigation and the lack of
investment that lay at the roots of peasant resistance to the Zamindari state
during the colonial era. Thus, the centrality of water as a ‘political’
resource remained constant (although varied in its significance) across the
colonial divide in the tank irrigated territories of coastal Tamilnadu.
Mollinga makes an important contribution to our understanding of
water as a political resource as well. In his study of the Tungabhadra Left Bank Canal, he found that in all three pipe-outlet command areas that were studied, sets of
rules existed for internal distribution of water in the outlet. All rules were
the product of local rule making by water users themselves. But the local M.L.A.s
(Members of the local Legislature in the Karnataka State) seem to be important
mediators between the farmers and the irrigation department in this context. In
all the three cases, rule sets functioned as resources, mobilised when
necessary.
Thus, water management, as it has evolved over the last few decades
in the command area of the Tungabhadra Left Bank Canal, draws upon broader
political processes for its survival. Water management is also the site at
which the polity interacts with local actors. Mollinga contrasts this political
mediation in resource allocation and use, to the supposed relative insulation of
the planning and designing process of the irrigation system from
socio-political mediation. What Mollinga
fails to do is to consider in detail the structural and historical factors that
led to the insulation of the designing phase of the project from ‘political interventions.’ The choice of particular technologies in the irrigation sector is a socio-politically
mediated choice. So, what is important is not merely to say that a particular
choice of technology was insulated from ‘political’ pressures and processes, but
to unearth the particular brand of politics that led to such insulation in the
first place.
Ramaswamy Iyer in his book Water: Perspectives, Issues, Concerns
also deals with water as a political resource, but at a much more macro level.
As a part of his extensive survey of the water sector in India, Iyer looks at
the thesis that links political conflicts with resource scarcities and makes
some incisive comments. According to him the linkages between political
conflicts and resource scarcities are not necessarily unidirectional. Iyer
shows that the thesis that conflicts over water bodies lead to (or can lead to)
broader political conflicts is a slim one. More often than not, conflicts over both international and national waters get prolonged and difficult to
resolve because of the fact that they are enmeshed within broader political
conflicts between nations and other local administrative units like the states
in India.
Iyer seems to be making a case for water as a site for
inter-national politics and therefore the use of water as a political resource.
For example, the way Bangladesh’s political relationship with India has shaped
over the years, seems to have had a significant impact on the ways the river
waters have been shared between the two countries. This might be somewhat
obvious to state, but considering the growing discourse about political
conflicts arising out of resource scarcities, this point definitely needs
re-emphasising.
Iyer quite comprehensibly brings another set of conflicts related to
water to the fore. Quite a significant
part of the book is devoted to the conflicts surrounding big water resource
development projects in India. Using his experience as a former bureaucrat, he
tries to give us a nuanced view of the debates surrounding big dams in India.
In an important chapter of the book (chapter 16) he tells us about his changing
views and how he has come to see dams as choices of the last resort to respond
to the perceived water scarcity in India. In this context, he quite masterfully
analyses the October 2000 judgment of the Supreme Court of India on the Narmada
(Sardar Sarovar) case. He brings into the light the miscarriage of justice in
the judgment and analyses the verdict and the process leading to the verdict in
detail, so as to expose the other side of judicial ‘activism’ in India.
These broader issues of the polity and society get concretised in
the field by various plans and programmes. One of the more fashionable policy
prescriptions in the water sector in recent times has been that of
Participatory Irrigation Management. Iyer succinctly sums up current
debates surrounding the participation of farmers in irrigation management and shows how participation only invited in service delivery and not in project development. It is when the government is unable to manage and provide
the planned services that it tries out transfers of responsibilities to users. The other two books also problematise the idea of users’
participation in the irrigation sector.
According to Mosse, the recent discourse on the commons has been
profoundly affected by the new international policy consensus. The devolution
of rights and responsibilities in resource management to local user groups is
one of the significant aspects of this consensus. A variety of programmes for
natural resource management now aim to redefine the relationship between
farmers and the state. He studies the experience in Nallaneri, a village in
Tamilnadu, to look at these programmes in action. According to him the
experience of Nallaneri shows that Irrigation Management Transfer “does not
imply stabilising village groups around rules of resource use, crafted by
communities of appropriators, bound together by the individual economic
benefits of co-operative management of shared resources. Moreover, WUAs (Water User Associations) are themselves
a resource over which there is competition”.
In Mollinga’s study, the occurrence of water scarcity and the
resultant social conflicts, induced changes in the organisation of water
distribution in the Tungabhadra Left Bank main canal between 1980 and 1992.
Other people than the formally responsible Irrigation Department officials
started to get involved in it. Part of the bargaining on water distribution has
been institutionalised in the Irrigation Consultative Committee at the project
level, in which officials and non-officials (MLAs) have seats. Participation
has remained at the level of consultation. A new policy for main canal
management emerged in the social process of the negotiation of water
distribution by the different actors concerned. But this involvement of farmers
has not been institutionalised at the level of local institutions for water
management.
A broad consensus seems to be emerging
that water is essentially a political and social resource. As Mosses’s study
shows, water has always been central to statecraft and politics in India. Systems for managing ‘local’ resources have
rarely, if ever, grown in isolation. Groups have always used ‘local’ resources
like water as a site for political action. In fact, as Mosse’s study seems to
be suggesting water is as much a symbolic resource, as it is a physical
resource. This is especially true in India, where water is central to the ideas
of purity and pollution that underlie caste.
The principal use of water in India has
been for irrigation. More than four-fifth of water used in India is
consumed by agriculture. Therefore, particular irrigation technologies have a
significant impact not only on irrigation, but also on other aspects of water
use. This makes water use an intensely contested political activity. It also shapes, and is dynamically shaped by, particular patterns of agrarian change
and social differentiation. As Mollinga’s study indicates, particular kinds of
irrigation technology can induce specific kinds of migration and cropping
patterns. But these patterns of resource use and social differentiation don’t
happen only on the ‘social’ terrain. These processes are linked to broader
patterns of political change, as Mosses’s study so effectively illustrates.
This makes one wary of the currently
fashionable rhetoric of participatory irrigation management (PIM). Any
programme or plan of action that unquestioningly privileges the local can
easily hide inequities. The study of water has ceased to be (to a large extent)
a matter of engineering. But it is rapidly threatening to become a matter of
‘management’ under PIM. All the three books under review warn us about this
quite unequivocally. The study of water needs both large sectoral overviews and
ethnographies that trace patterns of resource use within the broad matrix of
social change. The three volumes under study fulfill one or the other part of
this mandate and are a welcome addition to the existing body of literature.
Books Under Review
David Mosse, The
Rule of Water: Statecraft, Ecology and Collective Action in South India.
New Delhi: Oxford University Pres, 2003. 337 pp. Glossary, bibliography, index.
Peter Mollinga, On
the Waterfront: Water Distribution, Technology and Agrarian Change in a South
Indian Canal Irrigation System. New Delhi: Orient Longman Private
Limited, 2003. 441 pp. References.
Ramaswamy, R. Iyer, Water:
Perspectives, Issues, Concerns. New Delhi: Sage Publications India Pvt Ltd,
2003. 369 pp. Appendices, references and bibliography, names index, subject
index.
Note: This
review essay was first published in a slightly different form in 2006 in the periodical
Indian Journal of Social Work 67(4). The books under consideration were
all published in the year 2003. All the three books dealt with water, broke new
ground in the study of water as a theme in India and have since become minor classics
in academic studies of this resource.
References
Cleaver, F., 2001. "Institutional bricolage, conflict and cooperation in Usangu, Tanzania." IDS Bulletin, 32(4), pp. 26-35.
Hardin, G., 1968. “The tragedy of the commons”. Science 162: pp. 1243-1248.
Ostrom, E., 1990. Governing the commons: The evolution of institutions for collective action. Cambridge university press.