Command Area Development – UPSC Geography Optional & GS Paper I 2025–26

The agricultural success of India depends not just on expanding irrigation potential but also on efficient utilization of created infrastructure. In order to alleviate the endemic inefficiencies in post-irrigation management and encourage equitable use of water at the grass root level, the Government of India initiated the Command Area Development (CAD) program in the mid-1970s. It was a paradigm shift from just the construction of irrigation potential to enhance farm production through land, water, and crop management.

Over the years, CAD has been restructured into the Command Area Development and Water Management (CADWM) Programme and integrated with other national missions like the Pradhan Mantri Krishi Sinchayee Yojana (PMKSY). Understanding the evolution, structure, challenges, and reform trajectory of this programme is vital for UPSC aspirants aiming to master India’s resource management strategies, particularly in the context of integrated watershed development, participatory irrigation management, and sustainable agriculture.

What Will You Learn from This Article?

❓What is the concept of Command Area Development and why was it introduced in India?
 

❓How has the CADWM Programme evolved over the decades in terms of objectives and strategy?

❓What are the institutional mechanisms involved in implementing Command Area Development?

❓What challenges hinder effective implementation of CAD in India?

❓How does CAD integrate with PMKSY and other water resource schemes for sustainable development?

❓What is the significance of CAD in the context of UPSC Geography Optional and GS Papers?

The following key points will help you quickly revise essential facts, schemes, and structural elements related to Command Area Development:

• The Command Area Development Programme (CAD) was launched in 1974–75.
   
• It aimed to bridge the gap between irrigation potential created (IPC) and irrigation potential utilized (IPU).
   
• CAD was later renamed as CADWM – Command Area Development and Water Management Programme.
   
• The programme falls under the Department of Water Resources, RD & GR, Ministry of Jal Shakti.
   
• Components include: construction of field channels, warabandi (rotational water supply), land shaping, and field drainage.
   
• Initially launched in 60 major and medium irrigation projects across the country.
   
• The Eleventh Plan introduced Participatory Irrigation Management (PIM) as a key component.
   
• Water Users’ Associations (WUAs) are promoted under PIM for equitable distribution and maintenance.
   
• The Warabandi system ensures time-bound water supply through rotation and scheduling.
   
• CADWM promotes use of GIS mapping, remote sensing, and real-time hydrological monitoring.
   
• The scheme now functions as a sub-component of PMKSY – Pradhan Mantri Krishi Sinchayee Yojana.
   
• Funding pattern: 60:40 (Centre:State) for general states and 90:10 for NE and Himalayan states.
   
• Land acquisition delays, coordination failures, and bureaucratic inefficiencies are major hurdles.
   
• States like Punjab, Haryana, Maharashtra, and Andhra Pradesh have shown notable CAD performance.
   
• Use of drip and sprinkler irrigation is encouraged under CADWM for micro-irrigation and water efficiency.
   
• The “More crop per drop” approach aligns with CAD’s efficiency goals.
   
• Lack of synchronisation between irrigation infrastructure and agricultural practices leads to inefficiencies.
   
• On-Farm Development (OFD) includes land leveling, field bunding, and drainage correction.
   
• The CADWM programme supports convergence with MGNREGA for labour and structural works.
   
• CAD plays a critical role in managing salinity, waterlogging, and soil degradation in command areas.
   
• The Central Assistance is released in installments based on progress reports and verification.
   
• The Planning Commission and NITI Aayog have both advocated strengthening the CAD framework.
   
• The programme also supports creation of field drains to remove excess water and avoid crop damage.
   
• Data from CWC (Central Water Commission) is used to plan command area water allocation.
   
• Special focus is given to tribal and drought-prone districts under CADWM.

Evolution of the Command Area Development Programme

The Command Area Development (CAD) programme was launched in 1974–75 due to the increasing fear that the irrigation potential created (IPC) under major and medium irrigation projects was not being fully utilized. This imbalance led to a change in focus from the mere development of irrigation facilities to their efficient utilization. The initial aim was to optimize farm productivity in irrigated areas through meeting post-irrigation planning requirements, equity in water distribution, as well as providing drainage.

A number of its limitations in the original framework resulted in revisions over time. In 2004–05, the programme was redesigned and renamed as the Command Area Development and Water Management (CADWM) programme. Subsequently, it was incorporated as a sub-component of the Pradhan Mantri Krishi Sinchayee Yojana (PMKSY) under the 12th Five Year Plan to improve water use efficiency at field level and ensure convergence with other irrigation programmes.

Core Objectives of the CADWM Programme

The CADWM Programme has a large vision for scientific and integrated water management. Its core objectives are:

• Closing the gap between IPC and IPU
• Ensuring timely and fair distribution of water
• Increasing productivity of irrigated land
• Promoting efficient use of water and micro-irrigation
• Reducing waterlogging, salinity, and drainage issues
• Involving farmers in water distribution and planning through PIM
• Facilitating on-farm development (OFD) and infrastructure

The CADWM program not only seeks to enhance agriculture productivity, but to make irrigation participatory and sustainable.

Structural Components of CADWM

1. On-Farm Development (OFD) Works

These consist of field channel construction, land shaping, levelling, and formation of water control structures. OFD works guarantee that water reaches farm plots individually in an efficient manner.

2. Field Drains and Infrastructure

Drainage in the field is essential to avoid stagnation, which may lower soil quality and crop yield. CADWM funds drainage system construction to ensure soil health.

3. Warabandi (Rotational Irrigation Supply)

Warabadi is a system of fair sharing of irrigation water by rotation between users. It is a time-bound, equitable, and requirement-based allocation that reduces conflict and over-extraction.

4. Participatory Irrigation Management (PIM)

The policy supports the formation of Water Users' Associations (WUAs), local-level organizations responsible for the maintenance of the irrigation system, water allocation, and conflict resolution among users.

5. Capacity Building and Training

CADWM includes training of field staff, PRI members, and WUA leaders in water budgeting, cropping planning, and infrastructure upkeep.

Institutional Mechanism and Governance

Implementation of CADWM is decentralized, with several agencies:

• Ministry of Jal Shakti (MoWR-RDGR) is the Centre's nodal agency
• State CADAs deal with ground implementation
• District officers and PRIs dovetail with local WUAs
• Inter-agency coordination is of vital importance, particularly among irrigation, agriculture, and rural development departments

Monitoring is done through Management Information Systems (MIS), project performance reports, and third-party assessments.

Financial and Administrative Framework

CADWM projects are executed on a cost-sharing basis:

• 60:40 Centre:State for general states
• 90:10 in the case of North Eastern and Himalayan states

Funding is provided in tranches following physical and financial progress assessment. National Water Informatics Centre (NWIC) is responsible for monitoring and analytics.

CADWM projects also tend to intersect with MGNREGA, PMKSY, and RKVY for pooling of resources and labor.

Major Challenges in Implementation

Though having ambitious targets, CADWM has chronic structural and operational issues:

1. Gap Between IPC and IPU

Despite decades of investment, the gap in utilization is still large, with a utilization rate of only 60–65% in most states.

2. Fragmented Land Holdings

Fragmented and small farms make OFD implementation and channel alignment difficult, resulting in unequal access to water.

3. Delayed Land Acquisition

Projects tend to experience delays caused by non-availability of land records, litigation, and local community resistance.

4. Weak Participatory Management

Although WUAs are constitutionally promoted, poor participation of farmers, unawareness, and weak capacity building weaken their effectiveness.

5. Failure in Departmental Coordination

There is no synergy among irrigation, agriculture, and revenue departments resulting in duplicated efforts or incomplete implementation.

6. Inadequate Maintenance

Maintenance after construction is frequently ignored due to scarce finances and absence of accountability, and thus assets deteriorate.

Integration with PMKSY and Sustainable Goals

Pradhan Mantri Krishi Sinchayee Yojana (PMKSY) was introduced in 2015 to unify irrigation schemes under a single umbrella. CADWM has become a part of PMKSY under "Har Khet Ko Pani".

Under PMKSY:

• More emphasis is placed on micro-irrigation and drip/sprinkler systems
• GIS-based command area mapping enhances planning
• Water-stressed districts and drought-prone areas decide project selection

Also, CADWM is synchronized with SDG Goal 6 – Clean Water and Sanitation, and SDG Goal 2 – Zero Hunger by providing consistent access to water and enhancing agriculture productivity.

Role of Technology and Innovation

To augment monitoring, satellite imaging, drones, and hydrologic modeling tools are being used for CADWM implementation.

• Mobile apps and real-time dashboards are employed for tracking progress
• Geotagging of finished works ensures transparency
• SCADA (Supervisory Control and Data Acquisition) systems are being tested for automated water delivery management

Notable State-wise Initiatives

1. Punjab and Haryana

• Successful implementation of Warabandi
• CADWM in association with crop diversification (for example, paddy reduction)

2. Maharashtra

• Scale convergence with MGNREGA
• Involvement of Panchayati Raj Institutions

3. Andhra Pradesh

• Computerized water scheduling and WUA models of training
• Application of ICT to feedback and grievance redressal

These instances indicate how the success of command area interventions can be improved through local adaptations.

UPSC Mains PYQs on Command Area Development

Below are some actual UPSC Mains questions where Command Area Development has been explicitly or implicitly referred to. These questions come under Geography Optional, GS Paper I, and GS Paper III.

• GS Paper I – 2022:
  Examine the importance of integrated watershed development and command area development programmes in ensuring water and food security in India.
   
• Geography Optional – 2018:
  Discuss the role of command area development in improving irrigation efficiency and agricultural productivity.
   
• GS Paper III – 2017:
  What are the major bottlenecks in achieving irrigation efficiency in India? Discuss the role of CADWM and PIM in addressing these.
   
• Geography Optional – 2014:
  Examine the problems of salinity and waterlogging in command areas. How do CAD programmes address these issues?
   
• GS Paper III – 2013:
  Critically examine the performance of government programmes in reducing the gap between irrigation potential created and utilized.

Important Books on Command Area Development

Below is a table of common UPSC-relevant books addressing subject matters of around command area development, irrigation efficiency, rural planning, and resource management:

This article offers a comprehensive overview of the Command Area Development for UPSC aspirants. Also, download the Testbook App from the Play Store to get more details and unlimited study materials for the UPSC Prelims and Mains exams.