Untying the knots: Improving water governance in Nainital

The Himalayan region, also known as the ‘Water Tower of Asia’, is a lifeline for two billion people in the region. Most of the Himalayan cities in India are tourist destinations and host large populations during peak tourist season, creating challenges for water and sanitation. 

Good governance in water distribution and management is currently lacking in most hill towns among various Himalayan cities of India such as Shimla, Mussoorie, and Darjeeling. However, studies that explore the reasons behind this continue to be scanty.

This study published in Water Policy attempts to understand the water situation in the hill town of Nainital in the Western Himalayan region of Uttarakhand by:

• Understanding the water situation in the town by focusing on the current water resources and supply system of Nainital
• Identifying the various institutions involved in water management and understanding their co-operative arrangements, roles and responsibilities 
• Evaluating their impact on the effectiveness and efficiency of water governance in the city.

Water supply in Nainital

Nainital, situated in the Western Himalayan region of Uttarakhand, India receives an average annual rainfall of 1903 mm and it gets water from three sources namely, the Naini lake, a kidney bean shaped lake, a prominent feature of the town, the Sukhatal (a sub-catchment of Naini lake) and springs. Thus, the water used by the Nainital city is a mix of surface and ground water, but the majority is contributed through groundwater extraction.

There are 15 tubewells in the town of which 11 are at the lakeside, while 4 are installed on the lake bed of Sukhatal. These tubewells are the main sources of water for Nainital and produce 8.0 mld (million litre per day) water per day, while the rest 0.167 mld is drawn from springs. 

The lake is the main source of drinking water for Nainital and is fed directly or indirectly by 79 km of drainage network in its catchment area.  The lake water is drawn out from wells and pumps around the lake body and water from the Sukhatal sub-catchment is pumped out at higher elevations by four water pump houses that distribute water to 20 water supply zones of the city. These water pumps are commonly referred to as the Main pump house, Lakeside pump house, Sukhatal pump house, and Fasi-ka-gadhera pump house, and the quantities of pumped water from the pump house are 3.00, 2.50, 1.76, and 0.74 mld, respectively.

Nainital has been facing challenges in water availability, due to rapid urbanisation, poorly planned development, and a growing tourist population. The sustainability of Naini Lake is now at risk due to excessive water extraction and human activities. The city’s aging water distribution network, is struggling to meet the current demand, resulting in an average water availability of 92 l per capita per day, below the Indian Government standard.

Water institutions in Nainital

The water supply of Nainital is operated and maintained by Uttarakhand Jal Sansthan (UJS), working under Department of Drinking Water & Sanitation (DDWS), Government of Uttarakhand (GoU). UJS is responsible for planning, survey, DPR (Detailed Project Report) preparation and execution of water supply and sewerage projects.

Large capital works and overall planning are carried out by Uttarakhand Pey Jal Nigam (UPJN), which also comes under DDWS. While the Nainital Nagar Palika Parishad (NNPP) exists, is not involved in water supply, sewerage, etc and these functions are in the hands of state agencies. 

Other departments that are not directly involved in the Water Supply & Sanitation (WSS) sector also play a role in oversight, regulation and finance. The Irrigation Department plays an important role in the maintenance of the lake.  The Nainital Lake Region Special Area Development Authority (NLRSDA) implements restoration works and has the power to restrict constructions near the lake. Urban Local Bodies (ULBs) and SWAJAL are directly involved in the implementation or the management of drinking water supply and sanitation schemes, while some others like Social Welfare, Forest Department and ADB either provide specific support/funds or provide clearances for specific schemes and projects. 

Overlapping institutions and unclear mandates present challenges

The presence of multiple water institutions and city authorities and their overlapping functions and unclear mandates present significant challenges to effective water management in the city. The overlapping institutions have resulted in fragmentation and confusion in decision-making processes, particularly regarding the management of the lake. While the municipality is the owner of the lake, the feeder channels and the catchments, no efforts are made by the municipality to improve the condition of the lake.

The blame continues to be passed between municipality and PWD, each entity accusing the other of neglecting their responsibilities and the lake continues to undergo deterioration. The maintenance responsibilities for the lake were shifted from the PWD to the irrigation department in response to this. However, this has created a disjointed system where one department owns the lake, while another is responsible for its maintenance. 

The water situation worsens during peak tourist seasons, and residents of Nainital receive a limited water supply. The water scarcity is further exacerbated by poor maintenance and broken pipes and leakages in the city’s water supply system. The Jal Sansthan is entrusted with the responsibility of ensuring continuous domestic water supply, while UPJN oversees the installation, construction, and maintenance of water pipes. This division of responsibility leads to mismanagement because these two bodies often work in isolation, and while both the departments have a role in water distribution, the responsibility for ensuring continuous supply falls on the Jal Sansthan.

Supply challenges are further exacerbated by urbanisation and climate change 

Rapid urbanisation, unplanned construction activities, and encroachment on the recharge areas have also compromised the habitat and ecology of the city. In addition, silt, solid waste, construction debris, and other pollutants have led to eutrophication of the lake water and the gradual deterioration of the lake. It is important that these risks are managed in a manner that safeguards resources and water supply security while minimising adverse impacts on the environment. 

What is the way out

The study argues that it is important to urgently improve water governance mechanisms in Nainital by addressing the mismanagement of water resources, fragmented approaches and unclear mandates by the water institutions and reduce the risk to water supply security in the town.

The study also recommends integration of nature-centric approaches into institutional frameworks, which can be helpful in improving the resilience of water systems and promoting sustainable water governance.

The study recommends the following steps for effective water management in Nainital:

• Rainwater harvesting: Most of the rain and snow falls during a short period in places such as Nainital. Collecting and harvesting this water will minimises the use of municipal treated water for non-potable use and will also help to maintain the lake level. 
• Springshed management: Most of the urban Himalayan cities are heavily dependent on spring sources for their water supply and drinking. The existing springs in the area need to be identified and revived.
• Wastewater treatment: As Nainital does not have sewage treatment facilities, a conceptual water management strategy based on the use of non-conventional water resources can be used. Its applicability should be promoted while recognizing that it requires a distinct change in the behavioural patterns of institutions, utilities, and individuals. 
• Revival of traditional water harvesting systems: Traditional water systems are being overlooked in government strategies in the region. Reviving traditional water sources holds utmost significance in the sustainable conservation of water resources within the Himalayan region
• Capacity building: There is an urgent need for initiatives stressing the involvement of communities to achieve good water governance in institutions working on water sector development.