Transcript Policy Analysis - Pakistan Water Gateway

1
Mirza Hamid Hasan
3 June 2014
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Pakistan is predominantly an agricultural
country, heavily dependent on irrigation
water.
Our food security and economic development
both hinge upon adequate and timely
availability of water. Water is our lifeline.
Due to rapid population growth our per
capita water availability has come down from
more than 5000 cum in 1951 to less than
1000 cum in 2013. Thus we are a waterscarce country now.
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Water availability and population growth, 1951–2025 (Cubic meters)
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In addition to water scarcity caused by
demography and economic development the
phenomenon of climate change, by now well
established and visible, is also posing serious
challenges for water sector.
According to studies conducted for the UN by
IPCC and for the World Bank by Potsdam Institute
for Climate Impact Research and Climate
Analytics, South Asia, including Pakistan, is one
of the three most vulnerable regions in the world
facing the climate change impacts.
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According to these studies potential impacts
will include extreme river floods, tropical
cyclones, rising sea level, high temperatures
and severe droughts.
climate change shocks will severely affect
food production and water availability and
energy security.
Studies conducted specifically for Pakistan
predicted following impacts :
Increased variability of monsoon rains and
enhanced frequency and severity of extreme events
such as floods and droughts.
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Severe water and heat stressed conditions in arid
and semi arid regions, leading to reduced
agriculture productivity and power generation.
Increased upstream intrusion of saline water in
Indus Delta, adversely affecting coastal agriculture,
mangroves and breeding ground for fish.
Although glaciers all over world have been receding
over the past century, those in the HimalayasKarakoram-Hindukush (HKH) region are receding
faster than in any other part of the world.
Note: It may however be mentioned that there are diverse reports
and conclusions about glacial meting from different studies.
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It is thus clear that the increasing water
shortage and the impacts of climate change
would require us to bring about major
adjustments in our water resources
management and irrigation and agricultural
practices.
This would entail a review and analysis of the
existing policies and institutions, and
identification and highlighting of the gaps
requiring to be filled.
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Federal Policies
1. National Water Policy
 The first draft of the Policy was ready by
2003.
 It has been subjected to a number of reviews
between 2005 and 2008.
 The revised draft policy has been awaiting
approval since then.
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The draft Policy has identified the following
areas in the water sector needing policy
interventions, highlighting the issues faced
by each area and suggesting policy initiatives
to address the issues:
i.
Integrated Planning and Development of Water
Resources.
ii. Irrigated Agriculture.
iii. Municipal and Rural Water Supply and Sanitation.
iv. Maintenance of Supply Systems.
v. Water for Industry.
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vi.
vii.
viii.
ix.
x.
xi.
xii.
xiii.
xiv.
xv.
Water for Hydropower
Water Rights and Allocations
Economic and Financial Management
Groundwater
Stakeholder Participation
Flood Management
Drought Management
Drainage and Reclamation
Water Quality
Wetlands, Ecology and Recreational Water
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Information Management and Research
xvii. Transboundary Water Sharing
xviii. Institutional and Legal Aspects
Policy Gap Analysis
 The implementation of the Policy, when
approved, would require considerable time and
resources and will have to be undertaken in
phases.
 It is therefore necessary that the policy document
is supported by a rough estimate of resources
required for implementing it along with a phased
plan of action with a timeframe.
xvi.
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In view of a serious lack of capacity for
implementation the policy implementation would
have to be preceded by a capacity building
programme in the relevant institutions.
Integrated Water Resources Management (IWRM)
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Integrated Water Resources Management would
involve close coordination and consultation with
all the stakeholders in water and related sectors.
The best agency for such coordination would be
Planning Commission at the time of project
approval.
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It has been proposed that in order to promote
water conservation water should be
considered as a social as well as economic
resource. However, its cost should be
consistent with affordability.
The policy should categorise the social and
economic uses so that water could be priced
accordingly.
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Irrigated Agriculture
Out of an average 104 MAF of river flows
diverted for canal irrigation about 44.25 MAF
is lost in conveyance and 26.26 MAF is lost in
field applications.
The most important measure for checking
canal transit losses is canal lining which is
missing in the policy recommendations.
As regards water loss in field applications, its
reduction would require very close
coordination between Agriculture and
Irrigation Departments.
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Maintenance of Irrigation System
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Irrigation water must be priced at its real
economic value so that revenue recovery from
Aabiana is sufficient to at least meet the full
O&M expenses of the irrigation system. The
Policy should make a clear recommendation
in this regard.
This is essential not only for generation of
adequate resources for O&M but also for
checking wastage of water.
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Stakeholder Participation
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It has become very difficult to operate and
maintain the irrigation infrastructure at a
minimum desirable level of efficiency and good
upkeep without effective participation of the
farmers and their representatives.
The draft policy should spell out specific
measures for putting in place an effective
participatory mechanism, either by revival and
strengthening of the existing set of PIDAs etc. or
by suggesting the contours of a new structure.
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Construction of Storages for Hydropower and
Irrigation
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The need for construction of additional water
reservoirs cannot be overemphasised. While
the draft water policy takes notice of the
inter-Provincial controversy over dam
construction it does not propose any concrete
strategy for resolving this serious issue.
Clear policy measures should be spelt out to
remove mistrust and quickly build new
reservoirs.
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Groundwater Management
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Groundwater is now a major source of supply
of irrigation and municipal water in the
country. Most of the tubewells are owned and
operated by the private sector.
The draft water policy talks of the need for a
regulatory framework without indicating its
basic contours.
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There is need for a groundwater extraction
and usage law, a groundwater regulation law
providing for creation of a regulatory body,
groundwater exploitation rules, and
groundwater regulation rules, in every
Province.
There is also a need for undertaking
groundwater mapping, and monitoring of
withdrawal and recharge in all GW areas in
the country. WAPDA is perhaps best suited
and equipped for this job.
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Flood Management
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There is a need to plan and undertake flood
protection and mitigation measures on a basinwide and integrated manner.
This would involve planning, implementation and
coordination across Provinces and across Federal
and Provincial agencies.
A consolidated water law covering all areas
including river basin management and flood
management should be enacted by each
Province, under the umbrella of a Federal water
law.
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A Flood Management Policy in consultation
with Planning Commission, Provincial
Governments, NDMA and other relevant
organisations.
According as much importance to nonstructural measures for flood prevention as to
structural measures for flood prevention and
protection.
The government’s flood management
planning should be mainstreamed into its
development policy.
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Drought Management
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Many of the measures taken for flood
management, such as construction of reservoirs
and local rainwater harvesting and storage, are
also helpful in drought management.
Judicious and sparing use of canal and
groundwater during periods of drought, as well
as the use of water efficient irrigation methods,
are also important tools for drought
management.
A comprehensive Drought Management Policy
distinguishing between the peculiar needs of
irrigated and non-irrigated areas should be
prepared.
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Mainstreaming Disaster Management in Water
Policy
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The draft water policy should have a section
devoted to climate change impacts on water
availability for various water uses and
necessary mitigating and adaptive measures.
The National Water Policy should also provide
for a mandatory Climate Change Impact
Assessment for every programme or project
involving water resources management or
water use on a large scale.
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2.National Climate Change Policy, 2012
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This Policy provides a framework for
addressing the issues that Pakistan faces or
will face in future due to climate change.
The Policy highlights the vulnerabilities of
various sectors to climate change and spells
out appropriate adaptation measures. These
cover policy measures to address issues in
vulnerable sectors such as water,
agriculture, forestry, coastal areas,
biodiversity and ecosystems etc.
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In addition to the impacts already mentioned
earlier the policy highlights the following
additional impacts specific to Pakistan:
 Increased siltation of major dams caused by more
frequent and intense floods;
 Further decrease in the already scanty forest cover,
from too rapid change in climatic conditions to
allow natural migration of adversely affected plant
species;
 Increased stress between upper riparian and lower
riparian regions in relation to sharing of water
resources.
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The policy recommends a number of
adaptation measures aimed at protecting and
enhancing our water security, food security
and energy security.
Water Security
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i. Water Storage and Infrastructure
ii. Water Conservation Strategies
iii. Integrated Water Resource Management
iv. Legislative Framework
v. Capacity Enhancement
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Food Security
i. Agriculture Sector: The adaptation measures
identified above for water security are equally
applicable to the agriculture sector as they
would directly benefit agriculture.
ii. Other Measures: (a) Research in appropriate
digital simulation models for assessment of
climate change impacts on agriculture.
(b) Application of technology to improve crop
productivity per unit of land and per unit of
water.
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(c) Improving general management in the
agriculture sector.
(d) Developing Risk Management System like crop
insurance, planting a variety of heat and drought
resistant low delta crops, and agricultural
drought management practices.
Energy Security
 Giving preferential status to the development of
hydropower generation.
 Promoting the development of renewable energy
resources and technologies.
 Promoting futuristic building designs with solar
panels for energy self sufficiency.
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Planning expansion of nuclear power while
ensuring the highest safety standards.
Policy Analysis
 National Climate Change Policy is peculiar in the
sense that it cannot be implemented by the
Ministry of Climate Change (MoCC) that has
framed it because it does not deal with the
sectors that would be facing climate change
impacts.
 Its implementation would be the responsibility of
the institutions dealing with those sectors.
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It is therefore necessary that the concerned
Ministries, Departments and agencies own
this policy and integrate the relevant
adaptation and mitigation measures
identified in this Policy into their own sectoral
policies.
The Ministry of Climate Change can only
coordinate with them through InterMinisterial Committee on Climate Change.
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3.National Drinking Water Policy, 2009
The Policy was formulated by the then Ministry of
Environment (Now Ministry of Climate Change) to
lay down the broad policy principles and priorities
for drinking water supply for the guidance of
Provincial and Local Governments who are
responsible for this service under the Constitution.
Policy Gap Analysis
 It is notable that the policy has also taken care of
climate change impacts and disaster preparedness
and response.
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However an important point to be noted in
this context is the expected increase in
demand for domestic water due to population
increase and extreme heat caused by global
warming.
The of allocation for domestic use will
therefore have to be increased by adjusting
the share of irrigation water which is
excessive at present.
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4.National Sanitation Policy, 2006
 The National Sanitation Policy basically provides a
broad framework and policy guidelines to the
Federal, Provincial and Local Governments to
enhance and support sanitation coverage in the
country.
 The sanitation policy basically focuses on safe
disposal of liquid and solid wastes.
 The basic purpose of its provisions is to save
water bodies from pollution and contamination
by untreated sewage or toxic waste.
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Policy Gap Analysis
 Sanitation is a Provincial and local
government responsibility. The Federal Policy
is only meant to provide broad principles and
guidelines for safe sanitation and
coordination.
 Therefore every Province should formulate its
own Sanitation Policy to lay down detailed
policy measures.
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5.National Environment Policy , 2005
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The National Environment Policy provides
an overarching framework for addressing
environmental issues, natural disasters and
climate change, most of which are either
directly related with or have an impact on
water resources.
In this respect it is almost synchronous with
the draft NWP.
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Provincial Policies
1.Integrated Water Resources Management Policy,
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Balochistan, 2006
Balochistan has taken a lead in developing a water
policy of its own.
Balochistan’s IWRM Policy is designed to take care
of the following peculiar features:
Balochistan receives 63% of its water from floods,
4% from groundwater and the rest from IBIS canals.
Excessive dependence on very limited quantity of
groundwater.
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Highly arid climate, scanty rainfall, very large
land area and a small and scattered population.
Policy Gap Analysis
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The policy has not taken into consideration the
climate change impacts of high temperatures
and extreme events of floods and droughts.
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The policy will have to take cognizance of the
likely impacts and suggest policy measures for
their prevention, adaptation and management.
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2.Punjab Urban Water and Sanitation Policy, 2007
 The Policy intended to provide an overarching
framework to guide and support provincial
institutions, local government institutions, water
utilities and communities for improving water and
sanitation services.
Policy Gap Analysis
 The Policy does not suggest measures to
address the WS&S issues identified in the
policy document except in a couple of cases.
 It does not identify and address the issues
likely to arise from climate change.
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End of Part I
Thank You
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Institutional Analysis in the
Water Sector
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Suitable modifications and adjustments
would be required in the relevant institutions
in the water, agriculture and allied sectors so
as to equip them to adequately respond to
the growing water scarcity, challenges posed
by climate change as well as implementation
of policy reform suggested in part I.
It is therefore necessary to carry out a review
of the existing institutional framework and
identify and highlight the gaps requiring to
be filled for institutional strengthening.
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Federal Institutions
1. Ministry of Water and Power
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Ministry of Water and Power is the highest policy
making body for the Water and Power Sectors.
The Ministry is headed by a Secretary who is
assisted by two Additional Secretaries (AS) and six
Joint Secretaries( JS). Out of them one AS (partially)
and one JS deal with the water sector. This staffing
pattern shows that this sector has been assigned a
much lower priority than it deserves.
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Consequently the functions of national level
policy and planning of water resources suffer
from lack of attention.
Institutional Gap Analysis
 The Ministry of Water and Power neither has a
Policy nor a Planning wing.
 There is no in-house technical capacity to
perform these functions.
 Similarly the Ministry does not have a dedicated
section to undertake coordination with other
Ministries or agencies dealing with water related
matters.
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The Ministry must have a Policy and Planning
Wing (P&P Wing) to undertake policy and
planning work at the national level and to render
policy advice to national leadership.
The P&P Wing should be manned by qualified and
competent technical professionals.
This Wing should also work as the secretariat of
the National Water Council proposed in the draft
National Water Policy.
The P&P Wing of the Ministry should also have a
Water Coordination Cell (WCC) to perform the
coordination functions with other organisations.
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2. Water and Power Development Authority (WAPDA)
 (WAPDA) was created in 1958 as a semiautonomous body for the development of
schemes in Water and Power sectors.
 WAPDA has since been bifurcated into two
distinct entities i.e. WAPDA and Pakistan
Electric Power Company (PEPCO). WAPDA is
now responsible only for water and
hydropower development.
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Institutional Gap Analysis
Over the years WAPDA had built-up a reservoir
of technical know-how and expertise which
had made it a talent pool of civil and electrical
engineering.
However its technical capacity gradually started
declining and has been considerably eroded by
now.
Its capacity in planning, investigation and
design has also been considerably reduced and
most of its projects are now awarded to
contractors on EPC basis.
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Its Planning Division and Central Design Office need
strengthening by inducting qualified and experienced
professionals.
 It also needs to strengthen its Environment Cell in order
to process environmental and climatic data for more
accurate forecast.
3. Office of Chief Engineering Advisor and Chairman Federal Flood
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Commission
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The office of CEA and FFC has a dual role to performthe CEA provides technical advice to the Ministry of
Water and Power on projects in the fields of irrigation,
drainage, dams, hydropower and allied engineering
matters, and as Chairman FFC he deals with flood
protection schemes and measures.
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Institutional Gap Analysis
 The office of CEA is a lean unit with two
engineers each under Engg Advisor (Power) and
Engg Advisor (Civil) respectively.
 But the team of two assigned to each advisor is
not senior and experienced enough to critically
appraise the projects or render meaningful
advice on policy matters.
 Also, being permanently located in that office
they perhaps cannot acquire the necessary
expertise and experience that comes from
working hands-on in a field organisation.
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It would be advisable to have some of the
staff on deputation from other field offices to
strengthen the CEA’s office.
The office of CEA may be assigned the
following additional functions:
i.
Monitoring of federally financed activities in the
water sector.
ii. Monitoring water sector programmes and
projects with regard to Climate Change Impact
Assessment.
iii. Establishment of a national water database.
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In order to perform these functions effectively
the office of CEA will need to be strengthened
with additional technical staff with suitable
qualifications and experience.
The FFC part of the office is better staffed than
CEA’s office. AS floods are basically managed by
provincial governments FFC mainly performs the
functions of flood protection planning at the
national level and coordination of Federally
funded or donor assisted flood protection
projects.
Although it is the apex flood management body
in the country yet it lacks the capacity to
undertake any work at the policy or operational
level.
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Its functions are performed on the basis of data and
information received by it from the Provincial
Governments, Flood Forecasting Division of Pakistan
Met. Department at Lahore and WAPDA, as it has no
field staff of its own.
FFC needs to be suitably equipped to meet the
increasing demands on it on account of increasing
frequency and severity of floods due to climate change.
Preferably it should be made an autonomous
organisation under Ministry of Water and Power in view
of the expanded role it will have to play for flood
prevention and protection due to climate change.
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The strengthened FFC should be assigned the
following additional responsibilities:
i.
Formulating a comprehensive Flood Management
Policy and a Flood Management Plan.
ii.
Assessment of vulnerability and risk for different
flood prone areas, floodplain mapping and
zoning, and land-use planning and enforcement.
iii.
Review of the Bund Manual, a 1978 document
with a view to incorporating the latest knowledge
concerning levee safety.
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4.Indus River System Auth ority (IRSA)
 IRSA was established in 1992 to implement the
Water Apportionment Accord between Provinces
signed in 1991.
 Among others, following are the major functions
assigned to IRSA:
i.
To lay down the basis for the regulation and
distribution of surface waters amongst the
Provinces.
ii.
To coordinate and regulate the activities of
WAPDA in the exchange of data between the
Provinces.
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iii.
iv.
To determine priorities with reference to subclause (c) of clause 14 of the Water Accord for
river and reservoir operations for irrigation and
hydropower requirements.
To compile and review canal withdrawal indents
as received from the Provinces and issue
operational directives to WAPDA for making such
releases from reservoirs as the Authority may
consider appropriate or consistent with the Water
Accord.
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Institutional and Capacity Gap Analysis
 It is difficult for the Authority to arrive at a consensus
decision in case of objection by a Province because its
Members are nominated by the Provinces to safeguard
their interests.
 IRSA does not have a real time water monitoring system
of its own which is essential to remove inter-Provincial
mistrust.
 IRSA has no authority for relaxation in the rules for
reservoir operation if needed.
 IRSA will face a lot of difficulty in water allocation
during periods of droughts caused by climate change
due to pressure from every province for full share.
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5. Pakistan Commissioner for Indus Waters (PCIW)
 The office of PCIW was established in pursuance of
Indus Waters Treaty,1960 between Pakistan and
India with the following mandate:
i.
To establish and maintain cooperative
arrangements for the implementation of the
Treaty.
ii.
To promote cooperation between the Parties in
the development of the waters of the 'Rivers'.
iii. To make every effort to settle promptly, in
accordance with provisions of Article IX (1), any
question arising thereunder.
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Institutional and Capacity Gap Analysis
 PCIW is a small organisation manned by normally
qualified staff. But keeping in view the important
role it has to play in safeguarding our water rights
and interests under the Indus Waters Treaty , 1960
it must be staffed by hydraulic and dams experts of
the highest order.
 The Treaty itself provides that both countries
should appoint “...a high ranking engineer
competent in the field of hydrology and water use”
as Commissioner for Indus Waters. This criteria
should also apply to other officials.
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The office of PCIW should also be equipped with
the latest modeling software to process the data
received by them about the Indian projects.
Likewise higher expertise and facilities are required
to process flood data received from India.
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Provincial Institutions
1.Provincial Irrigation Departments (PIDs)
The institutional framework of PIDs in all the
Provinces is almost similar, except for minor
variations.
 Their role and functions, except for some
differences in the case of Balochistan, are also
similar, and the major functions are as follows:
i.
Construction, maintenance and rehabilitation of
canals and barrages.
ii.
Distribution of canal water
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Flood control and flood protection schemes.
iv.
Drainage schemes.
Institutional and Capacity Gap Analysis
iii.
Since 93% of Pakistan’s surface water is used in
irrigated agriculture, construction, operation and
maintenance of barrages and canals and other
irrigation infrastructure is of utmost significance for
us.
Unfortunately the PIDs no more possesses the
institutional base or the capacity to undertake
construction of large structures like barrages or large
canals. Most such works in recent years have been
handled by WAPDA. There is need to shore up inhouse capacity in PIDs for design and engineering of
such projects.
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Our irrigation system suffers from huge losses of
water during conveyance. There is a need to set up
a loss reduction units in the IPDs to address the
problem.
water theft and inequitable distribution are also
serious problems in the canal distribution system.
Punjab has been able to reduce the problem
considerably by setting up the Project Monitoring
and Implementation Unit (PMIU) and a complaint
management system under it. Other Provinces
should also make similar arrangements.
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Groundwater is a major source of irrigation water
now. But this important area is conspicuous by
almost total neglect of management and regulation
by all the provinces.
There is need to set up a groundwater
management and monitoring organisation as well
as a groundwater regulatory body in every
province.
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2. Provincial Agriculture Departments (PADs)
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PADs play a very crucial role in irrigation water
utilisation by the farmers as well as adoption of
water conservation measures by them.
On-Farm Water Management Programmes (OFWM)
and National Programme for Improvement of
Watercourses (NPIW) have played an important role
in saving water through water course improvement,
high efficiency irrigation systems and laser land
leveling.
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Institutional and Capacity Gap Analysis
 There is still scope for a more active role by the
PADs by institutional strengthening and
reorienting.
 The use of Efficient irrigation methods and devices
has not picked up quickly enough for reasons of
high cost, lack of financing arrangements and lack
of awareness and technical know-how. PADs
should play a more active role to remove these
obstacles.
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There is no institutional arrangement and capacity
to monitor and measure the success and
effectiveness of these programmes in terms of
quantity of water saved or water efficiency
improvement achieved.
Outcome Monitoring Units should be set up in all
PADs.
PADs should set up Water Need Assessment and
Coordination Units to monitor farm needs and help
PIDs move towards need based water distribution
system.
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PADs should make institutional arrangements for
providing technical assistance and motivation to
the farmers to build rural and on-farm water
storages for flood waters and to undertake rain
water harvesting and storage.
Provincial Water Supply and Sanitation Institutions
 The responsibility for delivery of WSS services was
devolved to local government institutions under
Local Government Ordinances 2001.
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In the case of rural areas it was devolved to TMAs
and in metropolitan towns and City Districts these
were entrusted to Water and Sanitation
Agencies(WASAs) and City District Administrations
respectively.
Institutional and Capacity Gap Analysis
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i.
The devolution of WSS services suffers from a
number of legal lacunae.
Municipal bodies, who were entrusted with this
responsibility, are accountable to both the
provincial and local governments, but there is
little regulation of their performance.
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ii.
iii.
There is no exclusive legislation governing the
subject of water supply and sanitation either at
the Federal or Provincial level.
Local Government Ordinances, 2001 only
covered the jurisdictional aspect of the service
delivery, while important aspects such as policy
formulation, water quality, water regulation,
water and sanitation tariff, coordination between
stakeholders and development of WSS
infrastructure are still uncovered by any
legislation.
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There is need to regulate domestic water supply
and to save the aquifer through a comprehensive
legislation. Each Provincial Government, with the
consensus of all stakeholders, should enact a
Municipal water law.
The WSS service delivery organisations are acutely
cash strapped and are dependent on provincial
governments for administrative as well as O&M
expenses.
There is an urgent need to review the tariff levels
and reform the revenue recovery system.
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A mechanism for monitoring the coverage and
quality of WSS services should be put in place in
every Provincial Government.
Thank you
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