Roundtable Discussion on Agriculture and Water in Pakistan

Government of the Punjab

INSTITUTIONAL REFORMS EXPERIENCE IN PUNJAB

RAB NAWAZ Secretary IPD, Punjab

March 09, 2011

INSTITUTIONAL REFORMS

Government of the Punjab

Institutional Reforms in the Irrigation Sector were initiated in 1997 with the promulgation of PIDA Act The reforms objectives focus on: Decentralization & Autonomy Farmers Participation and Empowerment Efficiency and Sustainability

The new institutions under the reforms framework include: PIDA Area Water Board (AWB) Farmer Organization (FO) Khal Panchayat (KP) Provincial Level Main Canal Level Distributary Level Watercourse Level
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REFORMS TIERS
I&P Deptt.

CHAIRMAN
Government of the Punjab
Authority Board (Governing Body) Non-Farmer Members (05) Farmer Members (06)

PIDA
AWBs FOs
(Farmers Rep.)

Chairman

Vice Chairman
(Farmers Rep.) Non-Farmer Members (09)
Executive Members (5)

Board of Management (MD PIDA, 3- GMs) Vice President

Management Committee Of FO (9- Members) General Secretary Treasurer

Farmer Members (10)

President

Khal Panchayats
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LEGAL FRAMEWORK

Government of the Punjab

PIDA Act,1997 PIDA (AWB) Rules, 2010 AWB Regulations

PIDA, AWB (Conduct of Business) Regulations PIDA, AWB (Conduct of Meetings) Regulations PIDA Pilot AWB (Elections) Regulations

LEGAL FRAMEWORK
PIDA (FOs) Rules, 2010
Government of the Punjab

FO Regulations
PIDA FOs (Conduct of Business) Regulations PIDA Pilot FOs (Financial) Regulations PIDA Pilot FOs (Elections) Regulations PIDA Pilot FOs (Registration) Regulations

IMT Agreement with FOs

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FOs FORMATION

Khal Panchayat at Watercourse Level

Government of the Punjab

FOs Established at Distributary Level comprising General Body and Management Committee General Body comprising all Chairmen of KPs Management Committee (President, Secretary and Treasurer etc.) elected by General Body Tenure - 03 years extendable by 01 year by PIDA

FUNCTIONS OF AWB

Government of the Punjab

Monitoring equity in water distribution measures for preventing water theft

and

Monitoring and reviewing O&M work plan of the canals / FOs Reviewing and supervising the assessment and collection of water rates by FOs Preparation and implementation programs of channels of rotational

Assistance in promotion and development of FOs Review of expenditures against budget allocations Recommendations of development schemes
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FUNCTIONS OF FARMERS ORGANIZATIONS

Government of the Punjab

Manage and Operate the distributary and its attendant system (minors etc) Assessment and collection of Abiana Hiring of staff Repair and Maintenance Equitable distribution of water Maintenance of Accounts Dispute Resolution

FUNCTIONS OF KHAL PANCHAYAT

Government of the Punjab

Mediate in disputes between Farmers for equitable distribution of canal water Support the FO in maintaining the watercourse through voluntary labour Report tampering of outlets to the FOs Assist in the process of assessment of water rates Persuade the Farmers to make timely payment of the water charges Report shortage of supply in the outlet and assist the FOs in the process of remission of water rates
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IRRIGATION NETWORK AREA WATER BOARDS

Government of the Punjab

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STATUS OF IRRIGATION MANAGEMENT TRANSFER

Sr No Area Water Board (AWB) Year of Inception Irrigation Management Transferred on 07.03.2005 1 LCC(East) Circle, Faisalabad 2005 28.06.2005 07.12.2005 Sub Total 24.08.2007 2 LCC(West) Circle, Faisalabad 2007 11.09.2007 08.10.2007 Sub Total No Of FOs 20 49 15 84 25 25 14 64 Remarks

Government of the Punjab

FO period expired on 31.12.2008. Thereafter Administrator appointed. Management now transferred to FO. FO period expired during Oct.2010. Extended upto 31.3.2011.

Lower Jhelum Canal Circle, Sargodha 2007

2007

FO period expired during Oct.,2010. Extended upto 31.3.2011.

CRBC, Derajat Canal Circle, D.G. Khan

2007

2007

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FO period expired during Oct.,2010. Extended upto 31.3.2011 FO period expired on 31.12.2008. Thereafter Administrator appointed. Now IMT under process 11

Bahawalnagar

2007

2000 2010 Sub Total

3 1 4

FOs SIZE IN LCC (EAST)

CCA (Acres) 1000 5000 5000 10000 10000 20000 20000 - 40000 Above 40000 Total No. of FOs 8 26 24 10 17 85 % of FOs 9 31 28 12 20 100
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Government of the Punjab

PERFORMANCE INDICATORS
Sr. No 1 Government of the Punjab 2

Indicators
Organizational Development Irrigation Service Delivery; (i) (ii) Operation & Regulation of channels Monitoring and recording of water delivery of channels and outlets to maintain equity.

Weightage (Marks) 15

45 (15+30) 20 5 15

3 4 5

Management of physical condition of disty- O&M of channels / works. Disputes Resolution and disposal of water theft and canal revenue cases. Water charges(Abiana) assessment and collection

TOTAL

100
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STATUS OF ABIANA ASSESSMENT & COLLECTIO N LCC (EAST) FAISALABAD - AWB

(Rs.in Million) Sr. No. Assessment Year Assessed Amount Remission Net Assessed Amount after remission Collection Pended Amount % age collection

FO Tenure Government of the Punjab

1 2 3 4 2004-05 2005-06 2006-07 2007-08 176.690 193.779 193.453 68.575 10.975 13.887 16.125 7.672 165.715 179.892 177.328 60.903 135.081 127.033 123.644 36.080 30.634 52.858 53.684 24.823 82 71 70 59

Sub Total

632.497

48.659

583.838

421.839

161.999

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Administrators Period
5 6 7 2007-08 2008-09 2009-10 125.854 195.111 69.256 11.731 0 0 114.123 195.111 69.256 66.780 80.877 16.038 47.343 114.234 53.218 59 41 23

Sub Total Total AWB

390.221 1022.719

11.731 60.390

378.490 962.328

163.695 585.534

214.796 376.795

43 61

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PERFORMANCE EVALUATION OF 84 FARMERS ORGANIZATIONS IN PILOT AWB: OVERALL SUMMARY

PIDA Ranking Standard Government of the Punjab M&E (2006) (84 FOs) Good (>85%) Satisfactory (70%-85%) Adequate (55%-70%) Poor (<55%) 13 (15%) 34 (40%) 26 (31%) 11 (13%) PIDA M&E (2007) (84 FOs) 25 (30%) 19 (23%) 25 (30%) 15 (18%) JICA Survey (March 2007) (84 FOs) 19 (23%) 47 (56%) 13 (15%) 5 (6%) Third Party Monitoring (May 2008) (10 FOs) 2 (20%) 2 (20%) 4 (40%) 2 (20%)
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PARTICIPATION REALITY CHECK

Universal Truths About Participatory Systems
Government of the Punjab

The nature of structure/Institution one wishes to run Localised Vs expansive/integrated narrow vs broad based Servicing whom? A delta or a water stressed land???

Politico-cultural setting for such participation Equality based or class based role perceptions

Asset ownership and well-being patterns Equitable or lopsided feudalistic or welfare based

Larger governance environment and democratic traditions

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LESSONS LEARNT IN PIDA

Government of the Punjab

Both strengths and weaknesses like in any other system The strengths of the new system include farmers awareness and ownership, speedy dispute resolution, efforts for equitable water distribution and development of local capacity for irrigation management The weaknesses include declining abiana collection, weakness in maintenance of accounts and record keeping, increasing water theft and elite capture For sustainability of the system and improving FOs performance, imperative need for: Continued political support Realism, Capacity building and mainstreaming of FOs Closer monitoring and support by PIDA / IPD Timely action for corrective measures
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LESSONS LEARNT IN PIDA

External imposed vs home-grown solutionownership issues
Government of the Punjab

PIDAs structure inbuilt resistance to change GMs from IPD Secretary cum MD PIDA Pros and Cons Distributary level probably too large a scale minor more doable Incremental approach Geographical focus some area may not be ripe for FOs type management for a long time
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RECENT EVOLUTION IN REFORMS FRAMEWORK

Reforms process evolving not static The process being internalized in response to the implementation experience Revision in the Rules to allow time for capacity building of FOs and phased transfer of responsibilities in response to their evaluated capacity Standard home-grown IMT model being developed More proactive and enabling role at AWB level At PIDA level, in-house enabling institution is needed. It has so far remained under the shadow of IPD and has not exercised the flexibility of an autonomous body
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Government of the Punjab

MAJOR ISSUES AND CHALLENGES

Donor driven Vs informed homegrown choices Localized management of a vast integrated system world experience Ambitious fast-track agenda rather than slow evolution Land ownership patterns and feudal structures Nature of Punjab local politics overt politicization of the process and external pressure - divisiveness Institutional resistance Either / OR rather than partnership Weak institutional support at PIDA and AWB level
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Government of the Punjab

WHERE TO???
More realistic approach keeping in view nature of system and local needs. Piloting smaller / manageable FOs at minor level Improving FOs systems, staffing and internal controls of FOs Enhancing support by PIDA / AWB Support Capacity at PIDA Headquarter Role of canal officers in monitoring and supervision of working of FOs and a partnership based supportive role Handling of emergencies support by canal officers Effective monitoring and backup support Revisiting the rules / regulations of FOs / AWBs on regular basis Alternate mechanism for collection of arrears of abiana
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Government of the Punjab

Government of the Punjab

THANKS
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