INSTITUTIONAL REFORMS EXPERIENCE IN PUNJAB

Transcription

1 Roundtable Discussion on Agriculture and Water in Pakistan INSTITUTIONAL REFORMS EXPERIENCE IN PUNJAB RAB NAWAZ Secretary IPD, Punjab March 09,

2 INSTITUTIONAL REFORMS 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 Provincial Level Area Water Board (AWB) Main Canal Level Farmer Organization (FO) Distributary Level Khal Panchayat (KP) Watercourse Level 2

3 REFORMS TIERS I&P Deptt. CHAIRMAN PIDA Authority Board (Governing Body) Non-Farmer Members (05) Board of Management (MD PIDA, 3- GMs) President Farmer Members (06) Vice President AWBs FOs Management Committee Of FO (9- Members) General Secretary Treasurer Executive Members (5) Chairman (Farmers Rep.) Vice Chairman (Farmers Rep.) Non-Farmer Members (09) Farmer Members (10) Khal Panchayats 3

4 LEGAL FRAMEWORK 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 4

5 LEGAL FRAMEWORK PIDA (FOs) Rules, 2010 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 5

6 FOs FORMATION Khal Panchayat at Watercourse Level 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 6

7 FUNCTIONS OF AWB Monitoring equity in water distribution and measures for preventing water theft 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 of rotational programs of channels Assistance in promotion and development of FOs Review of expenditures against budget allocations Recommendations of development schemes 7

8 FUNCTIONS OF FARMERS ORGANIZATIONS 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 8

9 FUNCTIONS OF KHAL PANCHAYAT 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 9

10 IRRIGATION NETWORK AREA WATER BOARDS 10

11 STATUS OF IRRIGATION MANAGEMENT TRANSFER Sr No Area Water Board (AWB) 1 LCC(East) Circle, Faisalabad Year of Inception LCC(West) Circle, Faisalabad Lower Jhelum Canal Circle, Sargodha CRBC, Derajat Canal Circle, D.G. Khan 2007 Irrigation Management Transferred on No Of FOs Sub Total Sub Total Remarks 20 FO period expired on Thereafter Administrator appointed. 49 Management now transferred to 15 FO. 25 FO period expired during Oct Extended upto FO period expired during Oct.,2010. Extended upto FO period expired during Oct.,2010. Extended upto Bahawalnagar Sub Total 4 FO period expired on Thereafter Administrator appointed. Now IMT under process 11

12 FOs SIZE IN LCC (EAST) CCA (Acres) No. of FOs % of FOs Above Total

13 PERFORMANCE INDICATORS Sr. No Indicators Weightage (Marks) 1 Organizational Development 15 2 Irrigation Service Delivery; (i) (ii) Operation & Regulation of channels Monitoring and recording of water delivery of channels and outlets to maintain equity. 3 Management of physical condition of disty- O&M of channels / works. 4 Disputes Resolution and disposal of water theft and canal revenue cases. 45 (15+30) 5 Water charges(abiana) assessment and collection TOTAL

14 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 Sub Total Administrators Period Sub Total Total AWB

15 PERFORMANCE EVALUATION OF 84 FARMERS ORGANIZATIONS IN PILOT AWB: OVERALL SUMMARY Ranking Standard Good (>85%) Satisfactory (70%-85%) Adequate (55%-70%) PIDA M&E (2006) (84 FOs) 13 (15%) 34 (40%) 26 (31%) PIDA M&E (2007) (84 FOs) 25 (30%) 19 (23%) 25 (30%) JICA Survey (March 2007) (84 FOs) 19 (23%) 47 (56%) 13 (15%) Third Party Monitoring (May 2008) (10 FOs) 2 (20%) 2 (20%) 4 (40%) Poor (<55%) (13%) (18%) (6%) (20%) 15

16 PARTICIPATION REALITY CHECK Universal Truths About Participatory Systems 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 16

17 LESSONS LEARNT IN PIDA 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 17

18 LESSONS LEARNT IN PIDA External imposed vs home-grown solution ownership issues PIDA s 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 18

19 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 19

20 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 20

21 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 21

22 THANKS 22