Institutional reform experience in Punjab

7/30/2019 Institutional reform experience in Punjab

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INSTITUTIONAL REFORMS

EXPERIENCE IN PUNJAB

RAB NAWAZ

Secretary IPD, Punjab

March 09, 2011

Roundtable Discussion on Agricultureand Water in Pakistan


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INSTITUTIONAL REFORMS

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Institut ional Reforms in the Irrigation Sector were init iated in 1997

with the promulgation of PIDA Act

The reforms objectives focus on:

Decentralization & Autonomy

Farmers Participation and Empowerment

Efficiency and Sustainabili ty

The new institutions under the reforms framework include:

PIDA Provincial Level

Area Water Board (AWB) Main Canal Level

Farmer Organization (FO) Distr ibutary Level

Khal Panchayat (KP) Watercourse Level


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REFORMS TIERS

I&P Deptt.

PIDACHAIRMAN

FarmerMembers (06)

Board of Management(MD PIDA, 3- GMs)

AWBs

FOs

Management CommitteeOf FO

(9- Members)

VicePresident

GeneralSecretary

TreasurerExecutiveMembers

(5)

Authority Board(Governing Body)

Non-FarmerMembers (05)

Chairman(Farmers Rep.)

Vice Chairman(Farmers Rep.)

Non-FarmerMembers (09)

FarmerMembers (10)

President

Khal Panchayats


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LEGAL FRAMEWORK

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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


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LEGAL FRAMEWORK

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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


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FOs FORMATION

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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


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FUNCTIONS OF AWB

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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


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FUNCTIONS OF FARMERS

ORGANIZATIONS

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Manage and Operate the distributary and itsattendant system (minors etc)

Assessment and col lection of Abiana

Hiring of staff

Repair and Maintenance

Equitable distribution of water

Maintenance of Accounts

Dispute Resolution


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FUNCTIONS OF KHAL PANCHAYAT

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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

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STATUS OF IRRIGATION MANAGEMENT TRANSFER

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Sr No Area Water Board (AWB)Year of

Inception

Irrigation

Management

Transferred on

No Of

FOsRemarks

1 LCC(East) Circle, Faisalabad2005

07.03.200520 FO period expired on 31.12.2008.

Thereafter Administrator appointed.

Management now transferred to

FO.

28.06.200549

07.12.200515

Sub Total 84

2 LCC(West) Circle, Faisalabad 2007

24.08.200725 FO period expired during Oct.2010.

Extended upto 31.3.2011.11.09.2007 25

08.10.200714

Sub Total64

3Lower Jhelum Canal Circle,

Sargodha2007

2007 6

FO period expired during Oct.,2010.

Extended upto 31.3.2011.

4CRBC, Derajat Canal Circ le,

D.G. Khan2007 2007 30

FO period expired during Oct.,2010.

Extended upto 31.3.2011

5 Bahawalnagar 2007

2000

2010

3

1 FO period expired on 31.12.2008.

Thereafter Administrator appointed.

Now IMT under processSub Total 4


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FOs SIZE IN LCC (EAST)

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CCA (Acres) No. of FOs % of FOs

1000 5000 8 9

5000 10000 26 31

10000 20000 24 28

20000 - 40000 10 12

Above 40000 17 20

Total 85 100


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PERFORMANCE INDICATORS

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Sr. NoIndicators

Weightage

(Marks)

1 Organizational Development 15

2 Irrigation Service Delivery;

(i) Operation & Regulation of channels

(ii) Monitoring and recording of water delivery ofchannels and outlets to maintain equity.

45

(15+30)

3 Management of physical condition of disty- O&M of

channels / works.

20

4 Disputes Resolution and disposal of water theft

and canal revenue cases.

5

5 Water charges(Abiana) assessment and collection 15

TOTAL 100


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STATUS OF ABIANA ASSESSMENT & COLLECTIO N

LCC (EAST) FAISALABAD - AWB

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Sr. No.Assessment

Year

Assessed

Amount Remission

Net Assessed

Amount afterremission

CollectionPended

Amount

% age

collection

FO Tenure

1 2004-05 176.690 10.975 165.715 135.081 30.634 82

2 2005-06 193.779 13.887 179.892 127.033 52.858 71

3 2006-07 193.453 16.125 177.328 123.644 53.684 70

4 2007-08 68.575 7.672 60.903 36.080 24.823 59

Sub Total 632.497 48.659 583.838 421.839 161.999 72

Administ rators Period

5 2007-08 125.854 11.731 114.123 66.780 47.343 59

6 2008-09 195.111 0 195.111 80.877 114.234 41

7 2009-10 69.256 0 69.256 16.038 53.218 23

Sub Total 390.221 11.731 378.490 163.695 214.796 43

Total AWB 1022.719 60.390 962.328 585.534 376.795 61

(Rs.in Million)

PERFORMANCE EVALUATION OF


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PERFORMANCE EVALUATION OF

84 FARMERS ORGANIZATIONS IN PILOT AWB:

OVERALL SUMMARY

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Ranking

Standard

PIDA

M&E

(2006)

(84 FOs)

PIDA

M&E

(2007)

(84 FOs)

JICA Survey

(March 2007)

(84 FOs)

Third PartyMonitoring

(May 2008)

(10 FOs)

Good

(>85%)

13

(15%)

25

(30%)

19

(23%)

2

(20%)

Satisfactory

(70%-85%)

34

(40%)

19

(23%)

47

(56%)

2

(20%)

Adequate

(55%-70%)

26

(31%)

25

(30%)

13

(15%)

4

(40%)

Poor

(


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PARTICIPATION REALITY CHECK

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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 feudalist ic or welfare based

Larger governance environment and democratic traditions


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LESSONS LEARNT IN PIDA

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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, weaknessin 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 bui lding and mainstreaming of FOs

Closer monitoring and support by PIDA / IPD

Timely action for corrective measures


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LESSONS LEARNT IN PIDA

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External imposed vs home-grown solutionownership

issues

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

RECENT EVOLUTION IN REFORMS


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RECENT EVOLUTION IN REFORMS

FRAMEWORK

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Reforms process evolving not static

The process being internalized in response to the

implementation experience

Revision in the Rules to al low t ime for capacity

building of FOs and phased transfer of responsibili ties

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 insti tution is needed.It has so far remained under the shadow of IPD and has

not exercised the flexibil ity of an autonomous body


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MAJOR ISSUES AND CHALLENGES

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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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WHERE TO???

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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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THANKS

Institutional reform experience in Punjab

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