Nisar Memon

SECTION SUMMARY:

The Committee held extensive deliberations, since its inception, with Federal Ministries and Departments for understanding the water strategy towards achievement of assigned TORs. Provinces were visited twice to seek Provincial Governments position on water strategy as well as to have interaction with elected/ non-elected politicians, stakeholders, including farmers, NGOs, technocrats and columnists, etc. Several projects sites were visited including a day long aerial view of projects in NWFP. The recommendations have been developed as an outcome of the proceedings and discussions, followed by meetings amongst the members of PCWR. The areas of recommendations are as follows:

IRSA’s Telemetry System

1991 Water Accord Implementation

Provincial Priority Projects including Small Reservoirs

Confidence Building Measures (CBMs)

Implementation Plan & Leadership

General: Administrative Support and Technical Assistance

It is recommended that all decisions be implemented with consensus. Wherever consensus is so far reached, it should be immediately implemented to create environment of confidence and move forward for consensus on bigger issues. If despite all efforts, consensus is not arrived at, the government after required debate in the Parliament and national media may take executive decisions or refer the matter to NSC or CCI for final decision in the best interest of the country keeping in view the sensitivities involved and possible impact on national harmony.

The recommendations of the Committee are given hereinafter.

IRSA’s TELEMETRY SYSTEM:

According to WAPDA, installation of the Telemetry System was completed in September 2003. A “Discharge Verification Committee” was formed by the Ministry of Water & Power, comprising Chief Engineer (Operations) IRSA as Convener and a member each from WAPDA, NESPAK and Provincial Irrigation Department at the respective site. The Telemetry System/ discharge data was physically verified in June 2004, at 19 of the 23 sites and the telemetry data was found in agreement with the manual observations at each of the sites. The four sites at Sindh Balochistan boundary could not be visited by the Committee due to security reasons. The system has remained operational since then but could not perform upto mark as O&M of the system could not be done by IRSA due to non-availability of requisite staff.

During PCWR visit to IRSA Headquarters on June 22, 2004, it was observed that 13 stations were giving more than 5% deviations in discharge data recorded through telemetry system in comparison to physical observations. IRSA has been unable to build capacity for operation & maintenance of the Telemetry System due to inadequate funding. After various efforts including the support of PCWR, requisite funds were released and hiring of staff is now underway. IRSA has given new date for taking over the Telemetry System as January 01, 2005, after calibration and testing of the system. The Federal Minister of Water & Power confirmed in CMs meeting of July 20, 2004 that IRSA will achieve their objectives.

Recommendation: In order to ensure that the Telemetry System is calibrated and fully tested for taking over by IRSA on the expected target date, following recommendation is made:

1991 WATER ACCORD IMPLEMENTATION:

The “Accord on the Apportionment of Waters of the Indus Rivers System” was signed in March 1991 in a unique demonstration of mutual cooperation and national spirit, resolving the 70-year old issue of water apportionment. The 1991 Water Accord is accepted as “sacrosanct” by all provinces, yet it could not be implemented in ‘toto' with major gaps in the following areas:

Sharing of Allocation & Shortages:
Distribution according to 1991 Accord versus 1994 Ministerial Decision and shortages should be shared by all provinces.

Filling of Mangla Reservoir & Running of Link Canals:
Differences created because of the practices in filling reservoirs and operation of link canals

Greater Thal Canal:
Objection to Greater Thal Canal, by Sindh, and its inclusion in 10 daily statement of Accord.

In addition to above, infrastructure could not be developed in Balochistan and NWFP for the provinces to utilize their full share of the Accord. Para 6, which recognized the need for new storages, is yet to be implemented due to lack of consensus on large storage sites, although, the present Government has started work on Mangla Raising Project and other storages outside the Indus Command. Besides, the study to establish the minimal escapages needs below Kotri under para 7 was also held up due to differences on TORs which were finally resolved in the PCWR meeting on December 16, 2003, when all four provinces unanimously agreed to the three studies for below Kotri and environmental concerns.

PCWR is not technically qualified to interpret 1991 Water Accord for its implementation and it is in the TORs of Technical Committee’s to:

Review issues relating to distribution of water according to 1991 Water Apportionment Accord and submit recommendations for streamlining water distribution amongst the provinces.

Examine the filling criteria of Mangla Reservoir & make recommendations in this regard.

Examination of operational criteria of Link Canals & future reservoirs.

Technical Committee’s Report is awaited for recommendations on the above TOR’s.

A consensus was achieved in PCWR meetings with Chief Ministers on July 20, 2004, and it was decided that “1991 Accord is sacrosanct and will be implemented in ‘toto’ without any reference to 1994 Ministerial Decisions”.

Recommendations: To implement the above consensus reached by the CMs, it is recommended that the 1991 Water Accord should be urgently implemented to help settle this long standing issue. The following options are available for its implementation:

Executive decision, based on review of Technical Committee Report.

National Security Council (NSC) decision.

PROVINCIAL PRIORITY PROJECTS INCLUDING SMALL RESERVOIRS:

After first round of visit to provincial headquarters and detailed consultations, the Committee sent a summary to the Prime Minister on April 3, 2004, for allocation of special funds in PSDP 2004-05 for accelerated implementation of provincial priority projects including small reservoirs, list of which is attached as Annexure-VIII. The proposed projects would irrigate 2.79 million acres by utilizing about 12 MAF of runoff. The total estimated cost of the projects is Rs 206.7 billion and budget requested for financial year 2004-05 is as under:**

Sindh:
Punjab:
Balochistan:
NWFP:
----------
Total:
----------

Rs 1.03
Rs 1.40
Rs 3.82
Rs 1.85
----------
Rs 8.10
----------

billion
billion
billion
billion
---------
billion
---------

However, requisite funds have not been reflected in the budget 2004-05. In the PCWR meeting with CMs on July 20, 2004, Minister for Water & Power informed that the summary sent to Prime Minister was followed up by his Ministry. The Planning Commission allocated Rs 14 billion for the ongoing water sector projects in PSDP 2004-05 and it was only on the intervention of the President that the allocation has been raised to Rs 20.7 billion, but still the priority projects could not be included. In the meeting of July 20, 2004, it was decided that provincial priority projects including small reservoirs are supported costing Rs 8.1 billion in the first year. However, provinces will review the list of priority provincial projects and submit prioritized “A & B” projects. The Committee will request Federal Government for re-consideration of additional funds for priority ‘A’ projects in budget 2004-05.

Recommendation: The Committee recommends approval of provincial requests for category “A” projects for special funding in 2004-05 amounting to Rs 5.53 billion. Out of this, share of NWFP is Rs 601.0 million, Punjab Rs 900 million and Sindh is Rs 210 million, while Government of Balochistan has not provided any update on its previous figure of Rs 3.82 billion.

CONFIDENCE BUILDING MEASURES (CBMs):

Agriculture is the mainstay of Pakistan’s economy and water constitutes the most important element. However, differences on its apportionment and uses emerged as far back as in 1919 when the report of the Cotton Committee recommending the construction of Sukkur Barrage Project was finalized. The matter could not be resolved despite enormous work performed by a number of Committees and Commissions, and it was only in 1991 that the decades old dispute was resolved with the signing of the Water Accord.

The 1991 Water Accord could not be implemented in toto. Major differences on matters, such as, water distribution, with particular reference to the 1994 Ministerial Decisions, and lack of infrastructure to utilize provinces allocated share created mistrust and disharmony between the provinces. In order to restore harmony & confidence between provinces, several CBMs are proposed for implementation, which will help towards achieving consensus on bigger national issues. Province-wise details of CBMs are given as under:

Implementation of 1991 Water Accord including 10 daily statement vis-à-vis Greater Thal Canal in letter and spirit. Resolve apprehensions on Kalabagh Dam project.

Commitment for Kalabagh Dam project.

Implementation of proposed provincial 41 Projects, costing Rs 56.5 billion in 4 years, to harness 6.54 MAF of flood run off to irrigate 1.32 million acres. Required allocation for 2004-05 is Rs 3.82 billion.

Resolving apprehensions on Kalabagh Dam project.

The Water Accord necessitated the creation of Indus Rivers System Authority (IRSA) for its implementation. The Authority was established in December 1992. It consists of 5 members; one each nominated by each province and the Federal Government from amongst high ranking engineers in irrigation or related engineering fields. The term of office of Chairman is one year from amongst the members on rotation basis. The main role of the Authority is the regulation and distribution of surface water amongst the provinces according to the allocations and policies spelt out in the Accord.

During visit of PCWR to IRSA Headquarters, at Islamabad, on June 22, 2004, a number of problems being faced by the Organization were identified, which included; (i) vacant posts of members, Federal, Punjab and Sindh, (ii) recruitment of Operation & Maintenance staff for the Telemetry System, (iii) lack of autonomy, (iv) inadequate budgetary allocations, and (v) logistic difficulties. The Committee views that IRSA members are retired government officials who lack quality, motivation and drive to effectively deal with one of the most important national issues.

PCWR is of the view that under the present circumstance, IRSA is facing difficulties in performing its duties effectively. The organization needs immediate review and revamping to effectively implement the Accord, particularly in the wake of decision taken in CMs meeting on July 20, 2004, for implementation of 1991 Water Accord in ‘toto', without any reference to 1994 Ministerial Decisions

Recommendations: The following recommendations are made for effective functioning of IRSA:
Ministry of Water & Power to review IRSA Organization and take immediate necessary actions in coordination with provinces for:

a. Revamping IRSA
b. Solution to Autonomy and Funding
c. Appointment to Vacant Posts (now filled)
d. Resources Review

WAPDA is the custodian of the water data which forms the basis of all planning by federal and provincial governments. The data needs to be transparent and undisputed. During the course of its deliberations, the Committee observed some inconsistencies in the figures and estimations provided by WAPDA. To quote a few examples, the water availability for future development was given as 26.90 MAF on April 22, 2004. Then on May 5, 2004, the figure was modified to 21.73 MAF, and thereafter it was reworked as 19.10 MAF on May 13, 2004. Similarly, in WAPDA's presentation on Large Dams on March 9, 2004, the number of persons displaced by the prospective Skardu/ Katzarah dam was indicated as 110,000, while in the detailed presentation on large dams on June 14, 2004, the figure indicated was 160,000. Discrepancies and inconsistency in data should be avoided as it tends to create mistrust and disharmony.

Recommendations: Immediate actions be taken to implement the CBMs to prepare environment of trust for implementing major decisions. Implementation of CBMs will help achieve Consensus and support Executive Decisions.

The country's existing reservoirs, Tarbela, Mangla and Chashma are silting up and to date some 3.58 MAF (23%) of combined storage capacity has been lost. It is projected that by year 2010, the combined storage loss would increase to 5.1 MAF (32%). With rapidly growing population and loss in storage capacities, Pakistan is likely to become water scarce country by year 2010. The additional water requirements by year 2025 are estimated at 28 MAF, which is equivalent to 37 MAF at canal head. On an average about 35.2 MAF of water goes into the sea annually, which after meeting various requirements, can be stored. In order to meet the future demands for food security and cheap hydropower generation, large dams have to be constructed in the country. World wide opposition to large dams come from the environment activists and NGOs, yet several countries are constructing large dams (above 200 ft height) which include 59 in China, 35 in Japan, 28 in Iran, 22 in Turkey and 6 in India.

In the PCWR meeting held on July 20, 2004, all four Chief Ministers agreed on the need for constructing large dams with consensus. As regards to priority of dams, NWFP and Sindh agree to Basha Dam, Punjab agrees to Basha Dam simultaneously with Kalabagh Dam, while Balochistan will go ahead with consensus of the other three provinces. There was no objection to Basha by any Chief Minister.

In PCWR members meeting held on July 28, 2004, members held divergent views on the dam sites. All members agreed to Basha Dam but members from Punjab want it to be constructed simultaneously with Kalabagh. Kalabagh Dam was opposed by members from NWFP and Sindh, while member Balochistan would go ahead with consensus of all provinces. The consensus on priority of dams could not be achieved in that meeting.

The construction of large dams is a major area where the whole nation is looking towards a consensus decision. As such, we need to evaluate this extremely carefully.

The present status of the four prospective large reservoirs is as follows:

Akhori Dam: Feasibility study is expected to be completed by August 2005.

Basha Dam: Declared technically feasible by WAPDA Consultants and no province have any objection to it, except Punjab wants it simultaneously with Kalabagh. Construction can start in 2007 to be completed by 2014

Kalabagh Dam: Feasibility Study completed and technically feasible. Construction work can start in 2005 to be completed by 2011. However, consensus is required for its implementation.

Recommendations:

Executive Decision, based on various efforts towards consensus such as:

Chief Ministers launching comprehensive debate on the subject in their respective provinces towards national consensus and developing understanding with Federal government.

Review of the national debate by the Cabinet for executive decision

Decision in National Security Council (NSC).

Refer matter to CCI for decision.

The overall objective of the media plan is to create awareness on the importance of water in order to help develop consensus on national irrigation strategy for effective use of water & conservation. A media plan be implemented in phases over a period of more than one year, details of which are given as under:

April – July 2004: ?
This phase has been completed in which data/ information on water was shared through website, advertisements in national press, airing of song/jingle on Radio, through the assistance of WAPDA.

August – October 2004:
This phase will start after PCWR recommendations are approved and announced in public. The objective is to create awareness in general public and stakeholders on the need for constructing large reservoirs for; (i) replacement of lost storage capacities, (ii) food security in wake of growing population and water scarcity, (iii) cheap hydel power generation, and (iv) propagate that large dams are feasible and are being constructed around the world. This phase will also promote national consensus achieved in CMs meeting of July 20, 2004 on 1991 Water Accord, Provincial Projects & Small Dams and building of Large Dams.

November 2004 – December 2005:
The final phase of media campaign will continue to promote the consensus building process and promote building of large dam decision. In addition, make corrective responses to any negative perception created during earlier phases and build national consensus on Executive Decisions as well as implementation plan.

Following media vehicles will be availed for the plan:

MEDIA TEAM : Lead by Ministry of Water & Power or Interprovincial Coordination, supported by Ministry of W&P or IPC, Ministry of Information and selected Media Consultant.

Launch an extensive Integrated Media Plan across the country.

Approve an estimated budget of Rs 200 Million, because of national importance of water strategy and long history of gaps in understanding.

IMPLEMENTATION PLAN AND LEADERSHIP:

Implementation Plan: The implementation plan will commence upon approval of PCWR recommendations and their public announcement. The consensus building process on dams that was launched by the President should continue amongst the leadership of PML, National Leaders, and leading un-elected politicians, and through close interaction between the provinces. Mass mobilization would be required to implement the integrated communication strategy as proposed under Media Plan.

The implementation of 1991 Water Accord should commence immediately after announcement of the Executive Decisions. Approval of funds for priority ‘A' provincial projects and small reservoirs for their immediate implementation is needed. These measures will serve as strong Confidence Building Measures (CBMs) for the provinces and will help in achieving consensus on bigger issues.

PCWR website that was launched on April 26, 2004, contains all data/ information provided by the provinces and federal agencies in presentations given to the Committee. It is recommended that the website be transferred to WAPDA to serve as National Water Database. IRSA and WAPDA's role in the water sector needs to be strengthened so that their data is undisputable accepted by all concerned.

The task of determining water availability is part of the TORs of the Technical Committee and its report is expected by end of August 2004. Nevertheless, PCWR carried out its own non-technical assessment of water availability and it is of the view that more information on any future interventions by Afghanistan & India is required for closing consensus gaps in the varying figures.

Implementation of CBMs is important for restoring harmony and confidence amongst the provinces and to help achieve consensus and support on Executive Decisions.

Leadership: PCWR is of the view that leadership for the Implementation Plan should vest with the Executive, and as such, the Minister for Water & Power or Minister Incharge of Interprovincial Coordination, or Prime Minister Secretariat should lead Implementation Plan.

Recommendation:
Executive Role, replacing PCWR, is now needed for Implementation Plan and announce closing of PCWR.

COMMITTEE ACKNOWLEDGEMENTS & SUPPORT:

Acknowledgements: The Parliamentary Committee on Water Resources (PCWR) acknowledges overall support of Ch. Amir Hussain, Speaker of National Assembly and Mr. Aftab Ahmed Khan Sherpao, Minister of Water & Power and his Ministry and puts on record its thanks. PCWR appreciates the assistance and support provided by WAPDA and its Chairman. Its special thanks to Syed Raghib Abbas Shah, Chief Engineer (C&M), WAPDA and his team for promptly responding to questions frequently asked by members of the Committee and Mr. Atiq Ahmed, Deputy Director (MIS), for his valuable contribution in developing PCWR web site “www.pakwaters.gov.pk”.

PCWR would also like to thank the Ministry of Water & Power for providing technical support to the Committee by assigning its officer, Mr. Javeed Iqbal Bokhary, Deputy Engineering Adviser (Civil), from the office of the Chief Engineering Adviser. The Committee acknowledges and appreciates the tremendous effort put in by Mr. Bokhary in attending all meetings, provincial visits/ site visits, preparation of draft minutes, and helping prepare Committee's Status Presentation and the Interim Report. Committee also appreciates the computer services provided by Mr. Muhammad Shafqat Azeem, from the Federal Flood Commission, towards preparation of presentations and Interim Report. Committee acknowledges the administrative support provided by the National Assembly Deputy Secretary, Mr. Sikander Ismail Khan and his staff in organizing PCWR meetings, and also Mr. Mahboob Gurmani, PRO, in organizing press briefings.

PCWR relied on the figures provided by WAPDA, IRSA and data from the National Irrigation Water Strategy of the Ministry of Water & Power that formed the basis of the web site where all sources are indicated. This report is based on web site figures as provided by various departments as indicated in our web site.

In closing, PCWR would like to place on record its appreciation for the confidence reposed by the Speaker National Assembly, Chairman Senate and government in the members of the Committee and assigning them the responsibility of this national importance. Chairman PCWR would like to thank all who participated in PCWR deliberations, specially the members for attending and participating in deliberations of PCWR in all these months, at times at short notice.

Committee Support: Although the Committee was able to complete its major tasks and assignments, leading to preparation of the Interim Report, yet it would not be out of place to mention the following difficulties and problems it encountered in achieving the objectives.

Administrative: The Committee was not provided fulltime Joint Secretary/ Deputy Secretary/ PRO towards administrative support from the National Assembly Secretariat like other Special Committees. Considering that PCWR is a Special Committee assigned with the most important national issue of Water, it would have been appropriate to assign full time administrative staff to facilitate smooth functioning of the Committee.

From the very onset and till filing of this report, the Chairman PCWR was not provided competent, efficient and dedicated Private Secretary (PS) and Personal Assistant (PA) to undertake the extremely challenging assignment. The matter was brought to the notice of National Assembly twice, first in December 2003 and then in July 2004. However, the replacement did not come and the PS had to be sent back on July 24, 2004, as he could not handle the work. Since then, replacement was not sent with the result that Chairman was involved in small admin matters.

Logistics: The Committee was provided only one telephone line with monthly ceiling limit of Rs 5,000/-, increased to Rs 10,000/- in August. This was a major handicap, as keeping in view the nature of work, frequent local and outstation communication was required, and at times people were unable to access the Committee due to busy line. Besides, the Committee was not provided its own fax machine and photocopiers and was required to share the facilities from the “Central Pool” which was only available during regular working hours. This caused great difficulties to the Chairman and Committee's Technical Officer and supporting staff who frequently worked late after regular office hours, without any additional financial benefits, to complete the assignments. For last 3 months air conditioning of Committee office is out of order. Besides, no working space was available for the technical officer and he had to share the Chairman's room and computer. An old car, a safety hazard often to garage was provided to Chairman.

Financial Resources: The Committee was not provided any funds to facilitate in performing its work. At times, certain purchases, copying, printing and binding had to be done from the open market. Chairman of the Committee frequently used his own resources, and on a number of occasions, Committee's Officers had to pay cash from their own pockets to accomplish the work, which otherwise would not have been possible if formal procedures of the National Assembly Secretariat had been followed.

Technical Adviser: The subject of water is vast and highly technical. The Committee views that it should have been provided technical support in the form of its own Technical Team, comprising Technical Adviser, with more than 25 year experience in Water Resources, and supported by Technical Officer and related staff. Such a set up would have enabled it to make technical assessments with greater inputs.

Recommendation: In future, all such Committee's should be provided adequate administrative, logistics, financial and technical support for smooth operations and effectiveness.