The observation made in a 2006 UN report still holds ground and is in fact an eye opener. It had recorded, "There is enough water for everyone and water insufficiency is due to mismanagement, corruption, lack of appropriate institutions, bureaucratic inertia and shortage of investment in both human capacity and physical infrastructure". In the context of increasing water concerns, the first National Water Policy has at least provided a framework for tackling ta ckling the emerging water challenges in the country.
T
he first ever “National Water Policy” for tackling water crisis was approved by The Council of Common Interest (CCI) on April 24, 2018. 2018. In this backdrop, backdrop, Institute of Policy Studies (IPS) organised a roundtable session titled, “Pakistan’s National Water Policy: An Appraisal” on May 11, 2018. This brief carries, but is not confined to, reflections from the participants of this roundtable. 1 I.
to be one of the most water stressed countries by 2040.5 The groundwater depletion in the country has outpaced surface water depletion posing serious threats to the sustainability of this valuable resource. Additionally, pollution of existing water resources has further aggravated the issue of water scarcity, reducing its usability manifold. Alarmingly, Pakistan has been ranked among top ten countries with lowest access to clean water.6 Climatic changes have further compounded water issues leading to increased frequency and intensity of floods on one hand and prolonged droughts on the other.
INTRODUCTION
Over the past few decades growing urbanisation, economic growth, poor population management, climatic change and other challenges have put growing pressure on Pakistan’s water resources. The per capita surface water availability in the country has undergone drastic changes declining from 5260 cubic meters per year in 1951 to around 1000 cubic meters in 2016. 2 Per capita water availability in Pakistan is expected to fall to 860 cubic meters by 2025 3 , against the international threshold of 1000 cubic meters. 4 Pakistan is feared
In view of potential colossal impact of water shortages on human lives and economic productivity, a framework was badly needed for addressing water issues. Though many policies existed in Pakistan which dealt with specific aspects of water related issues, like the National Drinking Water Policy, National Climate Change
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IPS roundtable on “Pakistan’s National Water Policy: An An Appraisal Appraisal” was chaired by Former Secretary of Water and Power, Mirza Hamid Hasan. Ashfaq Mahmood, former secretary of Water and Power and a renowned water expert gave the opening statement while the panelists included Dr.Manzoor Dr.Manzoor Ahmad Malik (Director PCRWR), Dr.Wasif Ali Waseer (UMT Lahore), Syed Akhtar Ali (development expert), Dr Imran Khalid (SDPI), M.A.Bhatti (Min. of Water Resources), Dr Hassan Abbas (Chairman ZiZAK), Engr.Ahmad Jan (ExSecretary KPK), Sherzaman Khan (Member IRSA), Bilal Khalid (LEAD Pakistan), Hasan Rizvi, Ahmad Salik (ISSI), Adeel Mukhtar (IPRI) M.Arif (Energy Expert), Sajid Iqbal (HHRD), and Dr Noor Fatima (IIUI). 2 National Water Policy, 2018. 3 National Water Policy, Ministry of Water Resources, 2018. 4
United Nations Water Need Report.
5
Water Resource Institute, 2015. “The Water Gap — The — The State of the World’s Water 2018”
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Policy but a holistic water policy was strongly needed for tackling the multi-dimensional water challenges in the country. In the given backdrop, The National Water Policy, unanimously approved by Council of Common Interest (CCI) has been hailed as an important step for tackling the looming water crisis. The consensus garnered for the policy at such critical time is certainly commendable. The policy contains many impressive salient features, nevertheless it has been claimed vague and concerns remains over its implementation. This brief will look into the precarious situation of Pakistan’s existing water resources. It will also briefly look into the salient sali ent features of the policy document and will identify key issues and constraints in it. II.
Indus River System Authority, according to which “Pakistan dumps water worth approximately $21 billion into the sea each year due to lack of water conservation system.”8
Source: Annual Report, State Bank of Pakistan 2016-17 (through Draft National Water Policy)
PAKISTAN’S WATER PROFILE
Pakistan’s water needs can be categorised under three broad sectors namely agriculture, industrial and domestic. Being an agrarian economy, the Agriculture sector of the country heavily relies on water withdrawals, making it the largest consumer among all sectors. Whereas the share of Domestic and Industrial sector stands at 3.3% and 2.5% respectively. Table.1 shows the sectoral consumption of water in the country.
Only 25% of the population have access to qualit y drinking water. 9 The consequential impacts of contaminated drinking water on health is alarming as 40% of the overall deaths and 50% of the diseases in the country are attributed att ributed to dirty water 10 intake. The addition of industrial wastewater wastewat er and municipal sewage in drinking water are chiefly responsible for the waterborne diseases. Despite the alarm bells being rung and acute scarcity being felt, water sector could not secure sufficient allocations in the Federal Public-Sector Development Programme (PSDP). The federal allocations have undergone a declining trend over the passage of past 5 years. Table.2 shows the allocations to water sector under Federal PSDP.
Table 1. Water Use by Sub-Sectors Sector
Water Use (Percentage)
Agriculture Sector
91.6%
Industrial Sector
2.5%
Domestic Sector
3.3%
Environment
2.6%
Source: UNDP, 2016
Fig.1. Water Stress Level in Pakistan
Table.2 Percentage Share of Water Sector in Federal PSDP Allocations.
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Apart from declining water availability indicated above, absence of appropriate regulations on water exploration, groundwater in the country is also depleting at a rapid rate as water imbalances in terms of supply-demand gap has led to increased ground water exploitation. Another aspect of mismanagement was revealed by a 2017 report of 7
Year
Share
2010-11
12.0
Allocation (Rs. Billion) 34.65
2011-12
12.0
36.14
2012-13
14.5
51.21
2013-14
10.7
57.84
Water Sector of Pakistan: A Situation Analysis, Development Advocate Pakistan, Volume 4, UNDP. The United Nations World Water Development Report, 2006. 9 “Drinking water crisis in Pakistan and issue o f bottled water, Actioned Pakistan, 2005. 10 Drinking Water Quality Status and Contamination in Pakistan, BioMed Research International, Volume 2017. 8
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Year
Share
2014-15
8.5
Allocation (Rs. Billion) 45.93
2015-16
4.3
30.12
2016-17
4.0
31.71
2017-18
3.7
36.75
Source: National Water Policy, 2018.
The provincial allocations, on the other hand, have significantly increased in the past 5 years, amounting to PKR 105.5 billion in FY 2017-18. Taken together, the total allocation of around PKR 145 billion in the same year, by both federal and provincial governments is still significantly below the requirements of this sector.11
Council (NWC) will be established with representation from relevant federal ministries as well as private sector water related entities. The Council will also include Chief Ministers of all provinces. Ministry of Water Resources will serve as secretariat of the NWC. Additionally, Provincial Irrigation and Drainage Authorities (PIDA’s) will be upgraded into Provincial Water Authorities (PWAs) with capacity to design and construct small and medium sized dams and largescale irrigation infrastructure. WAPDA will be revitalized and separate Ground Water Authorities (GWAs) will be established in all provinces for establishing and enforcing standards on development and utilization of ground water.
Given the stated precarious situation of water resources in Pakistan, the complete absence of a national water policy till lately was considered a major setback for the country. The National Water Policy has thus provided the much-needed focus and framework to the water challenges in the country. III.
Drinking water and sanitation has been put at the top of the priority list. Other prioritized areas in the policy include irrigation, hydropower, industry and mining, environment, forestry, recreation, sports and navigation. Major targets proposed for 2018-30 include:
1Reducing water loss in river flows by 33% through initiation of programs aiming at water course lining.
NATIONAL WATER POLICY AT A GLANCE
Experts at IPS roundtable heralded Pakistan’s National Water Policy as welcome development through which the federal government has led the way for addressing the impending water crisis. The policy document contains 29 sections over 41 pages, with the broad objective of focusing simultaneously on water security, conservation, storage and water apportionment. There are many remarkable provisions in the policy. For instance, the policy envisages a substantial increase in PSDP allocations for water sector. A 20% increase in Federal PSDP allocations has been recommended for water sector by 2030. The policy is also underpinned by technological advances aiming at sustainable water management by means of technical upgradation and innovation.
2Increasing the existing water storage capacity (currently estimated at 14MAF) by 10 MAF. This would be done by immediate construction of Diamer-Bhasha dam and gradual construction of other small and medium dams countrywide. 3Promoting new technologies for increasing efficient consumption of water by at least 30%. 4Replacement and refurbishing of decades old irrigation infrastructure. 5-
Real time monitoring of river flows.
6Development of a standardised and uniform mechanism for data collection by federal and provincial water organisations, for establishment of a reliable assessment of water resources in the country. As per the policy, Provinces are authorised to formulate their respective plans and projects for realising the objectives stated in the policy document. The success of the policy thus would
Additionally, an institutional setup has been proposed in the document for integrated management of water resources. National Water
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National Water Policy, 2018.
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itself depend on the subsequent provincial efforts in terms of translating the document into practice.
Inadequate focus on water quality is primarily responsible for the anthropogenic contamination of water. Management strategies should Despite several positives, the policy document proactively promote preventive measures for the remains vague with respect to management containment of contamination of existing sources. instruments for carrying out the policy. Focused oversight on protecting water resources from contamination is thus of paramount IV. ISSUES, CHALLENGES AND significance. Stringent regulations and standards RECOMMENDATIONS have to be introduced for preventing water National Water Policy has attempted to provide impairment. A mechanism of “Polluter Pays the much-needed framework for addressing the Principle” might help in pollution reduction by country’s water woes. However, certain gaps exist, holding polluters accountable. which if plugged could effectively address the country’s water challenges. Needless to say, Though access to clean water has been enlisted as however, that the success of the policy will largely top priority in the policy document but it has no depend on the policy instruments and institutional mention in the section of major targets. The drinking water and drainage lines vigour for carrying out the policy. Some parallel lining of drinking is a major cause of intermixing of the latter with challenges in this regard are discussed below: former. In this regard, upgradation of drinking • A Self-Sustaining Self-Sustaining Framework Framework : Strong water lines is indispensable. Adequate clean synergy between effective water management and drinking water resources have to be ensured to the efficient water tariff system is obvious. However, entire population and explicit targets should be set the policy document is completely silent on the for its achievement within a defined time-frame. structure of prospective tariff design. Achieving a • Distinct-Water Distinct-Water Supply Supply Systems Systems : In Pakistan, sustainable finance framework which can spontaneously generate financial resources, is key a single water supply system exists where precious to effective management of water resources. To clean water is also used for purposes such as the contrary, fixed tariffs or flat-fee water charges washing and vegetation. There is strong need for fail to accomplish both these objectives. creating different supply systems for clean water Designing a tariff structure which simultaneously and water used for other purposes. A distinct focuses on water conservation and sufficient supply system with different water pricing if revenue generation, will set ground rules on both devised, can lead to optimum utilization of water water management as well as its judicious resources. consumption. Effective management of water • Harvesting Harvesting Rain Water : Rain water resources will thus depend on identification and harvesting is one of the modern techniques used implementation of efficient economic instruments. globally for effective water storage. It offers huge In the absence of sustainable cost recovery of opportunities for self-sufficiency by ensuring that water supply and water management, ensuring rain water is used in most beneficial ways and is equitable and universal access to water resources not wasted. Roof top harvesting provides huge is but a rare possibility. scope for water conservation outcomes. However,
• Protecting and Enhancing Quality of Water Resources: Any rational approach to water management must mark a balance between developing new water resources and managing the existing supplies. In this regard, two broad measures for regulating water pollution include: building and upgrading infrastructure for treating contaminated water and secondly, promoting preventive measures aiming at stopping the sources of pollution.
the shift toward rain water harvesting technology by domestic and agriculture sectors will itself depend on supporting environment and incentives provided by government. Water Policy contains no provisions, on encouraging such technical transition, especially when it comes to engaging domestic sector.
• Explicit Role of Local Bodies in Water Water Resource Management Management : There is a paradigm shift toward Integrated Water Resource Management across the globe. Cooperative governance between [4]
upper and lower tiers (between the water boards and municipalities) is crucial for effective management of water resources as bottom-up approach has potential significance when it comes to implementation of policies. Failure in recognition of local bodies in this regard, would be a departure from the stated approach.
for public motivation through mediums of social interaction like masjid, school, madrassa, and media.
• Role of Corporate Sector : The role of corporate sector is completely missing in the document. Corporate water policies are evolving around the globe highlighting the significance of Local governments are taken as potentially private-sector in water management. As water important actors when it comes to managing water crisis and more specifically contamination in resources, especially in context of decentralization. water is a consequence of the action of multipleThe role of local bodies in water management has sectors (including businesses), playing a role in always been weak largely owing to poor sustainable management of water resources thus governance and lack of capacity at local levels. A becomes a social liability liabilit y for the corporate sector. twin-track approach of capacity building and The policy should thus reach out to corporate resource allocation at the lowest tiers will sector by designing an effective mechanism for strengthen role of Local Governments in the whole their engagement. process. An integrated approach to t o management • Protecting Marine Environment: No of water resources should thus effectively engage reduction targets have been set for marine the local bodies. Alienation of local bodies and environment protection. Numerous pollutants and untimely decentralization of water management dangerous chemicals are discharged into rivers functions to the appropriate levels will slow down owing to weak regulatory oversight. Actions the entire implementation process. similar to that of freshwater resources are required • Focused Oversight : National Water Policy for regulating pollution in this area. Eco-friendly lacks a comprehensive roadmap on monitoring taxes shall be levied at both federal and provincial instruments as well as regulatory oversight. levels. Water Quality parameters shall be regularly r egularly Success of any policy go hand in hand with the assessed for upkeeping standards set on maximum corresponding governance structure for level of tolerable discharges. monitoring and regulation of set standards. • Social Equity : There is need for strong Inadequate oversight slowdown the whole advocacy on behalf of poor, so that their demands management process. For better utilization of could be met. Social equity should be at the heart water resources, a comprehensive water of any prospective water pricing design. It should management program is needed where separate not only promote efficient consumption of water oversight could be established for elements on resources rather should correspondingly aim at new water resources, water resource protection, affordable access to water by the less well-off water reclamation and the like. sections of society. • The successful Informed Public: V. CONCLUSION implementation of any policy lies in public action. In this regard, public awareness programs will The observation made in a 2006 UN report still help in public ownership of the policy holds ground and is in fact an eye opener. It had countrywide. Public education campaigns focused recorded, "There is enough water for everyone and on enhanced water usage will give clear water insufficiency is due to mismanagement, understanding on the issue of water scarcity. corruption, lack of appropriate institutions, Highlighting significance of conservation of water bureaucratic inertia and shortage of investment in will help in reducing the wastage of this crucial both human capacity and physical resource at community level. Clear and persuasive infrastructure". 12 In the t he context of increasing commandments in the Holy Qur’an and Hadith scarcity of water in Pakistan, National Water asking to avoid excessive consumption and Policy has at least provided the much-needed wastage of water need to be used as a major tool framework for tackling the emerging water 12
The United Nations World Water Development Report, 2006.
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challenges in the country. Nevertheless, water resource management demands an overarching framework, holistically considering the water problems coupled with realistic objectives. Establishing a logical relation between the identified threats and policy intervention is thus imperative.
with proper accountability mechanism and monitoring oversight has to be built for maintenance of water standards, regulation of surface and ground water use and equitable distribution of water resources. In addition to it, regular reporting on the progress made at national level, will help in addressing any barriers impeding its advancement.
Sustainable management of water resources requires adoption of measures which integrate economic and environmental goals. An economically and environmentally sustainable mechanism for managing water resources is thus of paramount significance.
Additionally, there is enough room for gaining from the impact of climatic changes on water resources in terms of taking advantage from its beneficial opportunities and turning its losses into blessings by means of appropriate adaptive measures. In this regard capacity building for flood risk management and storing flood water for future use shall be promoted.
Minimizing wastage of water lies at the heart of the concept of water management. Huge scope exists for demand management policies. The solution to a rising situation of meagre resources Achieving community wide acceptance and accompanied by hiking demand lies in an effective fostering support for the National Water Policy is and efficient water tariff design. With the existing another key challenge. Provincial governments negligible water taxes and flat-fee water charges, should thus make joint, concerted efforts with the no incentive exists for judicious water lowest tiers for a quick progress. With strong consumption. The country will have to go away political will and focused efforts, water resources with its culture of free supply of water. An across the country could be effectively managed. efficient water tariff is key to optimum utilization Success of the policy will largely depend on of resources. procedural activities a ctivities and mechanisms undertaken for its implementation. An appropriate mechanism Policies often fail to function in the wake of weak for implementation of the policy is the need of regulatory frameworks. An efficiently designed hour. set of incentives, regulations and penalties along
Prepared by Naila Saleh, Edited by Syed Nadeem Farhat
[email protected]
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For queries: Syed Nadeem Farhat, Senior Research Coordinator,
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www.ips.org.pk
