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Entitlement Issues of Irrigation Water in South Punjab

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Entitlement Issues of Irrigation Water in South Punjab ENTITLEMENT ISSUES OF IRRIGATION WATER IN SOUTH PUNJAB Amjad Nazeer September 2012 (Islamabad) 1 Contents Executive Summary…………………………………………………………………………….………3 I - Introduction and objectives of the research…………………………………………………….7 Rationale for the baseline study………………………………………………………………....7 The Methodology……………………………………………………………………………………...9 Scope of the study and sampling……………………………………………………………….....8 Indicators to assess the situation……………………………………………………….……….9 Theoretical framework…………………………………………………………………..…………..10 II – Historical context………………………………………………………………………………….12 III - The present state of irrigation and agriculture in Pakistan……………...………………..16 IV – Unpacking the Problems on ground….………….…………………………………………...21 Bureaucratic Lanes and Alleys……………………………………………………….………….21 Distribution, Warabandi and Insufficiency……………………………………………….…….28 Waste and waterlogging…………………………………………………………………………..36 Water theft……………………………………………………………………………………………37 Woes of tenants and tailenders………………………………………………………………..43 Conflicts around distribution and access……………………………………………...………45 Water Charges, Abyana or Moamla…………………………………………………..…………47 Using the used water……………………………………………………………………..………..49 National Water Policy and irrigation water…………………………………………………….50 Women farmers and entitlement to water…………………………………………….………..51 Water users associations…………………………………………………………….……...……53 V – Much needed reforms in policy and practices…………………………………………..…..54 VI – Implications of the study……………………………………………………………………..58 2 Bibliography…………………………………………………………………………………………….59 Annexure I………………………………………………………………………………...…………….61 Annexure II………………………………………………………………………………...……………64 Annexure III……………………………………………………………………………………………..65 Annexure IV……………………………………………………………………………………………67 3 Executive Summary Precisely, the study in hand sets an advocacy agenda for conflict resolution mechanism and fair distribution of irrigation water. Primary research in three districts of South Punjab i.e. Khanewal, Lodhran and Vehari form the basis of water entitlement issues and analysis in this study. Where appropriate, however, secondary literature has also been corroborated to validate situation on ground. By and large, it is a qualitative study, not meant to draw quantitative analyses of farmers’ responses. Situation on ground and policy positions are illustrated by number of comments and case studies collected during the field work. Generally, the authoritarian state control is evident in the distribution and management of canal water. Like the rest of the province an extensive network of canals, minors and watercourses operates in South Punjab. But irrigation water, despite being a vital commodity, is transferred as concession or obligation not as users’ or farmers’ right. Availability, access and distribution is highly skewed and inequitable between head-end and tail-end, big and small, and rich and poor farmers. Insufficiency and shortfall is compensated by pumping up groundwater, salinizing and water logging huge tracts of land. Pesticides and fertilizers further poison ground water contributing to deficit productivity. Participatory and anthropological approach i.e. ‘water is a total social phenomenon connecting and cutting through its’ users’. Its’ technical handling and engineering solutions fail to promote irrigation and agriculture. Unfortunately, similar attitudes constitute rules of the game in the sector. Information, observation, illustrations and my analysis are placed in this framework. Most conflicts circle around tampering the outlets. Department claims of having standard outlets while the fact flies back straight to its’ face. Tampering, mostly done by powerful landlords, is very common. Farmers situated at the head reaches usually consume three fourth of available water. Add tempering and outright theft, some of the tail-enders simply do not receive water and if they do, it is far less than their allocated share. Department officials are usually a party or 4 at least know it but remain silent. The scarcity assumption cannot be challenged but many a conflicts emerge from official mismanagement. Available legal and bureaucratic measures fail to arbitrate or do justice to the underprivileged users. Big farmers use conflicts as a mechanism to seize power in their own hands. Either limited or inadequate means of resolving conflicts exists with the department. Existing system fails to resolve or arbitrate as other relevant departments work virtually in isolation or it is seriously maneuvered the privileged few/ The study underscores relevant clauses of the Covenant on Economic, Social and Cultural Right (ESCR), indicated in its General Comment 15 by the Committee on the Economic, Social and Agriculture Rights. Irrigation water is clearly endorsed as farmer’s right and stresses the symbiotic relationship of water, ecological balance, food security and future needs of the rapidly growing population and rural poverty. In case of Pakistan it is far more significant as its’ population grows rapidly. So is the pace of poverty. Meant to introduce sustainable use of all sources, National Water Policy 2002 realizes the problems and challenges of water sector. But despite certain merits, it does not cater for the needs of small and the tail-end farmers and has yet not been effectively materialized. Broad spectrum of water sector needs to be integrated with far reaching institutional reforms, well needed for long. Any shift in the present state of inequity seems difficult without a cost-effective, eco-friendly and participatory planning and management in the irrigation sector. Part of the operation and maintenance (O&M) along with supervisory responsibilities should be transferred to farmers associations. Tying it up with O&M cost and minimizing waste there lies a potential to gradually increase abyana. Entirely a market led solution to reduce waste and enhance efficiency may not work. It may not support the small and medium range farmers. Transforming water into a tradable commodity might under-privilege or sweep-away poor farmers. *** 5 Acknowledgements My immense gratitudes are due to Shoaib Aziz, Programme Manager, Damaan Development Organization for extending every possible support to bring this study to light. Apart from that, I must convey my thanks to Malik Ashtar, Mohammad Tahseen, Sher Khan Khichhi and Farooq Khan (Social Organizers) to facilitate me in data collection data from select tehsils and villages. All interviews and Focus Group Discussions were conducted with their kind support. Their own knowledge and experience about the subject was also helpful to understand the issue better. Last, but not least I must thank to Wahab Ahmed who drove us through to remote and kachha- pakka areas in the sizzling heat of South Punjab. 6 Pakistan Irrigation Map 7 I - Introduction and Objectives of the Research A limited body of knowledge is readily available on ‘water rights’ and ‘water entitlements’ of the poor and smallholders in South Punjab. Therefore primary and secondary data, including the sketchy and disorganized information available with the irrigation department and respective ministry, has been employed to assess the situation. Information regarding water entitlement, availability, access, provision, monitoring and regulation has been analyzed. The problems of warabandi (fixed rotation and turns for water), anomalies, irregularities and associated conflicts and violence are studied with reference to the observations on ground. Besides farmers’ experiences and perceptions, official perspective has also been given a due space. Rationale for the Baseline Study: Accessibility and entitlement to the required amount of water has got a direct bearing on agriculture production, quality and pricing. Assumingly, our poor and small farmers, including women (the very small number of independent women farmers be noted) have skewed and discriminatory access to water, the research keeps them in the spotlight. The problem gets compounded by the land-size, seasonality, varying needs in varying times, erratic pattern of rains and politically driven inequities and distributions. Therefore knowing the exact situation to proceed for an improved policy and practice reforms is essential to minimize poverty. Looking at user charges, its amount and modalities of collection, and customary allocation also holds sufficient importance in relationship to water-rights determined by the department. Associated conflicts will also feature in. Structural and institutional injustices, along with the living and dead traditions will also be looked into as barriers and enablers to the farmers. An appraisal of disadvantaged groups, like women, poor and powerless smallholders, sharecroppers and tenants, is also significant for adequate policy recommendations and lobbying for improvement. 8 Exploring some sort of social or customary management of conflicts, identifying newly evolved institutions or associations for management or efficient usability of water will also come into play. The role of civil society networks or coalitions will also be taken into account to improve efficiency and production. Precisely, the baseline study attempts providing us a threshold to begin with. Where does the main problem lie? Which policy and practice areas to intervene in? What to lobby for and what sort of policy reforms are must? What recommendations be extended to the Irrigation department, Ministry of Agriculture, Ministry of Food and Agriculture, Water Management and legislators in general? What role the
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