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Reforming Governance Systems for Drainage in Pakistan Toward an Interdisciplinary and Integrated Approach to Agricultural Drainage

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Reforming Governance Systems for Drainage in Pakistan Toward an Interdisciplinary and Integrated Approach to Agricultural Drainage Agriculture & Rural Development Working Paper 11 The World Bank Reforming Governance Systems for Drainage in Pakistan Toward an Interdisciplinary and Integrated Approach to Agricultural Drainage Waltina Scheumann Yameen Mohammad Memon First printing or web posting: December 2003 ©The International Bank for Reconstruction and Development Agriculture & Rural Development Department 1818 H Street, N.W. Washington, DC 20433 Agriculture & Rural Development Discussion Papers is an informal series produced by the Agriculture & Rural Development Department of the World Bank. These papers raise concepts and issues for discussion in the broader development community and describe ongoing research and/or implementation experiences from the Bank. The findings, interpretations, and conclusions are the author’s own and should not be attributed to the World Bank, its management, its Board of Executive Directors, or the countries they represent. Some of the numbers quoted are estimates or approximations and may be revised at a later stage. The Authors Waltina Scheumann is from the Institute for Management in Environmental Planning, Berlin, Germany. Yameen Mohammad Memon is a consultant, and Agricultural Economist, Hyderabad, Pakistan Cover Art Contents Abbreviations and Acronyms .....................................................................................................vii Acknowledgments .........................................................................................................................ix Executive Summary ......................................................................................................................xi Lessons Learned and Recommendations ........................................................................................... xiv 1. Introduction................................................................................................................................1 2. Agriculture and Drainage Development..................................................................................3 Agriculture and Irrigation in Pakistan...................................................................................................3 Drainage Infrastructure Development...................................................................................................6 Growing Environmental Concerns ..................................................................................................... 12 Mining of Groundwater .............................................................................................................12 Secondary Salinization ..............................................................................................................12 Surfacewater Quality .................................................................................................................13 Freshwater Ecosystems and Evaporation Ponds ...........................................................................13 Conclusions ..................................................................................................................................... 14 3. Development of Federal and Provincial Drainage Institutions ...........................................17 4. Drainage Management ............................................................................................................23 State of Surface Drainage Infrastructure............................................................................................. 23 Maintenance Responsibility .......................................................................................................23 Financing Maintenance..............................................................................................................24 Management of Tile Drainage Schemes ............................................................................................. 26 Management of SCARP Tubewells .................................................................................................... 26 Conclusions ..................................................................................................................................... 27 5. Land Reclamation....................................................................................................................29 Responsibilities for Land Reclamation ............................................................................................... 29 Water Shortage Impedes Reclamation Activities................................................................................. 29 Administrative Irregularities and Noncompliance by Farmers.............................................................. 30 Farmer Participation in Land Reclamation Activities........................................................................... 30 Conclusions ..................................................................................................................................... 30 6. Participation in Drainage Investment and Management .....................................................33 Participatory Approaches in Tertiary Open Drain and Tile Drainage Schemes ...................................... 33 Site Specifications, Drainage Technology and Group Formation...................................................33 Shared Drainage Investment.......................................................................................................35 Conflicts over implementation.................................................................................................36 iii iv Group Formation with “Ultimate” Drainage Beneficiaries, and Alternative Options .......................36 Drainage Beneficiary Groups–Their Organization and Responsibilities.........................................38 Operation and Maintenance by Drainage Beneficiary Groups .......................................................39 Participatory Approach in Vertical Drainage Schemes ........................................................................ 39 Transfer of Public Tubewells in Fresh Groundwater Areas...........................................................40 Incentives for Transfer to Communities ......................................................................................40 Group Formation, Water User Rights and Management ...............................................................41 Drainage Tubewells, Scavanger Wells and Interceptor Drains ......................................................42 Conclusions ..................................................................................................................................... 44 7. Institutional Reforms in Pakistan’s Irrigation and Drainage Sector..................................47 A New Drainage Strategy: The Master Drainage Plan and Drainage Accord......................................... 47 The Institutional Hierarchy for Irrigation and Drainage ....................................................................... 48 Governing Agricultural Drainage ....................................................................................................... 49 Area Water Boards at Canal Commands .....................................................................................50 Farmer Organizations at Distributary Level.................................................................................52 Financing Drainage Services ............................................................................................................. 52 8. Conclusions and Recommendations .......................................................................................55 References.....................................................................................................................................57 Appendix A. Field Program........................................................................................................62 Additional interviews........................................................................................................................ 65 Appendix B. Drainage Infrastructure in Pakistan....................................................................66 Open drainage infrastructure ............................................................................................................. 66 Seepage drains.................................................................................................................................. 66 Tile drainage .................................................................................................................................... 66 Tubewells ........................................................................................................................................ 67 Appendix C. Background Material ............................................................................................68 List of Tables Table 1 Extent of waterlogging ( in 1,000 ha) .......................................................................................5 Table 2 Extent of saline and sodic soils (in 1,000 ha) ............................................................................5 Table 3 Drainage projects, 1960–2000 ............................................................................................... 11 Table 4 Drainage typology of Pakistan’s arid and semiarid environment .............................................. 15 Table 5 Evolution of organizational set-up for drainage......................................................................
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