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Functional Review of Irrigat ion & Power Department

Irrigation & Power Department

Punjab Government Efficiency Improvement Programme July 2011

Final

Contract Reference No. PGEIP TA Loan 2386-PAK

Crown Agents Reference No. T27111

Functional Review of Irrigation & Power Department Crown Agents

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Table of Contents

List of Abbreviations (ii)

List of Tables (iii)

List of Figures (iii)

Executive Summary (iv)

Section Page

Section 1: Introduction 1

1. Introduction 2 1.1 Rationale for the Functional Review 2

1.2 Methodology 2

Section 2: Overview of the Irrigation & Power Department 5

2. Overview of the Irrigation System in Punjab 6 2.1 Overview of the Punjab Irrigation and Power Department 6

2.2 Functions of the Department 9

2.3 Earlier Efforts for Institutional Reform 12

Section 3: Critical Analysis of Departmental Functions 17

3. Critical Analysis of Departmental Functions 18 3.1 Policy Formulation, Planning, Management and Monitoring 19

3.2 Construction, Operations and Maintenance of Irrigation Engineering Structures and Distribution of Canal Water 26

3.3 Developing Water Reservoirs and Command Area 30

3.4 Control of Water Logging and Salinity 32

3.5 Flood Control 35

3.6 Operations of Machinery and Workshops 36

3.7 Ground Water Management and Surface Water Monitoring 38

3.8 Research and Laboratory Testing 39

Appendices Page

Appendix A: Semi-Structured Interview Guide 42

Appendix B: List of Documents and Reports Reviewed 47

Appendix C: Legal Regime Governing the Discharge of Functions in the Punjab Irrigation and Power Department 50

Appendix D: List of Persons Met 55

Appendix E: Filled Questionnaire (Appropriateness Test for Recommendations) 59

Appendix F: Functional Review Matrix 722

Appendix G: I&P Feedback on the Draft Report 77


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List of Abbreviations

ABAD Agency for Barani Area Development

ADB Asian Development Bank

ADP Annual Development Plan

AS Additional Secretary

BMO Barrages Management Organization

BPS Basic Pay Scale

CDO Central Design Office

CE Chief Engineer

D&F Drainage and Flood

DAC Departmental Audit Committee

DCO Divisional Canal Officer

DDO Drawing and Disbursement Officer

DHA Defence Housing Authority

DLR Directorate of Land Reclamation

DPL Development Policy Loan

DS Deputy Secretary

EX EN Executive Engineer

FFC Federal Flood Commission

FO Farmers Organization

FR Functional Review

GIS Geographic Information System

GoPb Government of Punjab

HRD Human Resource Development

HRM Human resource Management

I&P Irrigation and Power

IRI Irrigation Research Institute

LBDCIP Lower Bari Doab Canal Improvement Project

MTBF Medium Term Budgetary Framework

NEPRA National Electric Power Regulatory Authority

NHA National Highway Authority

O&M Operation and Maintenance

P&D Punjab Planning and Development Department

PAC Provincial Audit Committee

PDSSP Punjab Devolved Social Services Program

PGEIP Punjab Government Efficiency Improvement Program

PIDA Punjab Irrigation and Drainage Authority

PISIP Punjab Irrigation System Improvement project

PMIU Program Monitoring and Implementation Unit

PMO Project Management Office

PMU Project Management Unit


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PRMP Punjab Resource Management Program

PSDP Public Sector Development Program

RBM Result Based Management

SCARP Salinity Control and Reclamation Project

SDCO Sub-Divisional Canal Officer

SDO Sub Divisional Officer

SE Superintending Engineer

SO Section Officer

SPRU Strategic Planning and Reform Unit

TNA Training Need Assessment

UNDP United Nations Development Program

USAID United State Agency for International Development

WAPDA Water and Power Development Authority

WASA Water and Sanitation Authority

List of Tables

Table 1 - Summary of Functions, Activities & Recommendations vi

Table 2 - Human Resource Profile of Irrigation and Power Department 7

Table 3 - Financial Outlay of the Department (2006-07 to 2010-11) (Rs. in Millions) 8

Table 4 - Water Sector Development Portfolio 9

List of Figures

Figure 1 - Classification of functions 3

Figure 2 - Map of the Punjab Irrigation System 6

Figure 3 - I&PD Organogram 7

Figure 4 - I&PD Share of Provincial Budget 8

Figure 5 - PIDA Model 14

Figure 6 - Functions and Activities Performed by I&P Department 18

Figure 7 - Proposed Organogram for Office of AS 24

This document is submitted to the named client but remains the copyright of Crown Agents. It should not be reproduced in whole or part without the express written permission of Crown Agents.

It should be noted that the BSI Symbol and UKAS Accreditation mark signify that Crown Agents operate a documented Quality Management System registered with the British Standards Institution to the international quality standard BS EN ISO 9001:2008. The scope of this registration specifically covers the provision of consultancy services in revenue enhancement and expenditure and debt management including customs, taxation and trade, institutional development, engineering and procurement management, advice and reform.

FS 33234


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Executive Summary


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Executive Summary This functional review of the Irrigation and Power (I&P) Department has been carried out as part of the Civil Services Reform Component of the Punjab Government Efficiency Improvement Programme (PGEIP) to identify reform opportunities in various areas to increase efficiency, reduce duplications, increase private sector participation and bring service delivery closer to the end-user. The functional review was necessitated by the realisation that new functional realignments were necessary considering the numerous socio-economic, policy, regulatory and technological changes that had taken place during the last few decades.

The review used a range of different institutional development tools, including the tools and instruments used in earlier functional reviews of various Punjab Government departments. International good practice and localised insights provided by key informants during the field work served as guidelines and building blocks for findings and recommendations. By applying various diagnostic tools, several redundant practices, inconsistencies, procedural constraints and service delivery bottlenecks were identified. Departmental functions were classified into policy, regulatory, service delivery, coordination and support functions. The objective was to group together similar functions so that division of labour could be promoted in proposals for functional realignments.

The Department was kept abreast of the progress through the exercise. Regular meetings were held with the senior management to ensure that Departmental input was fully reflected in the report. An effort was made to ensure that the functional review was not seen as a supply-driven initiative. For this purpose, perspectives of the various layers of Departmental priorities were taken into account and key officials from the Department were involved extensively during the exercise.

The output of this exercise is the comprehensive proposal encompassing findings concerning the proposed functional realignments of I&P Department. The proposal contains specific suggestions for decentralisation of various activities and for outsourcing/privatising of activities to bring service delivery closer to the ultimate user. The ultimate objective is to improve the operational, functional and financial efficiency of the Department. A summary of recommendations is contained in the table below.


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Table 1 - Summary of Functions, Activities & Recommendations

Activity Recommendations

Function: Policy Formulation, Planning, Management and Monitoring

Policy Formulation and Planning

Establish a formal institutional set up within the Department to set strategic goals, formulate strategy and provide a broader planning and monitoring framework.

SPRU can be strengthened to perform this role.

Shift the position of Director Planning under CE (Planning and Review) to this new institutional set up.

Project Monitoring and Appraisal

Set up a Project Monitoring and Appraisal Cell/Unit to monitor and evaluate the performance of on-going and completed projects.

The unit should be responsible for developing, revising and up-dating targets and key performance indicators of major offices of I&P Department.

Use modern tools of monitoring and evaluation.

Upgrade the office of CE (Planning and Review) to perform this function.

Preparation of ADP/PSDP Schemes

Set up an MTBF Cell to help the Department in efficient planning and implementation of MTBF reform framework.

Build the capacity of Departmental employees to independently work on the SAP software.

Enhance the administrative approval powers of Ex Ens, SEs and CEs.

Have all ADP schemes larger than Rs. 3 million scrutinised by a specially constituted Departmental Committee.

Create a database of approved contractors; upload the list on Department s website.

Press clippings should be handled by the Personal Assistant to the Secretary.

Assembly questions should be handled by the office of AS (Administration).

Post only qualified engineers as SOs in the office of AS (technical).

Budget Preparation (non-development expenditure)

Create a regular post of AS Budget. Post one Deputy Secretary and three Section Officers in this wing.

All SNEs should be dealt by AS (Budget).

Contractors liability cases should be decided by respective CEs.


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Develop/use customised software for posting budget entries, so that these can be conveniently transported to the web-based SAP system.

Financial assistance requests from the legal heirs of deceased employees should be decided by their respective appointing authorities.

Shift functions related to water distribution at canal and outlet level from the Additional Secretary (Operations) to PMIU.

Transfer collection of statistical data on flood embankment and rainfall data to CE (D&F). Shift the function of amendment in rules, regulations, Canal and Drainage Act and the Revenue Manual to DS (Legal).

Examine Section 20 of the Canal and Drainage Act and resolve contradiction between legal and administrative decisions regarding inclusion and transfer of areas into CCA.

Enhance powers of field offices to lease government land.

Human Resource Management

Convert the office of AS (Administration) into an HRM Cell/unit; make it responsible for all aspects of employees service, career planning, professional development and disciplinary matters.

Make sufficient working experience of basic office software a pre-requisite for all jobs, other than the ones in the unskilled labour category.

Develop a comprehensive Human Resource Information System. Outsource the development of this system to the private sector.

Conduct regular HR audits to better assess the work conditions and motivation levels of employees.

Develop clear job descriptions for each office in the Department. Update regularly updated and link with employees performance appraisal.

Give due consideration to employees qualifications and previous experience while posting them to a position.

Carry out a comprehensive rationalization exercise to match the current workload with staff strength in various units/wings.

CE Lahore Zone should allot houses in Department s residential colonies in Lahore according to clear policy guidelines provided by the Department.

Maintenance of secretariat building should be done by CE Lahore.

Cases of fixation of reserve price and final auction price should be sent by CES directly to AS (Technical).

Carry out structured training need assessment after regular intervals to assess capacity gaps and to identify capacity


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building needs.

The training function should be performed by the office of AS (Administration).

All water complaints should be dealt by the PMIU.

All budget & SNE proposals from field establishment should be dealt with by Additional Secretary (Budget).

SO (T&M) s tasks related to PMUs and PMIUs may be shifted to SO (E-IV). Adjustment of surplus staff of defunct Tubewell Operation Division may be assigned to SO (E-III).

Section Officer (T&M) may be re-designated as Section Officer (Complaints) and be assigned duties of preliminary processing of complaints received in the I&P Department from different quarters.

Section Officer (E-IV) should deal with all affairs related to projects, PMOs, PMIUs, etc. Pension cases of BS-17 and above being dealt by this section may be assigned to SO (HR). His tasks related to establishment matters of Power & Research Zones may be assigned to SO (E-I) Section.

Section Officer (Confidential) may be shifted to Deputy Secretary (General) Wing.

Deputy Secretary (Legal) should be placed under Additional Secretary (Administration).

Professional Training and Capacity Building

Retain this as a key function, but strengthen role of the Engineering Academy and enhance facility utilisation.

The Academy should offer a diverse range of engineering-related executive programmes, workshops, seminars for government employees as well as for private sector engineers.

Function: Construction, Operations and Maintenance of Irrigation Engineering Structures and Distribution of Canal Water

Distribution of River Water Supplies between Canals, Branches, Distributaries and Individual Outlets

Use modern measurement metering/measurement tools to improve water distribution.

Divisions and sub-divisions that extend to exceptionally large areas should be divided to rationalise their work load.

Job descriptions of all staff (particularly the field staff) should be revised to ensure that positions are not inconsistent with changed ground situations.

Construction, Rehabilitation and Maintenance of Water Channels and Allied Structure

Retain only one development division in each zone to take care of all development schemes. Convert SE Development s position into SE Head Quarter with the respective CE.

Develop a consultation framework that enables communication between development and operational divisions.

Continue the Third Party audit of O&M schemes.


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Enhance the capacity of sub-engineers and staff in the drawing branch to carry out survey work and to prepare cost estimates.

Provide a standard tool kit of sub-engineer, comprising essential tools to each section.

Provide AutoCAD training to sub-engineers and other staff in the divisional and circle drawing branches.

Assessment of Abyana

Develop a framework for periodic increase in abyana based on some independently verifiable criterion.

Even if abyana increase is politically unacceptable for the time being, the Department should regularly present an economic case for a criterion-based increase in abyana.

Undertake a staff rationalisation exercise to determine the new staffing levels of abyana-related staff in various divisions.

Bulk Supply of Water for Non-Irrigation Purpose

Develop a criterion-based system for increase in water rate for bulk supply of water for non-irrigation purposes.

Dispute and Conflict Resolution

Appoint a litigation officer in each circle to pursue/respond to court cases. Zilledars with law degrees can be considered for these assignments.

Asset Management

Set up an Asset Management Cell/Unit.

Develop comprehensive inventory of all assets; outsource this activity to a credible private firm.

Prepare asset management plans for each category of assets.

Use surplus staff to set up the new Cell.

Link asset management with revenue generation activities.

Tree Plantation on Distributaries and Minors

Retain tree plantation as a function.

Declare trees an asset and let them be handled by the Asset Management Cell under protocols developed for other assets.

Execution of Projects

Identify best practices from its experience with PMUs/PMOs and develop a locally adapted model for executing these and subsequent projects.

Function: Developing Water Reservoirs and Command Area


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Identification of Suitable Sites; Survey; Technical Investigation and Design

Outsource identification, survey and technical investigation of dam sites.

Outsource the design of small dams to the private sector.

Alternatively develop CDO s capacity to design engineering structures, including small dams.

Construction, Operation and Maintenance of Small Dams

Carry out necessary repair of water channels of small dams and transfer their operations and maintenance to local communities.

This should be undertaken as a public-private partnership initially, which can subsequently lead to complete transfer of water channels. The model should be pilot-tested on 2-3 dams before large scale replication.

Development of Command Area of Small Dams

Engage the private sector or the Agriculture Department for the development of command area of small dams, rather than maintain in-house capacity.

Abolish the post of the Project Director Command Area in either case.

Function: Control of Water Logging and Salinity

Operation and Maintenance of Tubewells

Retain saline water zone tubewells for control of water logging.

Take necessary measures to improve electric energy efficiency of tubewells; use better pumps and motors.

Liaise with USAID Pakistan to make good use of their interventions for machinery modernisation.

Charge the Pakistan Army a proportion of O&M costs of 550 tubewells in RY Khan that serve as a strategic defence line.

Abolish SCARP-III circle and transfer its 354 tubewells to respective divisions along with all related functions.

Operations of SCARP Workshop (Northern Tubewell Workshop Multan)

Close down the Northern Tubewell Workshop, Multan.

Planning, Construction, Operation and Maintenance of Horizontal Drainage System

Retain operation and maintaining of drainage network as a core function.

Hand over small drains and tributaries that are situated entirely in industrial and housing areas to respective user groups; charge them collectively by total volume at outfall level; encourage and facilitate establishment of one common treatment plant.

Hand over small drains or portion of drains to government/semi-government organisations and housing authorities, whose


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effluents are carried by these drains.

Where no dedicated drainage divisions exist in water logged areas, drains should be handed over to respective operational divisions, rather than being assigned to one division.

Develop a comprehensive database of concerns that discharge their effluents in various drains; use this database to collect prescribed fees

Revise the rate of Rs. 11,000/- per cusec per annum upwards; develop a system of regular rate revision.

Carrying out Thur Girdawari (Salinity Survey)

Abolish salinity survey (Thur Gardavairy)

Function: Flood Control

River Survey and Flood Warning

Retain river surveys and flood warning as a key function.

Enhance Departmental capacity to conduct river survey and forecast floods. Provide modern forecasting tools and training.

Increase coordination with other agencies (particularly the Federal Government).

Planning, Design, Construction, Maintenance and Repair of Flood Control and Flood Protection Works

Retain planning, designing, constructing and maintaining flood protection works as a core function.

Enhance Departmental capacity to respond to flood emergencies.

Establish new flood control divisions reporting to Director Floods in the office of CE (D&F) in all flood prone areas.

Director Floods should be stationed in Muzafarrgarh, rather than Multan, where he is currently based.

Function: Operation of Machinery and Workshops

Operations of Workshops

Seek private sector help to commercially operate these workshops.

Allow various divisions in I&P Department to get their machinery repaired from the nearest (public or private) workshop.

Operation and Maintenance of Machinery

Retain the machinery pool with the Department and transform the circle into an autonomous business entity. Such business entity should give sufficient preference to Departmental needs during flood and other emergencies.

The Department should commission a team to prepare a comprehensive proposal for this purpose.


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Function: Ground Water Management and Surface Water Monitoring

Ground Water Management

Enhance I&P Department s role from ground water monitoring to ground water management .

Put in place a framework for regulating installation and operation of tubewells.

Commission the development of a comprehensive database of all private tubewells in the province.

Make aquifer recharge a key activity.

Surface Water Monitoring

Transfer this function to local governments, who should be responsible for sample collection and analysis

Privatise Department s surface water testing laboratory in Lahore.

Function: Research and Laboratory Testing

Physical Modelling

Retain physical modelling function in the Department.

Increase staff capacity and modernise equipment to help it regain its lost clientele in the international market.

Develop facility for numerical modelling.

Develop a new business model for the Institute to help it survive in a competitive environment.

Enhance rates for modelling services.

Objectively evaluate market demand for services; rationalize staff according to the workload.

Land Reclamation Research

Disband research stations and liquidate assets (mainly land); adjust staff from research stations in new divisions proposed to be established in this report.

Operations of Niazbeg Research Centre, Lahore

Close down the Station.

Laboratory and Field Testing Services

Merge DLR and Physics Directorate laboratory facilities to remove duplication.

Retain only those testing facilities in the Department that are: 1) not available elsewhere; or 2) the volume of work is large enough to justify operating own facilities.


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Section 1: Introduction


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1. Introduction Under the Civil Services Reform Component of the Punjab Government Efficiency Improvement Programme (PGEIP), the Punjab Government commissioned a functional review of the Irrigation and Power (I&P) Department. The task was entrusted to Crown Agents, which constituted a two-member team (comprising a Civil Service Reforms Specialist and a Sector Specialist) to carry out the field work and submit its findings and recommendations. The team was mobilised on 14th

March 2011 and undertook document review and stakeholder engagement during March

May 2011. Based on such review and field work, this report presents a critical discussion of the various functions performed by the Department and recommendations for reform in various areas to increase efficiency, reduce duplications, increase private sector participation and bring service delivery closer to the end-user.

1.1 Rationale for the Functional Review

Like other Punjab Government departments, the legally mandated functions of I&P Department were set out decades ago. As time went by, many socio-economic and technological changes took place that created an increasing mis-alignment between Departments functions and public expectations of service delivery. In certain cases, the private sector gradually assumed many of the roles previously performed by the Department or new technology made some roles altogether redundant. In some cases, other government departments assumed similar (if not identical) roles. The situation called for a critical review of the functions performed by the Department. Such a review involving detailed analysis of the organizational structure of the Department and discharge of mandated functions could generate concrete suggestions for inter-Department and intra-Department functional realignments leading to cost savings, greater efficiency, and better service delivery.

A number of Departmental reports and recently conducted high-level government reviews have emphasised the need for structural, organisational and functional reform in the Department to improve service delivery. This functional review responds to this need and follows from similar reviews conducted for two other Punjab Government Departments

the Excise and Taxation Department and the Livestock and Dairy Development Department.

Further, PGEIP intends to introduce Results Based Management (RBM)1 in various Punjab Government departments. An RBM unit, currently based at the Punjab Resource Management Program, is developing the province-wide RBM policy and sector specific results frameworks for various Departments to link development objectives with clear quantifiable outputs and outcomes. I&P Department s functional reviews will feed into this initiative by identifying functional redundancies and by suggesting realignment of functions undertaken by various offices in the Department.

1.2 Methodology

The objective of this functional review is to improve service delivery, enhance operational and financial performance, and help build an effective and efficient organisational structure. It is neither a comprehensive restructuring proposal nor an exercise in staff reduction. It only examines the existing functions to see their relevance in the context of changing demand due to technological and socio-economic changes and modern management philosophies, and suggests possible re-arrangements within the existing organizational structure to optimally utilize the available financial and human resources.

A range of different institutional development management tools were used for this functional review. This included the tools and instruments used in earlier functional reviews of Punjab Government departments. International good practice and localized insights provided by key

1 RBM is a management tool to ensure that business processes, systems and service delivery mechanisms contribute to the achievement of intended results by linking activities to outputs, outputs to outcomes and finally outcomes to the desired impact.


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informants during the field work served as guidelines and building blocks for emerging findings and recommendations. By applying various diagnostic tools, several redundant practices, inconsistencies, procedural constraints and service delivery bottlenecks were identified.

The functional review was undertaken in three distinct phases: inception, execution and formulation. In the inception phase, the review of background literature and Departmental documents and reports was undertaken. This helped to develop a broad understanding of Departmental roles and functions. During this period, several meetings were held with Departmental officials and other stakeholders. Previously used instruments were tailored to specific needs of I&P Department and a new data collection instrument was developed. This instrument (attached as Appendix A) was used to explore various issues during interviews with key informants.

In the execution phase, the scope of literature review was expanded to all documents and reports that the team could lay its hand on. The list of documents and reports examined is attached as Appendix B. Various laws and rules that govern the functioning of the Department were also examined in some detail (see Appendix C). As part of the intensive engagement with key informants, discussions were held with several Departmental functionaries responsible for policy making and implementation at various levels (list attached as Appendix D). This extensive document review and stakeholder engagement enabled the team to identify realignment, decentralisation, partnership, outsourcing and privatisation opportunities for various functions in a structured manner. For each function performed by the Department, the team used the attached Decision Tree (Appendix E) to crystallise its findings on the possibility of functional realignment.

A key activity was the classification of Departmental functions into policy, regulatory, service delivery, coordination and support functions. The objective was to group together similar functions so that division of labour could be promoted in proposals for functional realignments.

Figure 1 - Classification of functions

Classification of functions

Policy functions: such as strategic planning, legal drafting, development of performance contracts, minimum standards, norms, policy analysis and evaluation, forecasting. These are functions requiring specialist skills and are usually provided by the core offices in the Department; Executive or service delivery functions: such as the provision of products or services to internal (other public bodies) or external (farmers, foresters, fishermen) customers. Service delivery is normally performed by subordinate or supervised bodies; Regulatory functions: such as licensing, certification, permissions, accreditation, inspection, compliance, and financial audit. It is good practise to separate regulatory functions from those policy functions that determine the regulations, and service delivery functions that provide services to customers; Co-ordination, supervision and performance monitoring functions: such as co-ordinating relationships between different bodies, monitoring the performance of subsidiary bodies, facilitating and enabling subsidiary bodies to reach their performance targets; Support functions: such as financial management, human resources management, information systems, infrastructure, staff training, efficiency review and management audit; and secretarial services.

The work done in the execution phase was crystallized into the draft functional review during the formulation phase (see Appendix F for the Functional Review Matrix). This draft was shared with the Departmental Focal Person for this assignment. A summary of emerging findings and recommendations was shared with key Departmental officials in a small brainstorming session and the draft report was modified accordingly. Department s feedback on the draft report (Appendix G) was incorporated in the final report.


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The Department was kept abreast of the progress through these three phases. Regular meetings were held with the Departmental focal person2 to ensure that Departmental input was fully reflected in the report. An effort was made to ensure that the functional review was not seen as a supply-driven initiative. For this purpose, perspectives of the various layers of Departmental priorities were taken into account and key officials from the Department were involved extensively during the exercise.

The output of this exercise is the comprehensive proposal (see Chapter 3) encompassing findings concerning the proposed functional realignment of I&P Department. The proposal also contains specific suggestions for decentralisation of various activities and for outsourcing/privatising of activities to bring service delivery closer to the ultimate user. The ultimate objective is to improve the operational, functional and financial efficiency of the Department.

2 The functional review team remains grateful to Mian Asrar Ahmad, Additional Secretary (and Departmental Focal Person) for his willing cooperation throughout this assignment. He not only helped the team set up meetings with key informants, but also shared documents and reports from his personal and official collection. Numerous discussions with him helped the team clarify various issues and deepen its understanding of how various functions are performed by the Department.


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Section 2: Overview of the Irrigation & Power Department


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2. Overview of the Irrigation System in Punjab Punjab Irrigation System is one of the largest contiguous gravity flow network in the world. It has an estimated replacement value of about Rs 1,200 billion which requires deferred maintenance of about Rs 145 billion (2005/06 estimates). The surface and groundwater of the Indus Basin constitute a vital lifeline for Punjab s agro-based economy. The irrigation system of Punjab comprises of 13 barrages/head-works and 24 main canals. The system is serving 20.78 million acres cultivable command area through 58,000 outlets and has gradually achieved an average cropping intensity of 125 percent. The salient features of Punjab Irrigation System are given below:

Head-works/Barrages : 13 Main Canals : 24 Length of Main Canals and Branches : 3,993 Miles Length of Distributaries and Minors : 19,191 Miles Off-take capacity of Main Canals : 1.2 Lac Cusecs Off-take Capacity of Link Canals : 1.1 Lac Cusecs Total Outlets : 58,000 Cultivable Command Area : 20.78 million acres

a) Perennial : 12.94 million acres b) Non-Perennial : 7.84 million acres

Length of Flood Embankments : 1,600 Miles Length of Surface Drains : 4,800 Miles Small Dams (maintained by the Department) : 49

Figure 2 - Map of the Punjab Irrigation System

2.1 Overview of the Punjab Irrigation and Power Department

The vast irrigation network in Punjab is managed by the Department of Irrigation and Power. The Secretary is the administrative head of the Department. He is assisted by three additional secretaries

Additional Secretary Administration, Additional Secretary Technical and Additional Secretary Budget/Operation. I&P Department has divided Punjab into six zones

Lahore, Multan, Sargodha, Faisalabad, DG Khan, and Bahawalpur; each is headed by a Zonal Chief Engineer (CE). In each zone, the second tier is of the Superintending Engineer (SE), who controls one or two main canals and supervises the Executive Engineers (Ex Ens) and Sub Divisional Officers (SDOs). The Organogram of the Department is given below:


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Figure 3 - I&PD Organogram

ORGANOGRAM OF PUNJAB IRRIGATION & POWER DEPARTMENTORGANOGRAM OF PUNJAB IRRIGATION & POWER DEPARTMENT

PD PISIP

CHIEF ENGINEERP & R

CHIEF ENGINEERRESEARCH

CHIEF ENGINEERD & F

CHIEF ENGINEERPOWER

CHIEF ENGINEERMULTAN

CHIEF ENGINEERLAHORE

CHIEF ENGINEERBAHAWALPUR

CHIEF ENGINEERSARGODHA

CHIEF ENGINEERFAISALABAD

CHIEF ENGINEERD.G. KHAN

CHIEF ENGINEERDEVELOPMENT

MDPOWER

SUPERINTENDINGENGINEER (4)






SECRETARYI & P

PIDA

ADL SECRETARY

TECHNICAL

PMIU

ADL SECRETARYADMN

ADL SECRETARYBUDGET/OPERATION

SUB DIVISIONAL OFFICER (DEV)

EXECUTIVE ENGINEER

(DEV DIV)



EXECUTIVE ENGINEER

(DEV DIV)

EXECUTIVE ENGINEER

(DEV DIV)

STRATEGIC PLANNING/ REFORM UNIT

(SPRU)

ENGINEERINGACADEMY PMO FOR BARRAGES

PMOLBDCIP

DIRECTOR LANDRECLAMATION

In the head office, Chief Engineer (Research), Chief Engineer (Planning and Review), Chief Engineer (Drainage and Flood (D&F)), and Chief Engineer (Development) supervise their respective sections. There is also the Chief Engineer (Power), who performs functions under the Punjab Electricity Act. In the head office, there are certain project management offices functioning along with regular structure (see Section 2.5.3). Two autonomous bodies

PIDA and Engineering Academy

are also part of the Department. PIDA is responsible for managing distribution of water on five main canals through consumer/farmer organisations and the Engineering Academy imparts pre-service and in-service trainings to Department s staff as well as to employees of other Punjab Government Departments.

2.1.1 Human and Financial Resources

Irrigation and Power is a large Department of the Government of Punjab with a total human resource of 43,541. This workforce presents a diverse mix of skills and experience. The table below shows the number of sanctioned posts and working strength in various categories.

Table 2 - Human Resource Profile of Irrigation and Power Department

Sr. Category Sanctioned Working Strength

1 Engineering/professional Staff 792

656

2 Sub Engineers 1,324

1,021

3 Revenue Staff 6,868

4,234

4 Beldars 11,769

9,275

5 Clerical Staff 3,873

3,224

6 Technical/non-technical Staff 12,040

9,770

7 Tubewell Operation Staff 6,875

5,419

Total 43,541

33,599

Source: Punjab Irrigation & Power Department 2009


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Budget allocations for the Department have varied from year to year. During the last five years, Department s budgetary allocation has consistently decreased as a proportion of total provincial budget. In 2006-07, total allocation for the Department was 4.79% of the total provincial budget, which fell to 4.56% in 2007-08, which further fell to 4.49% in 2008-09 and to 3.80% in 2009-10. Total budgetary allocation for 2010-11 is Rs. 18,667 million, which is 3.14% of the total provincial budget outlay of Rs. 594,334 million. An examination of current and development budgets during the last few years reveals that the current budget has declined over the years, whereas the development budget increased from 2006-07 to 2007-08 before declining straight through 2010-11.

Table 3 - Financial Out lay of t he Depart ment (2006-07 to 2010-11) (Rs. in Millions)

Description 2006-07 2007-08 2008-09 2009-10 2010-11

I&P Budget 14,781

17,943

18,727

18,597

18,667

- Current - Development

6,131

8,650

6,793

11,150

7,425

11,302

8,597

10,000

7,662

11,005

Provincial Budget 338,194

393,487

417,000

489,873

594,334

- Current Revenue Expenditure

- Development Expenditure

191,378

117,207

243,487

150,000

257,000

160,000

314,873

175,000

386,787

207,547

I&P Budget as (%) of Total Provincial Budget Outlay

4.79%

4.56%

4.49%

3.8%

3.14%

I&P Current Budget to Provincial Current Budget Outlay (%)

3.20%

2.79%

2.89%

2.73

1.98%

I&P Development Budget to Provincial Development Budget Outlay (%)

7.38%

7.43%

7.06

5.71

5.30%

Source: Punjab Irrigation & Power Department 2010

Figure 4 - I&PD Share of Provincial Budget


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Water sector development portfolio 2010-11 is as under:

Table 4 - Water Sector Development Portfolio

Sr. No.

Programme Allocation for 2010-11 (Million Rs.)

Local (Revised)

Foreign Assistance

PSDP Total

1 ADP 4,584 5,073 - 9,657

2 Flood Protection - - 283 283

3 ISRP - - 50 50

4 Lining of Canals - - 50 50

5 Punjab Barrages Emergent Repair Works

- - 30 30

Total:

4,584 5,073 413 10,070

2.2 Functions of the Department

The mandate of the Department as specified in the Punjab Government Rules of Business is as follows:

1. Irrigation and Drainage

a) Rivers and riverian surveys b) Barrages: construction work and all matters connected therewith c) Construction and maintenance of canals d) Tubewells and other water utilization schemes e) Flood control and flood protection schemes f) Drainage schemes g) Land reclamation schemes h) Storage of water and construction of reservoirs i) Basic and applied research in irrigation, hydraulics, groundwater and land reclamation j) Administration of the Canal and Drainage Act, 1873 k) Administration of the Soil Reclamation Act, 1952 l) Administration of the Land Improvement Tax Act, 1975 m) Assessment of water rates n) Distribution of canal water o) Power Sector

2. Service matters, except those entrusted to Services, General Administration and Information Department.

3. Purchase of stores and capital goods for the Department.

The Department undertakes several activities in pursuance of this mandate. Activities with similar outputs have been grouped together under various functions and are briefly discussed in the following pages.3

3 During the last decade, many departments have been affected in several ways by the promulgation of the Punjab Local Government Ordinance 2001 and by the passage of the 18th Amendment to the Constitution of Pakistan. I&P Department, however, remained unaffected by both these legal/constitutional changes by and large. Neither irrigation nor power related functions of the Department were devolved to local governments in 2001. Similarly, irrigation being a residual (i.e. provincial) subject to begin with remained unaffected by the Constitutional Amendment in 2010. However, several power-related functions were transferred by the Federal Government to provincial governments in the wake of the Amendment, which prompted the Punjab Government to decide to set up a new Energy Department. The Punjab Government has already approved the transfer of power-related functions of I&P Department to the new department as soon as it is established.


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Policy Formulation, Planning, Management and Monitoring

The Department formulates its policy and strategy in a structured manner. It plans its regular and specialized interventions and prepares budgets for these activities every year. Owing to its large human resource, personnel management including career development, posting and transfer, promotion, retirement, pre-service and in-service trainings has been one of the major functions performed by the Department. Planning and designing of infrastructure projects, their execution and monitoring, preparation of Annual Development Plan (ADP) and Public Sector Development Programme (PSDP) also fall in this category.

Construct ion, Operat ions and Maintenance of Irrigat ion Engineering Structures4 and Distribution of Canal Water

Operation and Maintenance of Barrages: Barrages are gated structures across rivers to affect better control and command for the off-taking canals. Being the most crucial component of the irrigation system for controlled diversion of irrigation supplies, proper and efficient operation and maintenance of barrages is essential to sustain irrigated agriculture in the province.

The major functions under barrage operation and maintenance (O&M) include effective regulation, control of water and sediment flow into the canals, safe passage of floods, proper maintenance of all barrage components (guide banks, marginal bunds, spurs, etc.), river surveys, repair and maintenance of gates and the superstructure, periodic safety inspections, and carrying out necessary repair works, particularly during the annual canal closures.

Operation and Maintenance of Canals: Effective and efficient operation and maintenance of canals is a key function of the Department. The operation activities include the efficient management of canals to supply canal water reliably and equitably, data collection, processing and analysis, control of water levels and discharges, and monitoring discharges of canals and outlets. The maintenance activities include maintenance inspections, field surveys, preparation of estimates, budgeting, contracting and execution of approved works. Silt clearance, berm cutting and repair to the canal structures is carried out during the annual canal closure. Comprehensive rules and procedures have been prescribed to implement the works through proper supervision, checks by higher officers and financial controls.

Distribution of Water: The Department operates its vast network of canals, barrages and head-works in a manner that enables fair and transparent water distribution at farmer level. Thousands of people are deployed in various parts of the province to administer this network. The main objective of canal operations is to achieve as much equity as possible and to ensure supplies to the tail-end farmers. A seven-day roster called warabandi is formulated for all farmers along each water course. Shareholders are expected to operate and maintain the watercourse and to implement the warabandi system. In case of a dispute, the Department intervenes to resolve the dispute.

A water regulation programme is prepared for each crop season each year at the canal level (which is aggregated at the provincial level). Under this overall framework, specific water distribution schedules are prepared on daily basis and are conveyed to the head-works where the canals off-take. The main canals

flows are monitored at the head-works by the Regulation Directorate of the Department.

The Department receives per acre water charges (abyana) to finance its regular operations and maintenance. An elaborate set up of Department s employees and various rules and regulations is in place to deal with revenue assessment and related matters. The prevailing annual per acre flat rate of abyana is Rs. 135/- (Rs.85/- for Kharif and Rs.50/- for Rabi), which is quite nominal considering the prices of other agricultural inputs. Political considerations have kept the Punjab Government from increasing water charges. Consequently, the Department is unable to generate sufficient funds to meet its operational cost.

4 Canals, Barrages, Head-works, Falls, etc.


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Developing Water Reservoirs and Command Area

The development of barani areas has been specifically mentioned in the strategies of the 6th, 7th and 8th five-year plans as a priority. In order to plan and implement the construction of small dams in the barani areas of the Punjab Province, a Small Dams Organization was established in the Irrigation Department. This organization is responsible for identifying potential dam sites, collecting hydrological, hydraulic, geo-technical and other data, conducting feasibility studies, preparing detailed designs, and constructing small dams and allied irrigation network. 49 small dams have already been constructed in the province and 10 new projects are in various stages of implementation.

Control of Water Logging and Salinity

The Department has a comprehensive programme to manage water logging and salinity through vertical and horizontal drainage systems. Initially major drainage projects were implemented by WAPDA, which were subsequently handed over to the Department. Now construction, operations and maintenance of horizontal and vertical drainage systems for reclaiming water logged land (including tile drainage and tubewells installed under the Salinity Control and Reclamation Project (SCARP)) is a key function performed by the Department.

In orders to control water logging and salinity, about 11,000 SCARP tubewells were installed by WAPDA in Punjab during 1960s and 1970s, which were subsequently handed over to I&P Department. O&M costs of tubewells increased tremendously due to ever increasing electricity rates in the country. This forced the government to initiate projects for disinvestment of tubewells in fresh ground water (FGW) areas. However, the O&M of SCARP tubewells in saline ground water area is still with the Department. After disinvestment of tubewells in FGW areas, Tubewells Operations Divisions/Workshops became redundant and thousands of employees became surplus. Some of them have been absorbed in other wings or paid off, but the Department is still struggling to deal with the rest.

Flood Control

Since large water storage facilities are not available upstream, the province is prone to floods in the monsoon season (July to September). Punjab s many cities, towns and villages are situated close to rivers. The Department constructs and manages a network of flood protection works, such as flood embankments, spurs and studs to protect these cities and other physical assets. Short-term measures include providing temporary protection against river erosive action along its banks and long-term measures include training river flow. Flood monitoring and flood fighting during emergencies is another important task of the Department. In addition, the restoration of structures damaged by floods is also its responsibility.

Operation of Machinery and Workshops

Department maintains a pool of earth moving machines for maintenance and repair of flood and irrigation engineering infrastructure. Likewise, the Department used to operate mechanical and SCARP workshops for the repair and maintenance of tubewells, gates, gearing and other machinery. Due to funds scarcity and transfer of SCARP tubewells to farmers, most of these workshops have been closed except the following three: 1) Moghulpura Irrigation Workshop; 2) Bhalwal Irrigation Workshop; and 3) Northern Tubewell Workshop Multan.

Ground Water Management and Surface Water Monitoring

Soil and water quality and its suitability for irrigated agriculture have an important bearing on the development and sustainability of irrigated agriculture. The Department has developed several research facilities during the last few decades to determine water and soil standards and to take measures for reclamation of salt-affected soils. Biological and chemical methods have been developed and demonstrated.

The Land Reclamation Directorate is equipped with research laboratories and experimental field stations spread all over the province. Research studies pertaining to soil deterioration, soil survey and land classification, water quality, irrigation water management and water requirements of


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crops, cropping patterns with regard to the physio-chemical aspects of salinity control and other features of land improvement are undertaken by this Directorate.

Groundwater has become a vital and major part of the overall Indus Basin irrigation system. Development of an effective monitoring and regulatory system that encourages a sustainable management of this water source is urgently needed. Government s most important management instrument for groundwater, apart from a greatly improved knowledge base and information system to support better monitoring, is to properly price water for agricultural use. However, so far the Department has not developed any comprehensive plan for managing ground water resources.

Research, Surveys and Laboratory Testing

Pakistan's rivers are characterized by mobile beds and meandering river courses due to highly variable discharges and sediment inflow. Changes in river courses are quite frequent, particularly after each flood season. Mapping river courses and their longitudinal sections is an essential activity for effective and efficient planning of the flood protection works. This activity is carried out by the Hydrology Directorate and by engineers posted at various barrages.

While developing the world's largest integrated irrigation system, irrigation engineers and scientists had encountered a number of complex problems associated with the design and construction of large hydraulic structures on permeable foundations, stable alluvial canals, and training/control of large rivers. The experience gained in the process was crystallised in 1924 through the establishment of the Irrigation Research Institute, which has now grown into a premier research organization with facilities for large-scale hydraulic model testing. The research conducted by this institute has led to the development of safe and economic designs of large hydraulic structures, dams, spillways, bridges and flood protection works. Many basic and applied research projects of the Agricultural Research Council and WAPDA are also handled by the Research Institute.

Power Generation and Regulation of Electricity Act

Under this function, the Department carries out the following activities:

Administration of Electricity Act of 1910 and Electricity Rules of 1937

Administration of Section 38 of NEPRA Act 1997 (disputes over metering, billing and tariff)

Assessment and collection of Electricity Duty under Punjab Act of 1964

Reconciliation of electricity bills of Punjab Government and its allied agencies

Development of power projects up to 50 MW in public and private sectors

Chief Engineer (Power) performs these functions. Five electric inspectors are posted at Multan, Faisalabad, Lahore, Gujranwala and Islamabad.

After the passage of the 18th Amendment to the Constitution of Pakistan, several Power-related functions were transferred from the Federal Government to provincial governments. Consequently, the Punjab Government decided to establish a new Energy Department to look after all power-related issues. It amended Rules of Business vide its notification no. SO (Cab

1) 2-3 /2011 dated March 11, 2011 and abolished power related function of I&P Department. Now these functions will be performed by the soon-to-be-established Energy Department. This transition

likely to be affected in the second half of 2011

will effectively reduce I&P Department to a Department dealing exclusively with irrigation. Hence, functions relating to power generation are not discussed in detail in the next Chapter.

2.3 Earlier Efforts for Institutional Reform

I&P Department has made several efforts during the last two decades for institutional reforms aimed at better governance, de-centralization, participatory management, efficient water management and sustainability. A brief overview of these reform efforts follows:


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2.3.1 Punjab Irrigation and Drainage Authority

The declining irrigation performance had been the point of concern for national and international agencies since 1980s. In 1993, the World Bank proposed to privatize and commercialize water services. It (and other international aid agencies) argued that current institutional structures constrained the performance of the Department. Resultantly, the Punjab Irrigation & Drainage Act was passed in 1997 and an autonomous body

the Punjab Irrigation and Drainage Authority

(PIDA)

was created for operation and maintenance of water channels as well as for collection of water charges (abyana). PIDA was created to achieve the following express objectives: 1) decentralization and autonomy; 2) farmers participation and empowerment; and 3) efficiency and sustainability. As can be seen, functions remained the same but PIDA was mandated to do it using a participatory approach.

The PIDA Act of 1997 created the following new institutional framework:

PIDA Provincial Level

Area Water Board (AWB) Main Canal Level

Farmer Organization (FO) D istributary Level

Khal Panchayat (KP) Watercourse Level

After piloting, this model was extended to five main canals. Therefore, the following five Area Water Boards were notified: LCC (E) & (W), LBDC, DG Khan, and Bahawalnagar. So far 306 Farmer Organizations have been formed in the above Area Water Boards. To further streamline the model, the roles and responsibilities of FOs and Area Water Boards were revised by the Punjab Government through a notification in December 2010. The details of FOs formation are as under:

LBDC

Total number of FOs is 54; 46 formed so far

CRBC 30 FOs are to be formed

LCC (E)

Total number of FOs is 85; 61 formed so far

LCC (W)

Total number of FOs 67; 65 are currently operational

Derajat Canal Circle

Total number of FOs is 90; 54 have been formed

Bahawalngar Canal Circle

Total number of FOs is 70; 69 already formed

LJC

6 FOs are operational


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Figure 5 - PIDA Model

PIDA model, which revolves around greater farmers participation, decision making at grassroots level, mutual responsibility and self sustainability has achieved mixed results. It could not produce expected outcomes for multiple reasons. Many are of the view that the model has been captured by the elite. A few observe that our society has not attained that level of social readiness where such models could be introduced. Absence of technical expertise at grassroots level to execute such a technical irrigation system is cited as another reason of its poor performance. Such divergent opinion notwithstanding, there is a broad consensus that the PIDA model should be evaluated carefully before it is extended to other canals. The Department

now into the second decade of decentralisation experiment

needs to commission a comprehensive external evaluation of the PIDA model to assess its effectiveness and efficiency in the following key areas: 1) water distribution; 2) recovery of water charges and other dues; 3) maintenance of irrigation network; and 4) asset management.

2.3.2 Irrigation Sector Reform Program

For sustainable management of increasingly scarce water, several national and international agencies have identified management issues and constraints for I&P Department in the changing circumstances. Gradually, a consensus emerged that multi-dimensional issues of irrigation management required a comprehensive strategy.

For improving the system, the Department embarked upon a medium term Irrigation Sector Reform Program. GoPb signed the Punjab Irrigation Sector Development Policy Loan with the World Bank (US$ 100 million, over a period of three years from 2006 - 2008) to improve asset management as well as quality of services through broad based policy reforms in the irrigation sector. The reform programme was built on the following four inter-related pillars, in line with priorities set in the World Bank Country Water Resources Strategy.

Institutional and Policy Reforms: to improve operations, management and maintenance of the irrigation system in a way that can ensure its long term physical and financial sustainability.

Water Resource Management Reforms: to make intra-province river water allocations and distribution more transparent.


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Irrigation Service Delivery Reforms: to improve the effectiveness, efficiency and accountability of irrigation systems, by greater farmer participation and by delegating them the power to operate and maintain water channels.

Reforms to Encourage New Technology to Improve Water Use Efficiency & On-farm Productivity: to provide incentive to farmers for introduction of new technologies.

2.3.3 Punjab Power Development Company Ltd.

Until the recent amendment to the Punjab Government Rules of Business, I&P Department was responsible for implementing the Punjab Electricity Act of 1910. This included development of power projects up to 50 MW in public and private sectors. In 2008, the Punjab Government established the Punjab Power Development Company Limited under the Companies Ordinance 1984 to perform this function. The major objective was to oversee construction and operation of Hydel (Hydro) Power Projects in Punjab on commercial basis through the public sector or through public-private partnership. The Company will be transferred to the new Energy Department when the latter is established.

2.3.4 Project Management Offices

Some project management offices (PMOs) were established in the recent past with the intention of improving transparency, service delivery efficiency and project execution & monitoring. To get better performance with superior motivation, staff was often recruited from the private sector (though key expertise was also obtained from the Department). Now I&P Department is a blend of PMOs and regular Departmental offices, where some PMOs are working in conjunction/parallel with regular organs of the Department to perform functions, which were hitherto performed by regular Departmental offices. At present, the following special units are working in the Department:

Programme Monitoring and Implementation Unit (PMIU): Its job is to monitor the discharge of irrigation channels and to facilitate efficient and optimal canal operations oriented towards equity and transparency.

PMO for Barrages: This PMO is executing the rehabilitation and modernization projects of various barrages of Punjab.

PMU LBDCIP: This PMU was established through an ADB loan for the rehabilitation and upgrading of Balloki Barrage and Lower Bari Doab canal head regulators. It is responsible for the overall project execution and coordination.

Strategic Planning & Reform Unit (SPRU): The unit was established with the objective of strategic planning, monitoring and evaluation, and facilitation in implementation of various activities of the reforms programme under the Development Policy Loan. The unit is currently involved in many diversified technical and soft areas.

PMO Punjab Irrigation System Improvement Project (PISIP): This PMO was established to oversee implementation of all project activities.


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Section 3: Critical Analysis of Departmental Functions


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3. Critical Analysis of Departmental Functions The Irrigation and Power Department performs a number of functions, which have been briefly discussed in Chapter 2. In this Chapter, we shall discuss each of these functions in detail. This Chapter also presents a number of recommendations for functional realignment, decentralisation, partnership, outsourcing and privatisation based on the literature review and stakeholder interaction during the last few weeks. The overall objective in each case is to improve efficiency, to optimise utilisation of human, physical and financial resource and to bring service delivery closer to the end-user.

To perform a function, the Department has to carry out a number of activities. These functions and activities are listed in the table below.

Figure 6 - Functions and Activities Performed by I&P Department

Function Activity




Preparation of ADP/PSDP Schemes



Professional Training and Capacity Building

Construction, Operations and Maintenance of Irrigation Engineering Structures and Distribution of Canal Water



Assessment of Abyana


Dispute and Conflict Resolution

Asset Management


Execution of Projects










Flood Control River Survey and Flood Warning


Operation of Machinery and Workshops

Operations of Workshops

Operation and Maintenance of Machinery


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Ground Water Management

Surface Water Monitoring

Research and Laboratory Testing

Physical Modelling

Land Reclamation Research



3.1 Policy Formulation, Planning, Management and Monitoring

Policy formulation, planning, management and monitoring constitute the core internal functions of I&P Department. Given the importance of canal water as the main driver of agricultural economy in the province, it is important for the Department to have a clear future vision, to have a system for developing coherent policies and to put in place implementation mechanism to cope with the immediate and long term water needs of the province. The outcome of this function are several, such as long-term, medium-term and short-term plans, responsive and practical policies, effective monitoring frameworks to monitor and evaluate outputs and outcomes, and a set of systems, which can help implement programmes and projects in an effective and efficient manner. This function is being performed by I&P Department s Secretariat through its various offices.

3.1.1 Activities

The following activities are undertaken to discharge this function.

3.1.1.1 Policy Formulation and Planning

A key activity here is to provide strategic direction for water sector improvement and I&P Department s role therein. Until a few years ago, the Chief Engineer (Planning & Review) and the Additional Secretary (Technical) were performing some tasks regarding policy and planning, but their roles and responsibilities were not clearly defined. Moreover, the activity mostly revolved around civil works and their cost estimates. This created the need to set up a Unit within the Department with the exclusive responsibility for strategic planning. Therefore, the Strategic Planning and Reform Unit (SPRU) was established a few years ago through the Development Policy Loan (DPL) to plan and monitor water sector activities in the Department related to DPL. Since its establishment, SPRU has assumed some responsibility for strategic planning. However, its role needs to be defined more clearly and its institutional presence within the Department needs to be strengthened.

There is no formal institutional set-up within the Department to act as the repository of strategic information, and to formulate, review and update Departmental goals, policies and strategies taking into account emerging scenarios, findings of research studies and results of various interventions.5 In the absence of such institutional framework, ad hoc decision making becomes more likely leading to inconsistent and (sometimes) conflicting decisions.

Recommendations

A formal institutional set up should be established within the Department to set strategic goals, formulate strategy and provide a broader planning and monitoring framework. It should review and update Departmental goals, policies and strategies at periodic intervals. It should be a lean and efficient set up, which has sufficient in-house capacity to discharge its responsibilities. But most mundane jobs should be performed by short-term consultants.

SPRU can be strengthened to perform this role. It should be supported by a Policy Planning committee, comprising of senior professionals (engineers, water sector

5 The Experts Committee of the Department (comprising senior in-service and retired technocrats) advises the Department only on technical and design issues.


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specialists, economists) and end-users (farmers). It can hire short-term consultants for most jobs.

The position of Director Planning under CE (Planning and Review) should be shifted to this new institutional set up.

3.1.1.2 Project Monitoring and Appraisal

Unlike some other Departments of the Punjab Government, I&P Department does not have a central mechanism to monitor the progress of various on-going programmes, projects and interventions. The monitoring activity is simultaneously undertaken by the following:

The PMO in the office of CE (Planning & Review) monitors development projects and schemes.

Through its Director Engineering and M&E, the SPRU monitors O&M works to the extent of verification of invoices.

Lower Bari Doab Canal Improvement Project (LBDCIP), Punjab Irrigation System Improvement Project (PISIP), and Punjab Barrages Rehabilitation and Modernization Project) are directly monitored by the Secretary through respective PMOs.

Programme Monitoring and Implementation Unit (PMIU) monitors distribution of water at canals, distributaries and minors throughout the province.

There is a need to develop a centralized Project Monitoring and Appraisal Cell/Unit to monitor and review the progress of projects under a structured monitoring and evaluation framework comprising objectively verifiable indicators. This monitoring mechanism will help develop institutional memory and will serve as an input to the strategic planning unit for policy planning and strategy formulation. This Cell/Unit can also undertake impact studies to evaluate the impact of various interventions. By documenting lessons learnt in each case, such a centralised monitoring framework will help institutionalise Departmental activities.

Recommendations

Set up a Project Monitoring and Appraisal Cell/Unit to monitor and evaluate the performance of on-going and completed projects.

The unit should be responsible for developing, revising and up-dating targets and key performance indicators of major offices of I&P Department for achieving Departmental goals and strategy.

The unit must use modern tools of monitoring and evaluation, rather than rely exclusively on traditional tools, such as on-site visits, verification of bills, etc.

The office of CE (Planning and Review) is a good candidate for upgrading itself to the proposed Cell/Unit.

3.1.1.3 Preparation of ADP/PSDP Schemes

I&P Department seeks funds from the Punjab Government, the Federal Government and international aid agencies for its development projects under Grant 36 (revenue) and 37 (capital). At present, 64 ADP schemes (seven are foreign funded) and six PSDP schemes are in progress. The total size of ADP is about 9,600 million rupees for fiscal 2011-12.

The preparation of development budget starts with the issuance of draft budget ceiling by the P&D Department. Through consultation between I&P Department and P&D Departments, this draft budget is subdivided between new and on-going development schemes. The next step is to prepare estimates for individual development schemes. Once approved and finalized, these are conveyed to field formations (zones, circles, divisions). Additional Secretary (Technical) is responsible for collecting cost estimates for various schemes, for prioritizing budget allocations and for approval of schemes, after which funds are disbursed to various development offices. AS (Technical) also prepares the statement of excesses and surrenders of ADP schemes to create room for budget re-appropriation. Though its main function is ADP formulation, AS (Technical) is also responsible for monitoring physical progress and financial utilization in various schemes.


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Recommendations

The Department can get maximum benefit from the Medium Term Budgetary Framework (MTBF) of the Punjab Government when planning and operations of all field and supervisory offices are conducted in three-year cycles. Set up an MTBF Cell to help the Department in efficient planning and implementation of MTBF reform framework.

Currently, activity wise budget is prepared in Excel sheets and is subsequently posted in the customized software (SAP). A full time consultant is working in the I&P Department to provide technical backstop on use of SAP. But the capacity of Departmental employees has not been developed to the level where they can independently handle the software without the support of consultant, who will leave after a certain time. This capacity needs to be built.

The administrative approval powers of Ex Ens, SEs and CEs should be revised upward to reduce the work load of the secretariat staff. CE s power for Administrative Sanction should be increased to Rs. 100 million, subject to inclusion of scheme in ADP. At present, CE s technical approval power is unlimited but his power for administrative approval is limited to Rs. 2.5 million.

All ADP schemes larger than Rs. 3 million should be placed before a specially constituted Departmental Committee. Only those schemes should be processed that are cleared by this Committee.

Enlistment of A class contractors is also done by AS (Technical). In the interest of transparency, a database of approved contractors should be created and uploaded on Department s website. It should be regularly updated.

Press clippings

currently also handled by AS (Technical)

can be conveniently shifted to the Personal Assistant to the Secretary.

The function of responding to assembly questions should be located in the office of AS (Administration).

Given the technical nature of work in the office of the AS (Technical), it will increase efficiency if only qualified engineers are posted as Sections Officers in this office.

3.1.1.4 Budget Preparation (non-development expenditure)

The Department seeks funds for current (non-development expenditure and Statement of New Expenditure (SNE)) budget from the Finance Department (under grant 09) for its recurrent financing needs. The current budget is prepared at division, circle, zone, directorate and secretariat levels. Divisional budgets are consolidated first at the circle level and then at the zonal level for submission to Additional Secretary (Budget). There are more than 325 spending units within I&P Department that submit their separate budgets, which are consolidated at various levels. O&M budget for the maintenance of irrigation channels and other civil works is also part of this current budget.

The Additional Secretary (Budget) prepares the budget showing separate allocations for each activity/object and for each Drawing & Disbursement Officer (DDO). This is done using Excel sheets and the entire data are subsequently posted in the web-based SAP software (as required by the Finance Department). AS (Budget) distributes funds to various offices upon their receipt from the Finance Department. Moreover, AS (Budget) is responsible for preparing/consolidating the expenditure of all grants of I&P Department (grant 09/36/39) on monthly basis for reconciliation with the Accountant General Punjab as well as with the Director General Works.

At present, Additional Secretary (Operations) is working against a re-designated position. The Department has already decided to transfer all functions of this office to AS (Budget). Hence, recommendations for functional realignment of the office of AS (Operations) are also presented here.


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Recommendations

The Department does not have a regular post of AS Budget and has so far made ad hoc internal adjustments to manage the workload (currently Director Design has been re-designated AS Budget). The Department should immediately create a regular post of AS Budget and should post adequate number of accounting staff in this wing. Reportedly, the Chief Minister has recently approved a summary requesting the creation of this post. The Department should follow up on this.

The wing will require one Deputy Secretary and three Section Officers. All of them should have accounting expertise and should be able to use various accounting software currently in use in the Department.

SNEs are currently initiated from field offices. Some of these are processed by AS (Budget) and some are processed by AS (Administration). This seems to be a functional duplication. Ideally, all SNEs should be dealt by one office (preferably by AS (Budget)).

AS (Budget) also handles contractors liability cases. Since such cases often have significant engineering and accounting content, AS (Budget) has to request comments from zonal CEs. It would shorten the processing time if such cases are processed and decided at the CE level, rather than coming to AS (Budget), who has neither the capacity nor the expertise to decide them in any case. Only decided claims should come to AS (Budget) for final payment.

Before posting the budget in the web-based SAP system, AS (Budget) prepares budget for each object/activity and each DDO. For such a great number of entries (about eight thousand) excel sheets are used. The Department should develop customized software to reduce human efforts and margin of error.6

Presently, the Department is being supported by one MTBF consultant, but after his contract expires, it will need to either develop in-house capacity or engage another consultant to provide technical backstop in MTBF budgeting and financial management.

AS (Budget) also processes financial assistance (maximum Rs. 800,000/-) requests from the legal heirs of deceased employees. This function can be conveniently performed by the appointing authority of the deceased employee.7 Such devolution of authority will reduce processing time and will facilitate applicants.

AS (Budget) deals with audit paragraphs from the Departmental Audit Committee and the Provincial Audit Committee. Such work requires institutional memory. Likewise, budget preparation is a technical activity. Therefore, transfer of staff should be infrequent. Insofar as possible, the 3-year tenure policy should be adhered to.

AS (Budget) also performs certain miscellaneous activities, which do not seem to directly correspond to his other activities. Such activities (e.g. compilation of laws and rules) should be located elsewhere (e.g. with the Deputy Secretary (Legal) in this case).

Since PMIU now monitors water distribution at canal and outlet level (including theft or other wrongdoings), several functions of Additional Secretary (Operations) can be transferred to PMIU, whose field staff stationed throughout Punjab is already performing similar tasks. For example, the following tasks can be conveniently shifted from AS (Operations) to PMIU:

Complaints of shortage of water and poor maintenance of water channels

6 It has been learnt that the Finance Department is planning to introduce one such software in all government departments during the next fiscal year. 7 Ex En for employees in BPS 1

4, Chief Engineer for employees in BPS 5

16 and Secretary for employees in BPS 17 and above.


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Outlet data and statement of cuts and breaches of canals

Statistical data of theft of canal water

Statistical data of channels/drains

The following functions of AS (Operations) can be transferred to CE (D&F):

Statistical data of flood embankments8

Rainfall data

The function of amendment in rules, regulations, Canal and Drainage Act and the Revenue Manual should be shifted to DS (Legal).

Under Section 20 of the Canal and Drainage Act, the power to include a farm in the Canal Command Area (CCA) vests in the office of the Superintending Engineer. In 2006 the Punjab Government imposed a ban on inclusion of area in CCA and notified a Committee to consider such requests. Such requests are processed by the Revenue Section of AS (Operations) for consideration by the Committee. To this extent, there exists a contradiction between SE s powers under Section 20 and the administrative decision of the Punjab Government. Section 20 should be critically examined and the Department should develop a clear policy on the important issues of inclusion of area in CCA and transfer of area from one canal to another.

Lease of government land is also a function performed by AS (Operations). The same function is performed by field officers, but their powers are restricted (EX EN can lease for one year, SE for three years and so on). Relevant laws should be amended to enhance powers of field offices to lease government land. This would increase efficiency and reduce processing time.

3.1.1.5 Human Resource Management

Human Resource Management (HRM) function is mainly performed by the Additional Secretary (Administration) in the Department. It is limited to staff recruitment, posting, transfer, promotion and disciplinary inquires of I&P Department officials in higher grades (BS 17 and above). The zonal offices and directorates perform similar functions for Departmental employees in lower grads. There is hardly any concept of career planning, succession planning, performance management, performance-incentive alignment, developing clear job descriptions and developing systematic databases. It may take years before the Department develops a modern HRM framework, but the journey must start now. The Department should focus on career planning and professional development of its current and future employees. Following recommendations can be a good starting point.

8 PMIU also collects data on flood embankments. This activity should be undertaken only by CE (D&F).


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Figure 7 - Proposed Organogram for Office of AS

Recommendations

Convert the office of AS (Administration) into an HRM Cell/unit; make it responsible for all aspects of employees service, career planning, professional development and disciplinary matters.

Make sufficient working experience of basic office software a pre-requisite for all jobs, other than the ones in the unskilled labour category.

Develop a comprehensive Human Resource Information System, which contains updated service-related profiles of all current and former employees of the Department. The development of this system can be outsourced to the private sector.

Conduct regular HR audits to better assess the work conditions and motivation levels of employees; these audits will help develop (non-monetary) strategies to address employees frustration and lack of motivation.

Develop clear job descriptions for each office in the Department. These should be regularly updated. They should be linked to employees performance appraisal.

Give due consideration to employees qualifications and previous experience while posting them to a position.

Over the years, technological, organisational and functional changes have rendered certain activities redundant. In some cases, technology or new regulatory policies have changed the workload of certain cadres drastically.9 The Department should carry out a comprehensive rationalization exercise to match the current workload with staff strength in various units/wings. Staff needs to be shifted from employee-surplus wings/units to employee-short wings/units.

CE Lahore Zone is responsible for O&M in various residential colonies in Lahore whereas allotment in these colonies is made by AS (Administration). The function of allotment of houses in I&P Department residential colonies in Lahore should be located in the office of the CE, Lahore. Clear policy guidelines should be provided to guide the CE in discharge of this function. The list of vacant houses should be available on the Departmental website.

9 For example, enforcing flat abyana rates has considerably reduced the workload of Patwaris.


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There is some duplication in maintenance of secretariat building, which is done partly by CE Lahore and partly by AS (administration). This function should be with CE Lahore.

Cases of fixation of reserve price and final auction price are sent by CEs to AS (Administration), who refers these to AS (Technical) which then go to the Secretary. The chain can be simplified if CEs send such cases directly to AS (Technical).

The current training programme is supply-driven, rather than need-based. A structured training need assessment should be carried out after regular intervals to assess capacity gaps and to identify capacity building needs.

The training function should be located in the office of AS (Administration), as it is essentially an HR function. Since most training programmes are likely to be technical in orientation, the training section in the office of AS (Administration) should be led by someone who has engineering background and experience of handling training portfolios.

All water complaints should be dealt by the PMIU. In some cases, the Secretary marks these to AS (Administration).

Section Officer (A&B) deals with budget & SNE proposals from field establishment. This function should be shifted to Additional Secretary (Budget). Section Officer (A&B) may be renamed as Section Officer (Career Planning)/(HR) and shifted to Deputy Secretary (Admn) Wing.

SO (T&M) s tasks related to PMUs and PMIUs may be shifted to SO (E-IV). Adjustment of surplus staff of defunct Tubewell Operation Division may be assigned to SO (E-III) who deals with field employees from BS-01 to BS-16.

Section Officer (T&M) may be re-designated as Section Officer (Complaints) and be assigned duties of preliminary processing of complaints received in the I&P Department from different quarters. Only if it is felt that regular inquiry is required on the basis of probe report, the same may be shifted to SO (E-V) Section, as presently Section Officer (E-V) is overburdened owing to which proper examination of inquiry cases is suffering.

Section Officer (E-IV) may be re-designated as Section Officer (Projects). This Section would deal with all affairs related to projects, PMOs, PMIUs, etc. Pension cases of BS-17 and above being dealt by this section may be assigned to SO (HR). His tasks related to establishment matters of Power & Research Zones may be assigned to SO (E-I) Section.

Section Officer (Confidential) may be shifted to Deputy Secretary (General) Wing.

Deputy Secretary (Legal) reports to AS (Administration) for all purposes. He may be formally brought under Additional Secretary (Administration).

3.1.1.6 Professional Training and Capacity Building

Professional training of I&P Departmental staff is mainly10 carried out in the Engineering Academy, which is an autonomous body (has its own Board of Directors) administratively attached to the Department. Established in 1984, it provides pre-service and in-service training to employees of several Departments including I&P Department, Communication and Works Department, and Public Health Engineering Department. Financing comes almost entirely from the Government of Punjab.

10 Short courses on various management, accounting and communication topics are also offered by other organizations (such as the Management and Professional Development Department), but the principal source of professional training is the courses organized by the Engineering Academy.


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The Academy has 36 hostel rooms and two lecture theatres to run two courses in parallel. It offers the following promotion-related training courses every year: 1) eight-week course for BPS 17 officers; 2) six-week course for PBS 18 officers; and 3) four-week course for BPS 19 officers. Apart from this, the Academy offers a 16-week pre-service training course for engineers inducted in PBS 17. As the induction of new engineers is infrequent

on average one batch is inducted

every five years

the Academy is grossly under-utilized (working at about 50% capacity).

Recommendations

Retain this as a key function, but strengthen its role and enhance facility utilisation.

The Academy should offer a diverse range of engineering-related executive programmes, workshops, seminars for government employees as well as for private sector engineers.

3.2 Construction, Operations and Maintenance of Irrigation Engineering Structures and Distribution of Canal Water

The main objective of canal operations is to distribute water among beneficiaries effectively and efficiently, while ensuring supplies to tail-end farmers and maintaining as much equity as possible. A related activity is to keep irrigation engineering structures and water channels in good working condition through periodic and special repair and maintenance schemes.

3.2.1 Activities

The Department performs a set of activities to discharge this core function.

3.2.1.1 Distribution of River Water Supplies between Canals, Branches, Distributaries and Individual Outlets

The key activity here is to decide the volume of water flow in various canals and distributaries. The Director Regulation, operational zones, operational circles, and operational divisions decide the flow of water quantity in their respective canals and water channels in accordance with the rotational plan prepared in consideration of water availability and requirement. Department s responsibility ends at the water outlet. The maintenance of water courses and sharing of water according to their land holding is farmers responsibility. The Department intervenes only in case of a dispute among shareholders about their share or turn.

For proper operation of canals, I&P Department staff works out the requirement (indent) of the area at sub-division level and regulates/monitors discharge of canals and water channels. In the canal systems working under the PIDA Act of 1997, FOs are responsible for operating irrigation channels and outlets. FOs also assist irrigation officers in the formulation of rotational plan for various channels.

At present, the operational division s staff and the Program Monitoring and Implementation Unit (PMIU) monitor water level in various distributaries and channels, especially at their tails. This is done by manually reading water gauges at various points and transferring data to a central location. This can be improved by using modern tools of measuring water discharge. Some divisions spread over relatively large areas, which make them difficult to manage with the existing staff. The number of disputes is also on the rise, partly due to increased number of water users, as land holdings are divided and sub-divided through inheritance. Such divisions need to be divided to rationalise their work load.

New technologies have rendered many a job redundant (e.g. the dak runner). But the Department is still using job denominations mentioned in the Canal and Drainage Act or the Revenue Manual, both of which were drafted during the British era. Such redundant positions should be replaced with new posts, such as data entry operators, IT experts and litigation officers.

Recommendations

The measurement of water distribution could improve if modern metering/measurement tools were used. The Department should set up a real time


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water monitoring system that utilizes modern information and communication technologies.

Divisions and sub-divisions that extend to exceptionally large areas should be divided to rationalise their work load.

Job descriptions of all staff (particularly the field staff) should be revised to ensure that positions are not inconsistent with changed ground situations. Redundant posts, such as the dak runner, can be replaced with data entry operator.

3.2.1.2 Construct ion, Rehabilitat ion and Maintenance of Water Channels and Allied Structures

Previously, operational divisions were responsible for identification and execution of development of ADP and PSDP schemes. During the last decade, increased availability of development funds led to the establishment of six new development circles, one in each zone, to handle the greatly enlarged development portfolio. The situation has changed during the last few years, as development funding has significantly declined and the Department is struggling to find resources for new projects. This has made development circles almost idle. At present, both operational and development divisions are undertaking ADP schemes, which is a duplication of functions. The Department has not abolished these six development circles hoping that development funds would soon be available. Perhaps a via media for the Department is to maintain a scaled down capacity for development works.

Every year, the Department undertakes maintenance of canals and water channels. Mostly this is done during one month s annual closure of canals. The maintenance activities start with inspection, field surveys and preparation of estimates. To prepare O&M estimates, the Department has formulated zone specific yardsticks, subject to revision as per approved criteria. Once O&M works of operational divisions are approved by their respective authorities, contracting and execution follow. All these activities are performed under prescribed procedures and rules.

For smooth canal operations, I&P Department has exclusive O&M staff in each sub-division, who look after preventive maintenance, minor repair of canal banks and structures, and routine inspections of outlets and water channels. Sub-engineers, SDOs and EX ENs are required to carry out routine and special inspections of all elements of canal system within their jurisdiction. In canals systems transferred to PIDA, FOs are responsible for managing, operating and maintaining the distributary/minor and the allied infra-structure. Nehir Panchayat is responsible for undertaking maintenance, repair and development works of various channels in consultation with FOs.

Sometimes, development divisions do not consult operational divisions in identification and execution of schemes. Since operational divisions have institutional memory and they have to eventually operate the irrigation infrastructure, a mechanism needs to be established that enables consultation between development and operational divisions.

Recommendations

Retain only one development division in each zone to take care of all development schemes.

Convert SE Development s position into SE Head Quarter with the respective CE.

Develop a consultation framework that enables communication between development and operational divisions.

Continue the Third Party audit of O&M schemes.

Enhance the capacity of sub-engineers and staff in the drawing branch to carry out survey work and to prepare cost estimates.

Many sections do not have complete survey tools. A standard tool kit of sub-engineer, comprising essential tools, should be provided to each section.

Provide AutoCAD training to sub-engineers and other staff in the divisional and circle drawing branches.


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3.2.1.3 Assessment of Abyana

Operational divisions of I&P Department assess abyana (water charges) due from each farmer and prepare an Assessment Statement (Dhal Bach), which forms the basis for abyana collection by district offices of the Punjab Board of Revenue. In canal systems under PIDA, FOs are responsible for assessing and collecting water rate and other irrigation related charges.

Abyana is the principal income source for the Department. In 2003, the then Punjab Government decided to levy a flat abyana rate, which not only eliminated discretionary powers of assessing staff but also reduced their workload significantly. The rate is abysmally low (Rs. 135 per acre), especially when compared with cost of water from other sources. When abyana rates were fixed in 2003 at Rs. 135 per acre per year, support price for wheat was Rs. 300 per 40 Kg. The wheat support price has since increased to Rs. 950 per 40 Kg, but abyana remains the same. There is a clear case for a significant increase in abyana. In recent years, abyana recovery has declined. But this is due to poor performance of the Punjab Board of Revenue, rather than of I&P Department, whose role is restricted to assessment of abyana and preparation of Dhal Bach.

Recommendations

There is a clear case for a significant increase in abyana. The Department should propose a framework for periodic increase in abyana based on some independently verifiable criterion. This would convert abyana into a buoyant source of income for the Department.

Even if abyana increase is politically unacceptable for the time being, the Department should regularly present an economic case for a criterion-based increase in abyana.

The workload of patwaris and zilladars has considerably declined after the introduction of flat rate. Undertake a staff rationalisation exercise to determine the new staffing levels of abyana-related staff in various divisions.

3.2.1.4 Bulk Supply of Water for Non-Irrigation Purposes

Many industrial/commercial11 organisations and government Departments (e.g. Forest Department) use canal water in their commercial operations. Respective divisions take care of such users. The water rate charged by I&P Department does not match the escalating prices of alternative means for procuring water.

Recommendation

Develop a criterion-based system for increase in water rate for bulk supply of water for non-irrigation purposes.

3.2.1.5 Dispute and Conflict Resolution

The Canal and Drainage Act of 1873 and Rules framed thereunder delegate various powers to canal officers regarding disputes and conflicts among farmers. The Act clearly spells out the dispute and conflict resolution mechanism regarding water distribution. For Warabandi cases, the decision of the Sub-divisional Canal Officer can be challenged with the Division Canal Officer. Likewise, an appeal can be preferred in Circle and Zonal offices against special charges imposed by the Divisional Canal Officer. Although the Act specifically bars jurisdiction of civil courts, they often tend to admit jurisdiction on mala fide pleas. Recent years have experienced a phenomenal growth in the number of cases under litigation in various civil and criminal courts. This has significantly increased the work load of field formations, which have to prepare para-wise comments and to represent Departmental perspective in courts.

Recommendation

11 Utilities companies such as power houses also use canal water in their steam condensers and cooling towers.


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Appoint a litigation officer in each circle to pursue/respond to court cases. Zilledars with law degrees can be considered for these assignments.

3.2.1.6 Asset Management

I&P Department is an asset-rich Department. In addition to its large irrigation infrastructure (valued at about Rs. 1,200 billion), it possesses thousands of acres of cultivable land, large tracts of land along banks of canals and distributaries, numerous rest houses, heavy machinery, etc. With the passage of time, most of these assets have gained significant commercial value. The Department recently surrendered large chunks of land to the Punjab Privatization Board, yet it possesses considerable amount of assets. The Department either self-manages its assets or leases them out to private parties. Some commercially important assets are under illegal occupation.

It is a challenge for the Department to manage its assets efficiently and gainfully. This must start with the development of a comprehensive inventory of all assets owned by the Department. The next step will be to estimate approximate value of various assets and to prepare separate asset management plans for each asset category. This is a huge task and the Department would need to set up an Asset Management Cell/Unit to develop a comprehensive inventory and to prepare separate asset management plans.

Recommendations

Set up an Asset Management Cell/Unit.

Develop comprehensive inventory of all assets; outsource this activity to a credible private firm.

Prepare asset management plans for each category of assets.

Use surplus staff (from SCARP, from patwaris and zilladars, and from various offices recommended for rationalisation) to set up the new Cell.

Link asset management with revenue generation activities (tree plantation, toll tax, rest house charges, etc.).

3.2.1.7 Tree Plantation on Distributaries & Minors

Previously, the Forest Department was responsible for tree plantation on canals, branches, distributaries and minors. Under the new arrangement, tree plantation on canals, distributaries and minors falls under the purview of I&P Department. From operational point of view, tree plantation can be a logical function of the Department. I&P Department staff are supposed to regularly visit water channels; so they can monitor plant growth and can protect their trees from unlawful cutting. But then there is the perennial shortage of staff in operational divisions and the increasing incidents of timber theft enabled by ever-deteriorating law and order situation in the province.

Recommendations

Retain tree plantation as a function.

Declare trees an asset and let them be handled by the Asset Management Cell under protocols developed for other assets.

3.2.1.8 Execution of Projects

Several Project Management Units/Offices (PMUs/PMOs) were established during the last few years to manage specific projects. This has converted the Department into a blend of project and regular structures, where several PMOs/PMUs are working in conjunction with regular organs of the Department to perform functions, which were once the mandate of regular Departmental structures. Almost all PMUs/PMOs were established in response to a specific demand from funding agencies. That is why they are grossly dissimilar in several respects.


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When these PMOs were established, their staff was recruited from the private sector as well as from within the Department. To attract capable professionals, market-based salaries were offered. This created the anomalous situation where people performing same (or very similar) work were remunerated at grossly different rates. Over the years, however, market rates have increased, whereas pay packages in PMOs have more or less stagnated. Therefore, even the pay packages offered to PMO/PMU staff are no longer attractive enough to recruit and retain high-performing professionals from the market.

Recommendations

The Department should identify best practices from its experience with PMUs/PMOs and develop its own locally adapted model for executing these and subsequent projects.

In PMU LBDCIP and PMO Barrages, the control of infrastructure and I&P Department staff have been placed under PMO/PMU, which is essential to keep control over execution and to reduce risks. But in PISIP, the control of canals and distributaries is with operational divisions, which is creating several problems. Moreover, frequent transfers of operational staff delays implementation.

3.3 Developing Water Reservoirs and Command Area

An important function of I&P Department is to develop water reservoirs by constructing small dams in barani (rain-fed) areas of Potohar Plateau of Punjab to improve livelihoods and agricultural production. Primarily, these dams supply irrigation water and address the problem of soil erosion, but they also provide drinking water to local communities. This is primarily a service delivery function located in the Small Dams Organization

a unit of I&P Department. Since 1960, Small Dams Organization has worked to construct small dams in barani areas. So far, Small Dams Organization has completed 49 small dams and allied irrigation networks, whereas 10 dams are currently under construction.

It is important to note that two other organizations

WAPDA and ABAD

also have the mandate to construct water reservoirs. WAPDA constructs medium and large dams, whereas ABAD works in partnership with local communities on cost-sharing basis to establish micro and mini dams in barani areas. There is some functional duplication with ABAD, which needs to be examined in greater detail to ensure optimal utilisation of scarce resources.

3.3.1 Activities

The following major activities are undertaken to perform this function.

3.3.1.1 Identificat ion of Suitable Sites, Survey, Technical Investigat ion and Design

Small Dams Organization identifies potential sites for small dams using contour maps of Survey of Pakistan or information provided by local people. Then it collects hydrological and field data, undertakes a reconnaissance survey of selected dam sites and conducts sub-soil investigation and geo-technical study to assess the technical and operational feasibility of sites. Moreover, it also assesses the command area likely to benefit from construction of a dam to see if the likely utility is large enough to justify costs. Designing the small dam and allied irrigation network, preparation of cost estimates and execution of construction (by contract management) are also the responsibility of the Small Dams Organization.

Small Dams Organization does not have the capacity and experience to effectively use Global Information System (GIS) mapping

an advanced technology/tool

for identification of sites and collection of related data. At present, the Organization does not have a qualified geologist and the required laboratory facilities for carrying out geo-technical tests. Considering the relatively small work load in a year (on average about 2-3 sites are identified each year),12 developing and

12 Since 1960s, 49 dams have been constructed. Usually 50% sites prove viable.


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maintaining in-house capacity for GIS-based identification, geological surveys and technical investigations of dam sites is not feasible. The job can be conveniently outsourced.

Designing of irrigation structures is a specialized job that requires in-depth knowledge of hydraulic engineering as well as expertise and experience in specialized designing software. The professionals that have the right skills and experience are few and hard to find in the job market. It is a Herculean Task to induce such professional to join a government Department at the prevailing pay scales. With each retirement or post-out of a qualified professional, the capacity constraint becomes more severe. As for the engineering staff already working in the Central Design Office (CDO) of the Department, some of them have considerable experience in design of engineering structures, but they are unwilling to work in CDO in the absence of perks and privileges that come along field jobs. This capacity constraint has severely restricted CDO s role, which is now more often than not limited to review of designs, rather than designing engineering structures.

One option is to strengthen CDO by hiring professionals at market-based salaries and to develop a mechanism for their continued capacity building so that they can design all types of irrigation structure including small dams. Alternatively, the design work can be outsourced to the private sector; but even there, the availability of good designers is a major issue. Whatever the case may be, design of small dams should not be the function of Small Dams Organization.

Recommendations

Outsource identification, survey and technical investigation of dam sites.

Outsource the design of small dams to the private sector.

Alternatively develop CDO s capacity to design engineering structures, including small dams.

3.3.1.2 Construction, Operation and Maintenance of Small Dams

Small Dams Organization has four divisions based in various districts of Potohar. The Executive Engineers in charge of various divisions report to a Project Director, who in turn reports to the Chief Engineer (Development). The Organization operates and maintains 49 small dams that provide irrigation and drinking water13 to local communities through a network of specialized water channels constructed as structures allied to dams. The Organization has special staff to regulate dam water and to supply it in irrigation channels as per the requirement. It charges abyana @ Rs. 135 per acre from farmer and @ Rs. 4 per 1,000 gallons from drinking water users.

Small dams have a small discharge capacity ranging between 2 to 40 cusec. The channels are of composite type

buried and open

but all are lined (brick/concrete) and the system is need-based rather than supply-driven. Irrigation channels of a dam serve a localized small population, so the incidence of water theft, outlet tampering, and water ownership disputes are negligible. All this makes these irrigation channels an ideal candidate for handing over to local communities. The model can be pilot-tested on two-three dams before it is replicated on a large scale.

Recommendations

Carry out necessary repair of water channels of small dams and transfer their operations and maintenance to local communities.

This should be undertaken as a public-private partnership initially, which can subsequently lead to complete transfer of water channels.

The model should be pilot-tested on 2-3 dams before large scale replication.

13 Drinking water is limited to a few dams only


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3.3.1.3 Development of Command Area of Small Dams

A related activity is to develop the command area of small dams by laser levelling, water course lining, etc. The office of the Project Director Command Area was established to perform this activity initially for 4 dams.

On-farm water management and water course lining is undertaken in various districts by the Agriculture Department on regular basis. These are also carried out by the private sector (including some nonprofit organisations, such as the National Rural Support Program). I&P Department can create synergies with the Agriculture Department and/or with the private sector in undertaking this activity. It can either transfer the development of command area to the Agriculture Department, or it can outsource this activity to the private sector or to the Agriculture Department on payment of mutually agreed charges.

Recommendations

Transfer the development of command area of small dams to the Punjab Agriculture Department.

Alternatively, pay the private sector or the Agriculture Department staff to do this job, rather than maintain in-house capacity.

Abolish the post of the Project Director Command Area in either case.

3.4 Control of Water Logging and Salinity

One of the core functions of I&P Department is to control water logging and salinity through horizontal and vertical drainage systems for reclaiming water logged lands. I&P Department is operating and maintaining various drainage schemes in various parts of Punjab14 using a range of technologies, such as deep tubewells, tile drains, and surface drains. With the passage of time, the role of drainage systems has increased. Now, in addition to serving as pathway for seeping water and storm water, many drains carry industrial effluents and municipal water to nearby rivers.

3.4.1 Activities

Under this function, I&P Department performs the following major activities:

3.4.1.1 Operation and Maintenance of Tubewells

In order to control water logging and salinity, WAPDA completed a series of SCARPs in the early 1960s. 7,900 tubewells were installed in fresh ground water zones and 2,650 tubewells were installed in saline ground water zones under various SCARP schemes. Together, they covered about 4.4 million acres and 2.2 million acres respectively. An additional 1,245 tubewells were installed under other schemes to cover another 0.19 million acres. WAPDA handed over SCARP tubewells to I&P Department for operation and maintenance. Accordingly, I&P Department augmented its organizational capacity by setting up four new SCARP circles. Workshops were also set up to carry out machinery repairs.

For years, I&P Department operated and maintained these tubewells. SCARPs proved effective in alleviating water logging and salinity. However, with the passage of time O&M costs for these tubewells increased manifold, largely due to skyrocketing costs of electricity. Resultantly, I&P Department embarked upon the disinvestment of SCARP tubewells in phases under various SCARP Transition Projects. Over the years, the Department has successfully disinvested tubewells falling in fresh ground water areas while 1200+ saline water tubewells are still with the Department in various operational zones. Such tubewells provide no attraction to farmers as saline effluent is not used to supplement irrigation supplies, which was the major incentive for farmers to acquire tubewells in fresh ground water areas. Closure of these operational tubewells

14 Primarily, it is WAPDA s responsibility to construct and operate the drainage network. Over the years, it has handed over many drainage schemes to I&P Department.


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is not an option, as it may increase the water table and aggravate water logging in such areas. Out of these, more than 550 tubewells in Rahim Yar Khan also serve as a strategic defence line for the army. However, army is not ready to share the maintenance cost for these tubewells.

The Department should take measures to reduce their O&M costs. This can be done by improving the performance of these tubewells, especially through increasing their energy efficiency because electricity charges constitutes the biggest component of total O&M costs. Recently, USAID Pakistan has launched a project to replace centrifugal pumps/turbines and electric motors of tubewells with more efficient machines to save electric energy. The Department should proactively seek to benefit from this intervention.

At present, SCARP-III Circle Multan (under the Chief Engineer (Development)) is operating and maintaining only 354 saline tubewells, which is not a large work load for a circle. The respective zone(s) can manage these tubewells without adding requiring any new staff.

Recommendations

Retain saline water zone tubewells for control of water logging.

Take necessary measures to improve electric energy efficiency of tubewells; use better pumps and motors.

Liaise with USAID Pakistan to make good use of their interventions for machinery modernisation.

Charge the Pakistan Army a proportion of O&M costs of 550 tubewells in RY Khan that serve as a strategic defence line.

Abolish SCARP-III circle and transfer its 354 tubewells to respective divisions along with all related functions.

3.4.1.2 Operations of SCARP Workshop (Northern Tubewell Workshop Multan)

For maintenance and repair of SCARP tubewells, the Department operated several specialized workshops, most of which were closed down with disinvestment of tubewells to farmers. However, the Northern Tubewell Workshop, Multan is still functioning. This workshop should also be closed down, as repair and maintenance of water pumps and electric motors (including re-winding) are now routinely done by private workshops even in small towns. Moreover, a dedicated workshop is a financially viable proposition only when it has a certain minimum volume of work.

Recommendations

Close down the Northern Tubewell Workshop, Multan

3.4.1.3 Planning, Construct ion, Operat ion and Maintenance of Horizontal Drainage System

The Department is operating a large drainage network of over 5000 miles to manage seeping water and storm water (rain). Open and sub-surface drainage systems (tile drainage) are used to address the problem of water logging, aggravated by intensification of canal irrigation. Therefore, it is important for the Department to ensure that its drainage network continues to function properly. Further, drains situated close to industrial and residential areas have become a major channel/pathway for drainage of industrial and municipal effluents. This is a revenue generating function, as the Department charges Rs. 11,000/- per cusec discharge from users.

Due to urban and industrial growth, many small drains and tributaries are now situated from source to outfall in industrial or housing areas of big cities. Many such small drains and tributaries can be transferred to respective user groups for operation and maintenance. Under this mechanism, I&P Department can charge them collectively by total volume at outfall level, rather than charging individual users. This would increase I&P Department revenue and save cost of collection from individual users.


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Many drains passing through cities have predominately become municipal effluent channels. Often they fall under the geographical territory of various government and semi-government housing authorities. Such drains can be handed over to respective local governments, Defence Housing Authorities (DHA), Cantonment Boards or Water and Sanitation Agencies (WASA). Already I&P Department has transferred Satokatla Drain to WASA, Lahore. Likewise Charr Drain can be handed over to Lahore Defence Housing Authority. Handing over to user groups would help users to install one collective treatment plant, a financially and operationally viable option for even small industrial units.

At present, dangerous pollutants end up in irrigation and drinking water downstream areas because industrial effluents and sewage water are mostly discharged untreated into drainage and river system from urban centres and industrial areas. The effluent contains trace metals in addition to biological contaminations, which have created multiple environmental and health hazards. The Department does not have proper database of industrial or other concerns that discharge their effluents in drains. As it has significant revenue generation potential, a proper database should be established in order to collect the prescribed fee.

Recommendations

Retain operation and maintaining of drainage network as a core function.

Hand over small drains and tributaries that are situated entirely in industrial and housing areas to respective user groups; charge them collectively by total volume at outfall level; encourage and facilitate establishment of one common treatment plant.

Hand over small drains or portion of drains to government/semi-government organisations and housing authorities, whose effluents are carried by these drains.

Where no dedicated drainage divisions exist in water logged areas, drains should be handed over to respective operational divisions, rather than being assigned to one division.

Develop a comprehensive database of concerns that discharge their effluents in various drains; use this database to collect prescribed fees

Revise the rate of Rs. 11,000/- per cusec per annum upwards; develop a system of regular rate revision.

3.4.1.4 Carrying Out Thur Girdawari (Salinity Survey)

Through the Directorate of Land Reclamation, the Department collects statistical data of saline and water logged soils in Punjab every year. Specialized staff to the tune of hundreds is stationed in many districts of Punjab, which carries out an annual survey of land to gather information about salinity and water logging through visual judgement. This survey supposedly helps the Department decide which lands are to be repeatedly treated with flood irrigation with canal water that is considered an appropriate solution for saline soils.

However, this approach raises a number of questions. First, Punjab is already facing canal water shortage even for regular irrigation. Second, many private firms and non-governmental organisations are marketing several successful solutions of salinity control, which have gradually become mature products with established markets. For example, UNDP is implementing a large project (Bio-Saline) in three districts (viz. Sargodha, Jhang and Hafizabad) for reclamation of sodic soils utilizing such solutions. Success of these products is increasingly making Thur Girdavari and soil treatment based thereupon increasingly irrelevant. Third, the Agriculture Department is working extensively on salinity control. It is operating a Soil Salinity Research Institute at Pindi Bhattian and a Directorate of Soil Fertility and Soil Testing Institute at Lahore. The Department can save resources by using services provided by these public and private sector organisations to help farmers control salinity.

Recommendations

Abolish salinity survey (Thur Gardavair)


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3.5 Flood Control

Floods in Punjab result from heavy concentrated rainfall in monsoon season. Moreover, in Southern Punjab, hill torrents cause localized floods. Federal Flood Commission (FFC) was established in 1977 to serve as the principal coordinating body among provincial departments, Federal Government and various technical agencies. Flood forecasting and warning system, preparation of National Flood Protection Plans, approval of flood control schemes, plans for reconstruction works and review of flood damages are its key functions. Flood control and management in Pakistan is a multi-organizational function that involves 18 provincial and federal departments/agencies. At the Provincial level, I&P Department performs several key functions that feed into similar activities of other agencies.

3.5.1 Activities

3.5.1.1 River Survey and Flood Warning

I&P Department conducts regular river surveys to collect data on hydrology, river discharge and river flows at specific sites. The office of the Chief Engineer (D&F) acts as the secretariat for the Punjab Flood Commission and performs several activities to forewarn the population downstream about likelihood of high floods. Regular surveys, collection of hydrological data and flood warning are prerequisites for effective flood control and forewarning. The Department has the required expertise and experience for this important task.

Recommendations

Retain river surveys and flood warning as a key function.

Enhance Departmental capacity to conduct river survey and forecast floods. Provide modern forecasting tools and training.

Increase coordination with other agencies (particularly the Federal Government)

3.5.1.2 Planning, Design, Construct ion, Maintenance and Repair of Flood Control and Flood Protect ion Works

I&P Department plans, designs and constructs new flood control and flood protection works (flood embankments, studs, spurs, etc.) on need bases. It is also responsible for regular upkeep and maintenance of about 3,200 kilometres operational flood works. It also prepares temporary protection structures against river erosive action along its bank and carries out long term river training works and other pre-emptive measures. Moreover, it repairs and restores irrigation structures damaged by floods. CE (D&F) coordinates Federal Government funded flood protection works in Punjab.

There has been some debate in the recent past suggesting that the responsibility for construction and maintenance of flood protection works should be transferred to local governments. It was argued that local governments can execute small and medium size projects through their works departments. It is difficult to support this argument considering the rather dismal performance of most local governments in 2010 floods. Further, an objective capacity assessment of local government to maintain required machinery and human resource also leads one to conclude that the function of constructing and maintaining flood protection works should continue to be located in the I&P Department.

Recommendations

Retain planning, designing, constructing and maintaining flood protection works as a core function.

Enhance Departmental capacity to respond to flood emergencies, which are more likely to arise in coming years as weather becomes more unpredictable.


36

Establish new flood control divisions reporting to Director Floods in the office of CE (D&F) in all flood prone areas.15

Director Floods should be stationed in Muzafarrgarh, rather than Multan, where he is currently based.

3.6 Operations of Machinery and Workshops

The Department operates several workshops for fabrication and repair of mechanical parts of hydraulic structures. These workshops provide repair and overhauling services to the sizeable pool of earth moving machinery and vehicles that the Department maintains to provide support to various units/wings in their ongoing projects/activities.

3.6.1 Activities

Under this function, the Department performs the following two major activities.

3.6.1.1 Operation of Workshops

I&P Department operates several workshops at various places in Punjab to provide the following services: 1) fabrication and installation of gates and gearing for barrages and canal regulators; 2) repair and replacement of defective gates and gearing of barrages; 3) repair and maintenance of tubewells pumping machinery and rewinding of motors; and 4) repair and overhauling of earth moving machinery and vehicles. After disinvestment of large number of tubewells in the sweet water zone, tubewell workshops became redundant and were closed down.16 At present only the following three workshops are functional:

1. Northern Tubewell Workshop Multan (under control of CE Multan Zone)

2. Mughalpura Irrigation Workshop (under the control of Mechanical Circle/CE Development)

3. Bhalwal Irrigation Workshop (under the control of Mechanical Circle/CE Development)

We have already discussed the Northern Tubewell Workshop of Multan in the section on water logging and recommended that it be closed down. In this section, we ll only discuss the workshops of Mughalpura and Bhalwal. Both workshops once performed important functions, but are now working under capacity. Neither seems to have enough work orders/jobs to justify current staffing and operational capacity. Their entire work portfolio in recent years has comprised internal job orders from other wings of the Department.17

As against this, significant private sector capacity exists to undertake many jobs performed by these two workshops. During the last few years, quite a few retired employees of these workshops have opened up their own commercial enterprises, which are equipped with necessary machines. These workshops have the capacity to carry out most small jobs, such as repair of machinery and vehicles, rewinding of motors, etc. Apparently, these workshops have also been able to secure job orders from WAPDA and I&P departments of other provinces.

In the long term, the Department should sell these workshops at market rates and use any of the abundantly available private sector facilities for repair and maintenance of its machinery. In the short term, the Department should explore public-private partnership options for running these workshops on commercial basis. One option is to convert these workshops into commercial semi-autonomous entities under the umbrella of and with backup funding of I&P Department. The workshops should charge market rates from internal clients. They should also proactively seek job orders from private sector or other agencies by repositioning themselves as competitive facilities. The challenge here would be to enable a public sector workshop to function in a private

15 Currently, there is only one such division, viz. Flood Bund Division Narowal. This division reports to Link circle of Lahore zone and to CE (D&F). 16 4,528 employees went surplus by closing of workshops. 17 In past, they also processed a very few orders placed by other provinces.


37

sector culture. Another option is to seek partnership with the private sector for efficient operations of these workshops. The management of these workshops can be handed over to the private sector under profit/loss sharing arrangement. The new management can retain the staff it needs and the remaining staff be sent to the surplus pool (to be later absorbed in any of the new divisions proposed to be created in this report).

Recommendations

Seek private sector help to commercially operate these workshops; let the ownership of land, structures, machinery and equipment remain with the Department; invite credible private sector parties to submit bids for taking over management on profit-loss sharing; such private sector parties must also make significant investment to modernise machinery and equipment.

Allow various divisions in I&P Department to get their machinery repaired from the nearest (public or private) workshop; heavy machinery and gates can continue to be fixed by the Mughulpura and Bhalwal workshops.

3.6.1.2 Operation and Maintenance of Machinery

The Department has 154 earth-moving machines, such as excavators, dumpers, dozers, etc. These are operated and maintained by the Machinery Circle that comprises three divisions. This machinery is used to carry out emergency works18 and regular repair and maintenance of drains, canals and rivers as well as regular and emergency work of flood related infrastructure including river training works. 90% drains related operational and O&M work is also done by this circle.

Numerous private sector firms operate and maintain earth moving machines. Most small de-silting and bed clearance jobs are carried out by the private sector. However, large canals and drains continue to be the exclusive domain of the Machinery Circle, as the private sector has neither the expertise nor the machinery to work in flowing drains, canals and rivers (which is required in river training and river diversion jobs). The private sector is by and large reluctant to invest in building its capacity to undertake large projects for two reasons. First, operating in river/canal flow rapidly deteriorates machinery. Second, the volume of work is not large enough to justify commercial operations.

However, the current resource-intensive operations of the Machinery Circle are also unsustainable and the Department must think of ways and means to increase efficiency and reduce costs. One option here is to convert this Circle into an autonomous body, which runs its operations commercially. It should charge various wings of I&P Department at market rates for the jobs it performs for the Department. It should also be able to secure several work orders from the private sector. There would be two issues here. First, such an autonomous body must ensure that heavy machinery is available to the Department (on payment of charges) in emergencies. Second, it will be a Herculean challenge for the Department to enable this autonomous body to function in a cultural context significantly different from the current public sector milieu.

Recommendations

Retain the machinery pool with the Department and transform the circle into an autonomous business entity. Such business entity should give sufficient preference to Departmental needs during flood and other emergencies.

The Department should commission a team to prepare a comprehensive proposal for this purpose.

18 Plugging canal breeches or opening up blocked drain with effluents are some examples of emergency work.


38

3.7 Ground Water Management and Surface Water Monitoring

The depletion of groundwater and gradual deterioration in the quality of ground and surface water pose several challenges for sustainable agriculture and for use of groundwater for domestic and commercial purposes. Although, this was not originally part of its mandate, over the years the Department has gradually assumed the functions of ground water management and surface water monitoring in response to rapid environmental changes.

3.7.1 Activities

3.7.1.1 Ground Water Management

The irrigation system of Punjab was designed to provide water at 70% crop intensity. However, significant agricultural intensification has taken place during the last few decades raising crop intensity to almost 150% in many areas. Since the canal network is unable to provide irrigation at such levels, most people have turned to ground water as a supplement. Recent years have seen significant (unmonitored) use of ground water for irrigation and commercial/industrial purposes. This has serious consequences and it is important that the Department puts in place an effective system of monitoring ground water extraction and use. WAPDA used to carry out ground water monitoring in past, but this role was limited to investigating changes in water table caused by pumping from SCARP tubewells in SCARP areas. Now, Directorate of Land Reclamation in I&P Department is monitoring the level and quality of ground water in various areas of Punjab and disseminates this information to general public in the form of reports.

Ground water is an important resource and its use must be subject to strict oversight and regulation. In Punjab, installation of tubewells is not regulated by any government agency and resultantly the number of tubewells has been increasing by the day. This role can be taken by I&P Department. The Department should also liaise with other government departments that are promoting water saving techniques in a bid to reduce ground water extraction.

Another problem is that of ground water recharge. Higher extraction rate of groundwater than potential recharge rate has resulted in significant lowering of water table particularly in tail areas, where recharge of aquifer is insufficient. Even in big cities, due to heavy pumping of water by WASA tubewells, the aquifer needs to be recharged. Moreover, the excessive draw-down has resulted in deterioration of groundwater quality. The Department can increase groundwater recharge by increasing canal diversions, rainwater harvesting and building check dams.

Recommendations

Enhance I&P Department s role from ground water monitoring to ground water management .

Put in place a framework for regulating installation and operation of tubewells.

Commission the development of a comprehensive database of all private tubewells in the province.

Make aquifer recharge a key activity.

3.7.1.2 Surface Water Monitoring

Directorate of Land Reclamation (DLR) collects surface water samples at selected sites on rivers, canals and drains (at head, middle and tail) in various geographic parts of the province at regular intervals. DLR performs chemical analyses in its own laboratory in Lahore to monitor the quality of surface water for drinking (in saline groundwater area), crop irrigation and groundwater recharge purposes. It publishes annual reports for information dissemination. Water testing is not a high-skill or resource intensive job; it is being done by several private sector laboratories.

The next logical step would be to take measures to improve water quality. Surface water quality can be improved through water treatment, but I&P Department may not be the best choice for setting up and operating such plants. These can be better set up and operated by city governments and business organisations, such as the Chambers of Commerce and Industry.


39

Recommendations

Transfer this function to local governments, who should be responsible for sample collection and analysis

Privatise Department s surface water testing laboratory in Lahore.

3.8 Research and Laboratory Testing

The research function performed by the Department is not for scientific or academic purposes. Rather, it is limited to conducting various types of tests in its laboratories and making their analysis available to the Department.

3.8.1 Activities

Following activities are performed as part of this function.

3.8.1.1 Physical Modelling

The Directorate of Hydraulics conducts physical modelling to optimize the design of hydraulic structures (dams, bridges, spillways, barrages, river training and flood protection works) on the basis of model studies. This work is carried out in the Irrigation Research Institute (IRI), Nandipur, which is a large and expensive activity in terms of operational cost and human resources.

Carrying out physical modelling of mega structure is a highly specialised job, which requires sophisticated machinery and technical expertise. IRI is the only operational facility in Pakistan to carry out such modelling. No wonder that all major organizations involved in mega civil projects (e.g. Oil and Gas Development Corporation, Lahore Development Authority, WAPDA, National High Way, Communication and Works Department, Flood Control Commission, Pakistan Railway and Irrigation Departments of Sind and Khyber Pakhtoon Khwah) are its clients. In past, IRI also provided services to international clients from Africa and the Middle East. In the recent past, however, its workload has declined significantly and it conducts on the average about 20 physical modelling studies per annum. This calls for an objective evaluation of the market demand, based on which the Department should determine the optimal human resource requirement for IRI.

Partly, declining demand is due to the use of old techniques and instruments by IRI in its modelling work. Over the years, several new modelling techniques have been developed, which require less space and time. It is essential to develop IRI s capacity to conduct latest tests in the most efficient manner. For this, IRI will need to build the capacity of its human resource, as well as acquire modern instruments and equipment.

The physical modelling facility is working as a laboratory, rather than a research entity. Its work is not to create new knowledge or devise new solutions, but to test a job physically under given parameters and compile results as a report. The utility of this facility would increase significantly if its scope is expanded to undertake research on design issues. For this, it will need to establish linkages with engineering universities and technical institutes.

Another key activity to check the physical strength of structures to withstand pressure under given conditions is numerical modelling for hydraulic structures. It complements findings from physical modelling and is an important component of the testing process. Presently, IRI is limited to physical modelling with no experience and expertise in numerical modelling, which is carried out in engineering universities and by private sector consultants in Pakistan. IRI should enhance its scope of work by offering numerical modelling in its laboratories.

IRI charges nominal rates from external clients and its total revenue from physical modelling is around Rs. 1 million per annum. It should be noted that even a five-fold increase in rates will not cover one-month s staff salaries at IRI. There is a strong case for upward revision of rates. To become self-sustaining, IRI will have to achieve economies of scale, which will be possible only if it can attract significantly larger number of clients from inside Pakistan and abroad. IRI must learn to survive in a competitive environment.

Recommendations

Retain physical modelling function in the Department.


40

Increase staff capacity and modernise equipment to help it regain its lost clientele in the international market.

Develop facility for numerical modelling.

Develop a new business model for the Institute to help it survive in a competitive environment.

Enhance rates for modelling services.

Objectively evaluate market demand for services; rationalize staff according to the workload.

3.8.1.2 Land Reclamation Research

One of the earliest functions that the Department has performed since 1945 is to undertake research and to take (biological and chemical) measures for the reclamation of salt-affected soils. Through its Directorate of Land Reclamation (DLR), the Department is operating nine reclamation research stations spread over a cultivable area of 4,102 acres. These farms are cultivated through Departmental staff or through tenants. The objective is to conduct on-farm research on reclamation of salt affected soils.

The research performance of these stations has been less than satisfactory. So far they have failed to conduct basic or applied research that could enable them to develop soil reclamation solutions. There are several reasons for such less than satisfactory performance.

Several agriculture universities in Pakistan have set up soil sciences units, which conduct regular research to find solutions to various soil quality problems. Similarly, several private companies are marketing numerous solutions to help the farming community overcome salinity problems in their fields. This has gradually made the role of reclamation research stations rather redundant.

Agriculture Department is also doing some work on salinity control in its Soil Salinity Research Institute at Pindi Bhattian and in the Soil Fertility and Soil Testing Institute, Lahore. The Agriculture Department has a competitive edge here, as its extension agents can rapidly disseminate knowledge generated by its research stations.

Recommendations

Disband research stations and liquidate assets (mainly land); adjust staff from research stations in new divisions proposed to be established in this report.

3.8.1.3 Operations of Niazbeg Research Centre, Lahore

Another research facility is the Niazbeg Research Station for studies on soil physics, tube wells and canal lining. The centre is almost dysfunctional. Its research activity is negligible and large part of the Station has been converted into a housing colony for Department s staff.

Recommendations

Close down the Station

3.8.1.4 Laboratory and Field Testing Services

DLR and the Physics Directorate run several laboratories, which offer services for soil and water testing and engineering material testing. They also provide testing facility related to geo-membrane, geo-synthetics and polyethylene sheets to be used for canal lining. Mostly these facilities cater to internal needs or to various I&P Department projects; consultants or contractors of the Department are not bound to utilize this facility.

Several private firms, universities and other public sector organizations have developed sophisticated facilities for similar tests. Soil and water testing labs are currently operated by the following: Punjab Health Department, Punjab Highway Department, WAPDA, all universities (e.g. Soil Testing Lab of Engineering University Lahore) and the Road Research Institute. Water and chemical test facility is available with the following: Punjab University, Pakistan Council for Scientific and Industrial Research and WASA. Plastic Institute Karachi is doing membrane tests.


41

These organisations have the required capacity, expertise and experience to provide reliable services in a competitive environment. No wonder, the business of Physics Directorate has declined to 20% of what it used to be ten year ago.

Recommendations

Merge DLR and Physics Directorate laboratory facilities to remove duplication.

Retain only those testing facilities in the Department that are: 1) not available elsewhere; or 2) the volume of work is large enough to justify operating own facilities.


Appendix A: Semi-Structured Interview Guide


43

Semi-Structured Interview Guide

Interview Date:

Name of the office:

Name of parent office/Department, if any:

Name(s) of attached and/or subordinate Departments/offices/agencies, if any:

List of key functions performed by this office:

List of Laws and Rules directly applicable to the discharge of functions in this office:

Is there any policy governing/guiding the discharge of functions? (If yes, please procure)

How does this policy correspond to other Departmental or governmental policies/frameworks?

How do these functions contribute to the achievement of overall Departmental goals and objectives?

Is there a strategic plan or a work plan for this office? (If yes, please procure).

If the current staffing is inadequate, what are major reasons for such sub-optimal staffing?


44

Key capacity constraints in discharge of functions:

When was the last capacity assessment of individual and organisational skill levels carried out?

Major recommendations from this capacity assessment:

Current capacity development activities:

If this office collects revenue, is there another office in this or another Department that can assess/collect this revenue more efficiently?

Will revenue generation improve if some of the above functions are performed by or in partnership with the private sector? If yes, what can be the modalities of such partnership?

Which other functions (including support functions) must be performed by this Department or by another Department to enable an efficient discharge of this function?

What else must be done before the output of this function can reach the end-user?


45

Function/Activity Type Frequency Output Client

Function/Activity Who else has the capacity to perform this function?

Who else is performing this function in the public/private sector?

Function/activity Procedures/practices/rules/capacity/infrastructure that enables this function

Procedures/practices/rules/capacity/infrastructure that constrain this function

Function/activity Prior functions/activities that must be performed before this function can be discharged

Other functions to which this function/activity contributes


46

Function/activity Does it generate revenue Will revenue generation improve if the function is performed by another office or by the private sector?

Function/activity Key performance indicators Frequency of data collection

Position Job description exists Last date of revision


47

Appendix B: List of Documents and Reports Reviewed


48

List of Documents and Reports Reviewed

1. Irrigation Sector Overview, Performance and Monitoring Framework and Budget by Dr. Bagh Ali Shahid 2011

2. Scheme for Transfer of Irrigation Management (Farmers Organizations in Punjab) Updated April 2005 by Punjab Irrigation and Drainage Authority (PIDA)

3. Brief on Punjab Irrigations Department October 2003; by Government of the Punjab (Irrigations & Power Department)

4. Right Sizing of Irrigation & Power Department by Engr. Muhammad Shafi Chaudhary Consultant PIDA

5. Institutional Reforms in Irrigation Sector of Punjab, Pakistan (April 2000); by PIDA and International Water Management Institute (IWMI)

6. Proceedings of Participatory Irrigation Management Seminar (1994); Ministry of Water & Power Pakistan and Economic Development Institute World Bank

7. Participation in Irrigation (1995) by Environmentally Sustainable Development (The World Bank)

8. Addressing the Emerging Challenges of Water Sector: Policy Framework and Strategic Interventions (2000) by PIDA

9. Groundwater Management and Regulation in Punjab (2006) presentation 10. Water Sector Vision & Strategic Action Plan (2005) by Irrigation & Power Department 11. Sector Overview: Irrigation Sector Overview Challenges and Initiatives; Briefing to the Chief

Minister (2008) 12. A Framework for Assessing Irrigation Performance by Leslie E. Small & Mark Scendsen

(International Food Policy Research Institute) 1992 13. Study on Reducing Government Liability, Effective performance of Irrigation Departments &

Use of Abiana for Increasing Farm Output by Associated Consulting Engineers (ACE) 1994 14. Towards Environmentally Sustainable Agriculture in the Indus Basin Irrigation Systems by

International Irrigation Management Institute Lahore (1998) 15. Study on Institutional Issues Regarding Provincial Irrigation Department Punjab by Mazhar Ali

(1987) 16. Privatization and Commercialization of Canal Irrigations System by Engineer Mazhar Ali,

Engr. CM Ashraf, Engr. Hafeez Ullah, Engr. Malik Ahmad Khan (Irrigation & Power Department)

17. Punjab Commission on Agriculture: Recommendations by Land Utilization & Irrigation Sub Committee 1994

18. Indentifying Comprehensive Strategies / Options for Improving the Irrigations Infrastructure & Its Management (Irrigation and Power Department) 1999

19. Participatory Management for Agricultural Water Control in Vietnam: Challenges & Opportunities by Bryan Bruns 1997

20. Consultation Paper Framework for Action for Achieving the Pakistan Water Vision 2025 by The National Coordinator for Framework for Action

21. An overview of Irrigation in Pakistan by Badruddin by International Irrigation Management Institute Pakistan 1993

22. Land & Water Productivity Trends Across Punjab Canal Commands by Zubair Tahir IWMI 23. Expert Consultation on Irrigation water Delivery Models by Makin and J.C. Skutsch (FAO)

1993 24. Irrigation Management Strategies for Improving the Performance of Irrigated Agriculture by

Madar Samad (International Irrigation Management Institute Sri Lanka 1992 25. Case Study on Agriculture Department of Punjab Province by Mushtaq Ahmad Gill

(International Irrigation Management Institute Lahore 1998


49

26. Farmers Participation, Empowerment and the Institutional Reform of Pakistan s Irrigation & Drainage Sector Key Concepts and Farmers Perception by Ralf Starkloff and Waheed Uz Zaman by IWMI 1999

27. Punjab Irrigation Department (a brief note) 28. World Bank Country Water Resources Assistance Strategy 29. Notification no OSD/L&WD/10/2002-II The Punjab Irrigation & Drainage Authority Farmers

Organization Rules, 2010 dated 21st December, 2010 30. Notification no OSD/L&WD/06/(98-III The Punjab Irrigation & Drainage Authority Area Water

Board Rules, 2010 dated 21st December, 2010 31. Notification no SO (Cab -1) 2-3/2011, The Punjab Gazette March,11 2011 new Rules of

Business, after Creation of new Department Energy Department

32. Report on Human and Institutional Development Irrigation & Power Department by Andleeb Abbas Lahore

33. Working Paper on Functional / Institutional Analysis of Punjab I&P Department 34. Implementation Completion and Results Report on the Sector Development Policy Loans

(Document of the World Bank) 35. Pakistan Irrigation & Drainage Issues and Options (Document of World Bank) 36. Case Study of the Punjab Irrigation Department by Asrar-ul-Haq, International Irrigation

Management Institute (IIMI), 1998


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Appendix C: Legal Regime Governing the Discharge of Functions in the Punjab Irrigation and Power Department


51

Legal Regime Governing the Discharge of Functions in the Punjab Irrigation and Power Department

The Department performs its various functions under a legal framework comprising the following laws, rules and accords. A brief discussion of each of these laws, rules and accords is given below.

The Canal and Drainage Act (1873)

The Punjab Minor Canals Act (1905)

The Soil Reclamation Act (1952)

The Punjab Water Users Association Ordinance (1981)

The Water Accord (1991)

The Indus River System Authority Act (1992)

The Pakistan Environmental Protection Act (1997)

The Punjab Irrigation and Drainage Authority Act (1997)

The Punjab Irrigation and Drainage Authority (Pilot Area Water Board) Rules (2005)

The Punjab Irrigation and Drainage Authority (Pilot Farmers Organizations) Rules (2005)

Area Water Board (Conduct of Business) Regulations 2007

Farmers Organizations (Conduct of Business) Regulations 2007

The Canal and Drainage Act of 1873

The Canal and Drainage Act (1873) is the main legislation relating to irrigation in the Punjab province. In some areas like Rawalpindi, DG Khan, Muzaffargarh, the Punjab Minor Canal Act of 1905 (discussed below) deals with minor canals sprouting mainly from hill torrents. The Soil Reclamation Act of 1952 (discussed below) also excludes to some extent the operation of the Canal and Drainage Act in notified areas. Under section 17 of the Soil Reclamation Act, the Soil Reclamation Board may make overriding provisions regarding irrigation, particularly at the watercourse level.

Under the Canal and Drainage Act, almost the entire irrigation network has been entrusted to the provincial government to be managed through officials of the Irrigation Department and the Revenue Department. Following are the salient features of the Act.

Important policy aspects of irrigation, such as the acquisition of water for public use, fixing water rates, appointing canal officers/committees and framing rules have been entrusted to the provincial government.

Operational functions are entrusted to canal officers. The pivotal role is played by the Divisional Canal Officer (DCO), with some control exercised by the Superintending Canal Officer (SCO). Important matters under the DCO s control include sanctioning new watercourses, providing water from an existing watercourse, transferring watercourses from one person to another, adjusting claims between persons jointly using water or relating to wastage of water, certifying the dues recoverable and deciding appeals against some orders of the Sub-Divisional Canal Officer.

The Sub-Divisional Canal Officer has also been given an important role in irrigation administration. Important matters, such as warabandi and dispute resolution, fall within his domain. He also exercise concurrent jurisdiction with the DCO to sanction new watercourses and to adjust claims from joint users.

The actual fieldwork is done by the Zilladar and the canal Patwari. The canal Patwari, the lowest position in the irrigation hierarchy, measures irrigated land, deals with crop cultivation and assesses water rates for individual owners, etc. The Zilladar supervises the work of the canal Patwari.

The Revenue Department of the provincial government helps the Irrigation Department in a number of areas, including: 1) acquiring land and determining compensation; 2) collecting


52

water dues; and 3) hearing appeals against orders of Canal Officers regarding levying charges for wasting water or for unauthorized use of water. The Collector plays the main role in performing these functions, whereas the Commissioner and the Board of Revenue exercise appellate and revision jurisdiction.

Offences under the Canal and Drainage Act can be tried by Magistrates of various categories.

Disputes between water users, which are initially adjudicated by Sub-Divisional Canal Officers and Divisional Canal Officers, may be taken to civil courts that have the jurisdiction to set aside or modify decisions of canal officers.

Water users are responsible for maintenance, repair, cleaning and improvement of watercourse, as well as for providing crossings at appropriate places.

Irrigation Committees, consisting of three or more local cultivators, can also be constituted by the Government to assist canal officers in dealing with offences under the Canal and Drainage Act.

The Punjab Minor Canals Act of 1905

The major objective of this Act is to make better provision for the control and management of minor canals in certain areas of the province. Section 2 of the Act prescribes that provisions of this Act shall apply to the extent and in manner provided to every canal specified in either Schedule 1 or in Schedule II. Any canal which is not included in Schedule I and II of minor canals Act is, therefore, governed by the Canal and Drainage Act of 1873 (discussed above). Through this Act, the Government has restricted use of water from any natural channel, lake or other collection of water. The Act requires any person desiring to construct a canal intended to be fed from any such channel, lake or other collection of water to obtain prior permission from the Department.

The Punjab Soil Reclamation Act of 1952

The Punjab Soil Reclamation Act was enacted in 1952 to make provisions for the speedy reclamation and improvement of areas damaged by water logging and salinity, and for preventing further damage. Soil reclamation aims at rendering saline and water logged lands free from excessive salts and water respectively as to make them fit for normal cropping. The Punjab Land and Water Development Board was constituted under the soil Reclamation Act of 1952, but it was dissolved in 1973 and its functions were merged with the Irrigation and Power Department. The Board controlled various reclamation schemes (Salinity Control and Reclamation Projects: SCARPS-I, II-A and SCARP-IV Mangtanwala), which had already been completed by WAPDA in Rechna Doab and part of Chaj Doab. Subsequent to the dissolution of the Board, some other completed projects, viz. SCARP-II-B (Chaj Doab), SCARP-III (Lower Thal Doab) and SCARP-IV (Muridke Unit) were handed over to the Irrigation Department for operation/management as per decision of the Federal Government.

The Punjab Water Users Association Ordinance of 1981

The On-Farm Water Management and Water Users Associations Ordinance (1981) provides the framework under which water users can be involved in water management at watercourse level through the Water Users Associations (WUA). It is an effective piece of legislation, as it overrides all other laws in matters covered thereunder. The Ordinance specifies the procedure for the formation and registration of a WUA. More than 50% of water users of a watercourse may form an association and apply to the Field Officer for registration. The Field Officer (Director, On Farm Water Management (OFWM)) has substantial control over these associations; he has the final authority to register, or refuse registration to, a Water Users Association. The Field Officer may also entrust the maintenance of a watercourse to the Association, but this must be carried out to the satisfaction of the Field Officer. The Watercourse Association does not have any management power relating to canal water under this Ordinance.

The Water Accord of 1991

Development of water resources has stagnated since 1976, as no new storage or irrigation project could be constructed after the completion of Tarbela Dam. This stalemate has been largely due to the inability of provinces to resolve their disputes over sharing Indus waters. Signing the Water Accord between the four provinces and the Federal Government in 1991 was a major step towards


53

resolving the longstanding water apportionment disputes, thereby promising to open a gateway for irrigation development in the country. The salient features of the accord include clear definition of provincial shares in the existing river diversions, as well as for future development projects, the establishment of an authority for regulation and distribution of river water to the provinces, the recognition of the need to construct storage for planned future agricultural development, and an agreement between provinces to undertake new projects.

In the Water Accord of 1991, the provinces agreed the following apportionment of water:

(Figures in MAF)

Province Kharif Rabi Total

Punjab 37.07

18.87

55.94

Sindh* 33.94

14.82

48.76

NWFP (a) (b) Civil Canals**

3.48

1.80

2.30

1.20

5.78

3.00

Balochistan 2.85

1.02

3.87

77.34

+

1.80

37.01

+

1.20

114.35

+

3.00

* Including already sanctioned Urban and Industrial uses for Metropolitan Karachi

** Un-gauged Civil Canals above the rim stations

The Indus River System Authority Act of 1992

Indus River System Authority (IRSA) was established in 1993 through an Act of the Parliament. The Authority was established for regulating and monitoring the distribution of water sources of the Indus River System amongst the provinces in accordance with the provisions of the Water Accord of 1991. The Authority comprises five Members, one each to be nominated by provinces and the Federal Government. One of the Members acts as Chairman in rotation. The term of office of the Chairman is one year, whereas Members hold the office for three years. All decisions are taken by the views of the majority of its Members and such decisions are final and binding upon WAPDA and the provinces. Any provincial government or WAPDA, if aggrieved by a decision, can make a reference to the Council of Common Interests.

The Pakistan Environmental Protection Act of 1997

The Pakistan Environmental Protection Act is a comprehensive piece of legislation that deals with pollution of air, water and soil. Although the scope of this Act is broad, certain provisions specific relate to the working of I&P Department. For example, Section 11 prohibits discharge of any affluent or waste in a quantity more than what is prescribed by the Act or any other legislation in force for the time being. It also authorizes the Federal Government to levy a charge on such pollution. Since most of such affluent or waste would ultimately find its way into the irrigation or drainage system, this section is important for the Department. Similarly, section 12 deals with environmental impact assessment, which has now become mandatory for any project (including irrigation reservoirs) to consider likely environmental impacts before commissioning the project.

The Punjab Irrigation and Drainage Authority Act of 1997

The Punjab Irrigation and Drainage Authority Act of 1997 has substantially changed the organizational set-up of the Irrigation Department. The Act provides for the establishment of the Punjab Irrigation and Drainage Authority as a body corporate. The management of the Authority s affairs has been vested in the Board of Management, appointed by the Authority with the approval of the Provincial Government. The Authority has been vested with vast powers relating to drainage and irrigation in the Province. All powers available under the Canal and Drainage Act (1873), the Soil Reclamation Act (1952) and other laws relating to these subjects have been entrusted to it. Control over all the water resources in the province subject to the Indus Water Treaty (1960) and the Water Apportionment Accord (1991) has been given to the Authority. The Authority is required to formulate, adopt and implement policies for the promotion, formation and growth of Area Water Boards at the canal level and Farmer Organizations at the distributary and


54

minor levels. Another important function performed by the Authority is to operate and maintain irrigation tubewells, drainage, storage reservoirs and flood control infrastructure in the province including hill torrent control and development works for irrigation of adjoining lands including watershed management practices in catchment area.

The Punjab Irrigation and Drainage Authority (Pilot Area Water Board) Rules (2005); The Punjab Irrigation and Drainage Authority (Pilot Farmers Organizations) Rules (2005); Area Water Board (Conduct of Business) Regulations 2007; Farmers Organizations (Conduct of Business) Regulations 2007

As a sequel to the PIDA Act of 1997, the Punjab Government legislated the above four set of Rules to implement various provisions of the Act. These Rules deal with setting up and operation of Area Water Boards and Farmers Organizations. They specify the composition of Boards in each case and the procedures which they will follow in discharge of various functions. These Rules have also been amended from time to time.


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Appendix D: List of Persons Met


56

List of Persons Met

Sr. Designation and Organization

1 Chief (Strategic Planning and Reform Unit), I&P Department

2 Chief Engineer (Lahore Zone), I&P Department

3 Chief Engineer (Research), I&P Department

4 Chief Engineer (Development), I&P Department

5 Chief Engineer (Drainage and Flood), I&P Department

6 Chief Engineer (Planning & Review), I&P Department

7 Chief Program (Monitoring and Implementation Unit), I&P Department

8 Project Director (Barrages), I&P Department

9 Project Director (LBDCIR), I&P Department

10 Project Director (PISIP), I&P Department

11 Principal (Engineering Academy), I&P Department

12 Director of Studies (Engineering Academy), I&P Department

13 Additional Secretary (Admin), I&P Department

14 Additional Secretary (Budget), I&P Department

15 Additional Secretary (Operation), I&P Department

16 Additional Secretary (Technical), I&P Department

17 Director Land Reclamation, I&P Department, Lahore

18 Director, Strategic Planning and Reform Unit, I&P Department

19 Director Kalabagh Lahore, P&R, I&P Department

20 Senior Economist, P&R, I&P Department

21 Director (Regulation & Indus Water Treaty), I&P Department

22 Superintendent Engineer (Mechanical) Lahore, I&P Department

23 Superintendent Engineer (Machinery) Lahore, I&P Department

24 Superintendent Engineer (Drainage Circle) Lahore, I&P Department

25 Superintendent Engineer (Depalpur Circle) Lahore, I&P Department

26 General Manger (TM) PIDA, Lahore

27 Deputy General Manger (Finance) PIDA, Lahore

28 Project Director Small Dams Organizations, Islamabad, I&P Department

29 Principal Research Officer (Hydraulic) IRI, I&P Department

30 Principal Research Officer (Physics) IRI, I&P Department

31 Collector Lahore Zone, I&P Department

32 Executive Engineer (Chakwal Division), Small Dams Organizations, I&P Department

33 Executive Engineer (Jhelum Division), Small Dams Organizations, I&P Department

34 Executive Engineer Operations (Development Zone), I&P Department

35 Executive Engineer (Rachna Drainage Division) Sheikupura, I&P Department

36 Executive Engineer (Lahore Drainage Division), I&P Department

37 Executive Engineer, Hakra Division, Bahawlnagar


57

38 Manager Finance, PIDA, Lahore

39 Sub Divisional Officer (Faqir Wali Sub Division), Bahawalnagar


59

Appendix E: Filled Questionnaire (Appropriateness Test for Recommendations)


60

Activity/Function: Developing the Water Reservoirs & Command Area

Key Question Response Comments/Details

1. What type of function is it? Support; Service Delivery

2. Is there a demand for the function? Yes

2 (A) Is the function required to protect public (safety, economic, social)

To some extent It improves livelihoods.

3. Does the function support the Department s strategic objectives?

Yes Strategic goal is to meet water shortage problem

4. Is the function required by national, international law or constitution?

No

5. Are the public willing to pay for the services?

Yes

6. Are there possible suppliers or could they be created?

Possibly NGOs can step in but only in relatively smaller dams

7. Would an unacceptable monopoly situation exist?

To some extent Only I&P is operating small dams; ABAD operates mini/micro dams.

8. Would the price or quality of the function need to be regulated?

Yes

9. Can the function be transferred to another body?

Yes WAPDA or ABAD or CDA can take over some of the existing dams

10. Can the function be reduced in terms of quality or volume with acceptable risk?

No Livelihood of the area would be at stake

11. Can the function be merged with another to provide economies of scale?

No

12. Can the function be decentralised to improve effectiveness?

Yes After construction, small dams can be handed over to local communities

13. Would it be cost effective to decentralise? yes

14. Can the function be charged for without inequality of service?

No

15. Are the public willing to pay? Yes

16. Can charges cover costs? Yes Capital cost can t be recovered but operational is easily possible

17. Can subsidy be granted? No Only Capital amount is sufficient to provide

18. Is it profit oriented? Not now It could be in the long run, when crops pattern of area is totally changed and demand of water increase considerably

19. Can the function be delegated from the central Department?

No Already Project Director has most of the power


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Activity/Function: Construction, Operations & Maintenance of Irrigation Engineering Structure & Distribution of Canal Water


1. What type of function is it? Service Delivery

2. Is there a demand for the function? Yes Day by day demand is increasing


Yes Economy of Punjab is dependent upon it


Yes Punjab has water based economy


No


Yes


No


Yes I&P Department is state monopoly


Yes


Possibly Not to any state run body but to Farmers Organizations


No It should be enhanced


Some parts Some activities of I&P Department can be merged with WAPDA, such as designing, survey, research, etc.


Yes Under some business model, it can happen

13. Would it be cost effective to decentralise? Possibly Depending up model to be followed


No


16. Can charges cover costs? Yes Operational & Maintenance cost can be covered easily

17. Can subsidy be granted? No

18. Is it profit oriented? No It has potential to become profit oriented


Possibly Devolving the power to lower hierarchy is possible

Activity/Function: Control of Water Logging & Salinity (Operation & Maintenance of Tubewells)



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1. What type of function is it? Support; Service Delivery



Yes


Yes


No


No It is public good/collective benefit.


No No income possible SCARP tubewells


No Anybody can install tubewell but individuals are not interested due to cost factor, and owing to no use of saline water


No People are not ready to pay


No Nobody is willing to acquire tubewells in saline water zone.


No


No


No

13. Would it be cost effective to decentralise? No


No

15. Are the public willing to pay? No

16. Can charges cover costs? No

17. Can subsidy be granted? Not applicable Public is not paying

18. Is it profit oriented? No


No Lower staff has considerable power to operate these

Activity/Function: Control of Water Logging & Salinity (Planning, Construction, Operation and Maintenance of Horizontal Drainage System )


1. What type of function is it? Service delivery



Yes

3. Does the function support the Department s Yes


63

strategic objectives?


To certain extent

Proper disposal of industrial and municipal waste is required by environmental laws.


Possibly For drains, carrying industrial or municipal effluents, public is willing to pay


No


No


Yes Treatment plant should be ensured, and charges be levied with respect to volume


To certain extent

Those drains, that falls within cities or industrial areas can be transferred to other bodies


No


No


Possibly Water logging area drains can not be decentralized but Small drains carrying industrial or municipal effluents can be handed over to local bodies/agencies/user groups

13. Would it be cost effective to decentralise? No Every agency has to deploy staff and machines


No

15. Are the public willing to pay? Yes/No Willing to pay only for drains carrying industrial and municipal effluents, for other drains, not willing to pay

16. Can charges cover costs? Yes/No only for drains carrying industrial and municipal effluents

17. Can subsidy be granted? Yes It is public service



No

Activity/Function: Control of Water Logging & Salinity (Thur Gardavari

Salinity Survey)


1. What type of function is it? Support

2. Is there a demand for the function? No


No The output of this activity is not being used anywhere.


64


No


No


No


No


No


Not Applicable


No


Yes


Yes Can be merged with land surveys or census


Yes Even commercial companies can do it to assess their market size for salinity products

13. Would it be cost effective to decentralise? May be


Not applicable



17. Can subsidy be granted? Not applicable



No Already a director level person is managing it, who reports to Secretary

Activity/Function: Flood Control


1. What type of function is it? Service Delivery



Yes


Yes Flood can damage the irrigation structure


No


No The benefit is generalised (i.e. not individual-specific)

6. Are there possible suppliers or could they No


65

be created?


Yes Government has its own flood water plan, and people can t independently construct obstruction in the way of flood water


No


Yes 18 government agencies are working on flood control. Can be transferred to one of these agencies (e.g. WAPDA)


No


No


No



No



17. Can subsidy be granted? Not applicable



No Cohesive intra-provincial and inter-agency coordination is essential

Activity/Function: Operations of Machinery and Workshops (Workshops)



2. Is there a demand for the function? Yes Limited demand from I&P Department and from other provinces Irrigation Department


No


Yes (but only indirectly)


No


No I&P Department is its client.


Yes A number of private sector workshops are providing several services.


No Anybody can open with moderate investment


66


No


Yes Can be transferred to private sector


Yes


Yes Workshop has unique set-up, can be merged with other workshops. Heavy Complex Taxila is one example


Yes Can be transformed into independent autonomous business entity



Yes


16. Can charges cover costs? Yes Provided that it is managed in a professional way


18. Is it profit oriented? No But it can become profit oriented


Yes But performance be measured under profit and loss statement

Activity/Function: Operations of Machinery and Workshops (Machinery)



2. Is there a demand for the function? Yes I&P Department is the only major client


No


No Indirectly serving but not directly


No


Yes I&P Department is its client, but the services are not being offered to general public.


Yes A number of private sector service providers; more can be created.


No Anybody can operate with moderate investment


No

9. Can the function be transferred to another Yes Can be transferred to private


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body? sector


Yes


Yes Other government Departments also has machinery pool, can be merged with other Departments machinery pool such as NHA/C&W etc.


Yes Can be transformed into independent autonomous business entity



Yes


16. Can charges cover costs? Yes Provided that it is managed in a professional way


18. Is it profit oriented? No But it can become profit oriented


Yes But performance be measured under profit and loss statement

Activity/Function: Ground Water Management & Surface Water Monitoring


1. What type of function is it? Policy/Regulatory

2. Is there a demand for the function? Yes From public as well as government


Yes


Yes Ground water management is part of overall water sector strategy


Not required by law

EPA rules for water quality monitoring is applicable


Yes To certain extent, companies and public are willing to pay for water sampling and testing.


No


No Many organizations such as Public Health, WASA, etc. are also doing these activities, but their geographic coverage is limited.


May be Can be regulated to the extent of testing of water. In future, installation of tubewells can also be regulated.


68


To certain extent Can be transferred to the Agriculture Department or to the Public Health Department


No


Yes Can be merged with other government agencies working on water quality management


No Ground water management is in evolving stage, so at this stage, decentralization is not viable



Yes Charges can be levied on lab testing of samples and on installation of new tubewells to extract ground water.

15. Are the public willing to pay? To certain extent


17. Can subsidy be granted? Yes

18. Is it profit oriented? No It is public service


No Centralized policy and control is required at this stage

Activity/Function: Research & Lab Tests (Physical Modelling)





Yes For safe infrastructure, it is essential


Yes It support to construct Irrigation infrastructure, which is essential to achieve Department goals


No


Yes Government agencies, construction companies other entities are willing to pay


No/Yes Such facility can be opened by universities or other agencies


Yes At present, this is the only functional facility


Yes


69


Yes WAPDA is willing to take over


To certain extent The workload has decreased considerably in previous years


No


No Already it is a part of Irrigation Research Institute

13. Would it be cost effective to decentralise?

No


Yes

15. Are the public willing to pay? Not applicable


17. Can subsidy be granted? Yes Already services are subsidized and charging nominal rates

18. Is it profit oriented? No It can be made profit oriented


No

o Activity/Function: Research & Lab Tests (Land Reclamation Research Station/Niazbeg Research Station /Lab & Field Testing)



2. Is there a demand for the function? No Lab tests are in demand but many service providers are providing these services.


No


No


No


Yes Government agencies, construction companies other entities are willing to pay


Yes Such facility can be opened by private sector, universities or other agencies


No At present, many organization and universities have such facilities


Yes

9. Can the function be transferred to another Yes Function can be transferred to


70

body? universities


To certain extent

The testing workload has decreased considerably in previous years


No


May be Testing facility can be made commercial autonomous entity

13. Would it be cost effective to decentralise? Yes


Yes

15. Are the public willing to pay? Yes Clients of testing services are willing to pay, but not for research work

16. Can charges cover costs? Yes/No Yes in testing facility but not in research

17. Can subsidy be granted? Yes Already services are subsidized and charging nominal rates

18. Is it profit oriented? No It can be made profit oriented


No It is centralized unique facilities

Activity/Function: Policy, Planning, Monitoring & Management


1. What type of function is it? Policy/Coordination/Support

2. Is there a demand for the function?

Not applicable


Yes The policy and legal framework should reflect need for public safety /economic growth/Livelihood


Yes


No But required by mandate, I&P Department has in water sector


No


No


No


No


No

10. Can the function be reduced in No


71

terms of quality or volume with acceptable risk?


No


No

13. Would it be cost effective to decentralise?

No


No






No It is core central Department function


72

Appendix F: Functional Review Matrix


73

Functional Review Matrix

Function Activity Type Responsibility Output Outcome



Policy

Chief SPRU

CE (Planning and Review)

Policy papers

Strategy documents

Reports

Research Studies

Improved management of water resources


Coordination

PMO in CE (P&R)

Director Engineering (SPRU)

Data tables

Reports

Visit reports

Inspections notes

Improved resource utilisation

Improved service delivery

Improved management of infrastructure

Preparation of ADP/PSDP Schemes Support

AS (Technical)

EX EN/SE/CE

Secretary

PC-1 of Schemes

Schemes Approval

Better Planning of construction, repair and maintenance of irrigation structures



Support

AS (Budget)

EX EN/SE/CE

Secretary

Annual Budget

Supplementary budget

Optimal resource utilization

Financial prudence


Support

Regulatory

DS (Admn)

AS (Admn)

CEs/ Directors/ SEs

Posting/Transfer

Promotion

Training

Efficient service delivery

Availability of capable human resource to run I&P Department

Construction, Operations and Maintenance of Irrigation Engineering Structures and Distribution of Canal Water


Service Delivery

Director Regulation

Zonal CEs/SEs/EX ENs/SDOs

Equitable distribution of water among irrigators

Increase in agricultural production


Service Delivery

Zonal CEs/SEs/EX ENs/SDOs

AS (Technical)

AS(Budget)

Improved flow of water

reduced losses

More water availability even at tails

Assessment of Abyana Regulatory

Revenue Generation

Patwari/Ziladar

Deputy Collector/Collector

EX EN

Dhal Bach (Assessment Sheet)

Improved revenue generation


74



Service Delivery

Ziladar

Deputy Collector/Collector

EX EN

Water availability to industry and business

Dhal Bash (Assessment Sheet


Revenue Generation

Dispute and Conflict Resolution Service Delivery

Patwari/Ziladar

SDCO/DCO

Decision

Reduced litigation

Smooth distribution of water

Asset Management Support

SDO/EX EN/SE/CE

Secretary

AS (Operations)

Asset management plan

Inventories

Productive use of assets


Service Delivery

SDO/EX EN

Trees

Improved environment

Revenue generation

Execution of Projects Coordination

Project Director

Secretary

Completed projects

Efficiency enhancement




Support

Project Director Small Dams

Report & Design

Selection of appropriate site and efficient design


Service Delivery

Project Director Small Dams

Dams

Efficient and effective water distribution to irrigators

Improved livelihood by better availability of irrigation water


Service Delivery

Project Director Command Area

Leveled land

Lined water course

Improved livelihoods



Service delivery

SDO/EX EN/SE/CE (SCARP)

Functioning tubewells

Reduction in salinity and water logging

Increased agricultural production


Support

EX EN of Workshop

SE (Mechanical)

CE (Dev)

Well-maintained pumps and motors

Regular operations of tubewells

Increased agricultural production


Service delivery

SDO/EX EN (Drainage)

SE (Drainage)

Zonal Chief

Functioning drains

Reduced water logging

better crops


75



Support

Assistant Reclamation Officer/LRO

DLR

Estimate/Database of Saline and water logged land

Better planning for salinity control

Flood Control

River Survey and Flood Warning

Support

Service delivery

SDO River Survey/EX EN River Survey

Director Flood

CE (D& F)

Reports and data about flood

Reduced loss of lives, property and infrastructure


Planning

Service delivery

SDO/EX EN/SE/Zonal CE

Director Floods

CE (D& F)

Flood protection structures

Improved flood control

Reduced loss of life and property

Operations of Machinery and Workshops

Operations of Workshops Support

SDO (Workshop)/EX EN Workshops

SE (Mechanical)

CE (DEV)

Fabrication and repair of gates and gears of headworks

Repair and maintenance of pumps/vehicle/excavators

Operational irrigation infrastructure

Operational tubewells, machines

Operation and Maintenance of Machinery Support

SDO (Machinery)

EX EN Machinery/SE (Machinery)

CE (DEV)

De-silting/Earth Work/Clearance of Beds of Canal & Drains

Filling the cuts and breaches of canals/rivers in emergency

Regular repair and maintenance of irrigation channels/drains/river work

Damage Control in case of emergency


Ground Water Management Service Delivery

DLR

Director GW/Physics Directorate

Report

Strategy papers

Sustainable availability of ground water

Surface Water Monitoring Service Delivery

DLR/ Physics Directorate

Report

Strategy papers

Safe water for drinking and agricultural purposes

Research and Lab Tests

Physical Modeling Support

Hydraulic Directorate/CE (Research)

Test results

Reports

Safe structures

Revenue Generation

Land Reclamation Research Service Delivery

DLR

Secretary

Field Demonstration Awareness

Dissemination Crops

Reclamation of areas from salinity


Support

Physics Directorate

Reports

Improved techniques

Studies on soil physics, tubewells and canal lining


Support

DLR/Physics Directorate

Tests Reports

Safe structures


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Revenue Generation

Operation of Engineering Academy Training of Human Resource Support

Principal

Trained human resource

Better managed irrigation system


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