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Box 3.2.: Climate change - water sector, and further steps for Central Asia and Tajikistan
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- CHAPTER - 3 56 3.1.9. WRM S ECTOR PERFORMANCE
- 1990-91 Water fees were introduced on a trial basis for the over expenditure of water, but after the collapse of the USSR, this reform loosened. 1996
- Box 3.3. Water and Transboundary Issues
- 2015 New water reform program was adopted The Water Sector Reform Program clearly highlights the need to continue to clarify institutional
- Access to services has generally seen an improvement but much remain to be done
- Table 3.3 Progress of Water sub sectors in major functions Function Progress Sector management (including planning)
- Development of water resources
- CHAPTER - 3 58 A number of ongoing reforms will have an impact on WRM and budgeting of the sector
- 3.2. P RINCIPLES OF IWRM AND P ROPOSED I NSTITUTIONS AT BASINS AND SUB
- CHAPTER - 3 59 3.2.1. R IVER BASIN COUNCIL ( RBC
- 3.2.2. R IVER BASIN ORGANIZATION ( RBO )
- Picture 3.1 Territorial division of Tajikistan to River basins
- CHAPTER - 3 62 3.3. P UBLIC EXPENDITURES
- Public expenditures in WRM are primarily limited to salaries and goods/services.
- There are distinct differences in terms of sub-sector public expenditures in WRM
Box 3.2.: Climate change - water sector, and further steps for Central Asia and Tajikistan Experts have long debated the potential serious conflict over diminishing water resources in the region. The most important condition for stability, as well as favourable prospects for the development of Central Asia and Tajikistan is accelerating the adoption of measures to reduce wasteful consumption of water and energy, as well as the promotion of sustainable forms of agriculture and transboundary water management - with the full political support of all countries in the region. For Tajikistan, given the limited fiscal base, an important role is also played by the improvement of the business and investment climate if the country is willing to attract foreign and domestic investment in the modernization of the electric power, irrigation and drainage, drinking water supply. An integral part of the reforms is the liberalization of the electricity markets, which inevitably leads to an increase in prices for electricity and water supply (especially heavy burden when it falls on a hygroscopic sector as irrigated agriculture), it necessary to pay due attention to the social provision and ensure that the most vulnerable groups are protected from the effects of climate change. Efforts to promote economic development and to reduce poverty, which are now being developed and implemented in Tajikistan - often with the support of the international community - should reflect this relationship between efforts to mitigate climate change and overcoming poverty. CHAPTER - 3 56 3.1.9. WRM S ECTOR PERFORMANCE From the service delivery point of view, WRM agencies in Tajikistan have been improving. WRM ministries and agencies have been undergoing substantial reforms since late 90s. Driven primarily by the donor-supported projects and initiatives, WRM ministries and agencies have seen a number of institutional reforms both from the public administration point of view (i.e. functions reviews) and from the technical assistance point of view (the creation of WUAs, billing systems, debt resolution, strengthening climate resiliency etc.). Some of the most notable institutional reforms that the WRM sector underwent include: 1957 Tajik SSR moved to the «free of charge» use of water for irrigation, but that was adjusted by increasing the land tax. The tax incomes were directed on financing water management organizations supplying water to collective and state farms. On-farm irrigation and collector-drainage network with structures on it was on the state's hands (Ministry of Water Resources of Tajikistan) 38 1970 Next major water reform was implemented. On-farm infrastructure was transferred to the balance of collective and state farms. Infrastructure was managed at the expense of the earned financial resources. Inter-farm infrastructure was managed at the expense of the State, by allocating the state budget funds to the Ministry of Water Resources Tajikistan. Water supply was on a free basis as well. 1990-91 Water fees were introduced on a trial basis for the over expenditure of water, but after the collapse of the USSR, this reform loosened. 1996 Water fees were introduced for the water supplied from state owned irrigation systems to farms. Later, all inter- farm infrastructure that was under collective farms were transferred to the balance of Ministry of Melioration and Water Resources. 2010 Water User Associations law was introduced. In accordance to this law all inter- farm infrastructure should be transferred to WUA. Currently there are 417 WUAs and 409 of them in operation. Only 10 of them is led by women. 2012 On November 2012, the President's Decree № 12 "On improvement of the structure of the executive authorities of the Republic of Tajikistan" was adopted. It laid a ground for the separation of political and regulatory functions of production and economic functions in the water sector with the formation of the Ministry of Energy and Water Resources of the Republic of Tajikistan (Policy management functions) and 38 Irrigation and drainage was on a paid basis till 1956 Box 3.3. Water and Transboundary Issues Tajikistan and Kyrgyzstan are located upstream in the Aral Basin and rivers in these countries flow downstream to Uzbekistan, Turkmenistan and Kazakhstan. Since the Soviet era, water has been shared among the countries of Central Asia. Tajikistan bears some direct cost for this arrangement for example in maintaining the Nurek Dam and there are also indirect costs in terms of revenue foregone from hydro power and irrigation as water is passed through to downstream countries. The way in which water and associated costs are shared by the Central Asian countries has been subject to extensive negotiation and there are a number of governing documents on the subject. The ICWC was established in 1992 to make decisions about transboundary water allocations. Still tensions continue and mediation has been sought at the highest level, for example, with support from UN Secretary-General Ban Ki-moon during his visit to Tajikistan in June 2015. CHAPTER - 3 57 Agency for Land Amelioration and irrigation Agency under the Government of the Republic of Tajikistan (production and economic activity). 2015 New water reform program was adopted The Water Sector Reform Program clearly highlights the need to continue to clarify institutional roles and responsibilities when it comes to water sectors. While many outstanding issues in terms of roles and responsibilities have already been addressed (such as overall responsibility of the MEWR for the monitoring and reporting on the progress under Water Sector Reform Program), number of overlaps, however, still exist in terms of roles and responsibilities within sub-sectors. Access to services has generally seen an improvement but much remain to be done in terms of improving access and coverage of services provided by the WRM institutions. While sub-sector performance (Irrigation and Drainage, Water Supply and Sanitation) in terms of access and coverage is discussed in relevant chapters, overall the following key observations could be made: - In WSS, overall quality and access to water has improved primarily in urban areas. Much remains to be done in rural areas and more so on sanitation - In Irrigation and Drainage, overall situation has improved with more tangible results in Sughd area thanks to the support from the government of the region. - Tendency is observed to invest into new projects with less so to existing infrastructure in Irrigation and derange - Projects funded by donor community experiment with various new models of sales and billing piloted by service providers in the WSS sector. - Soghd oblast is observed to be more progressive in terms of the service provision in WSS sector. As described earlier, any WRM system should be capable of delivering the following key functions: (i) management (including planning); (ii) development; (iii) distribution; and (iv) safeguarding the use of water resources. Progress of the WRM in Tajikistan along this functions is briefly presented in Table 3.3. Table 3.3 Progress of Water sub sectors in major functions Function Progress Sector management (including planning) Capacity to manage water sectors has improved across sub-sectors mainly due to heavy focus on developing sub-sector strategies and programs within NDS, PRSP/MTDP and sector driven reforms. Planning for capital investment program and prioritization and proper costing remains a weak spot Development of water resources New projects in Sughd oblast such as creation of Saykhun city and development of new gardens played a role in creation and rehabilitation of additional infrastructure in I&D. Distribution EBRD and WBG/IDB projects in Khujand and Dushanbe were instrumental in increasing capacity and quality of distribution in two major cities of Tajikistan Safeguarding Overall safeguarding institutions exist and operate within old Soviet system (i.e. water quality, licensing, maintenance) and generally perform relatively well but weakly connected to policy making, poor performed reformed, lack transparency and used mainly as a layer of regulations rather than a driver of reforms. Source: Authors observation from different resources (interviews, site visits) CHAPTER - 3 58 A number of ongoing reforms will have an impact on WRM and budgeting of the sector. While a series of sub-sector reforms are being implemented, two initiatives will have particular importance as they attempt to substantially alter the way that services are offered in WRM: shift toward Integrated Water Resource Management; and the creation of a new Committee for Local Development under the President of the Republic of Tajikistan. Committee for Local Development is created to stimulate activity of local authorities and has the following roles and responsibilities: - Submission of proposals to improve the work of local governments, strengthening their responsibility to the local community; - Proposals and co-ordination of measures to the innovative development of the housing sector and housing and communal services in the field; - Participation in the development of state programs for investment and capital construction in the regions; It is envisaged that creation of committee will enact ability of local authorities to manage water supply and sanitation issues as well as irrigation and derange in a more decentralized and effected manner . 3.2. P RINCIPLES OF IWRM AND P ROPOSED I NSTITUTIONS AT BASINS AND SUB - BASINS IWRM is a modern mechanism of water management. Implementation of this approach is seen as a priority not only in Tajikistan but also in other Central Asian countries. The main provisions of the transition to IWRM in river basins were reflected in the " Agriculture Reform Program of the Republic of Tajikistan for 2012-2020" adopted by the Government of the Republic of Tajikistan on August 1, 2012. The reform of the water sector is recognized as an integral part of the agricultural reform. Thus, the Water Sector Reform Program of the Republic of Tajikistan for 2016-2025 39 is the continuation of a legal and policy framework for the decentralization of the management system and establishing the operational functions and the division of responsibilities between ministries and departments and some non-governmental organizations. In the Water Sector Reform Program priority is given to proper planning of water allocation and development of water resources within the natural flow area of the water resources, as all actions taken in the upstream have an immediate effect on the downstream water availability and quality. Therefore, in the program, it is established that, the river basin, is the best management area for water resources management (article 69, Program 2015). A basin can be defined as “an area that is drained by one river outlet and bordered by the water source upstream and the outflow body (sea or lake) downstream. Ideally, the hydrologic boundaries of aquifers coincide with the basin boundaries; this may not always be the case” (article 69, Program 2015). Responsibility for WRM at the regional level will rest with River Basin Organisations and these will work with River Basin Councils. 39 Government resolution On 30 December 2015 No. 791 CHAPTER - 3 59 3.2.1. R IVER BASIN COUNCIL ( RBC ) The reform of the water sector provides for the establishment of the National Water Council, which will be the highest advisory body of the Government of the Republic of Tajikistan, which coordinate the activities of ministries, agencies and other authorized government agencies for planning, management, use and protection of water resources. Establishment of the National Water Council provided, as amended by the Water Code of the Republic of Tajikistan in April 2012. 40 3.2.2. R IVER BASIN ORGANIZATION ( RBO ) It is envisaged in the Water Sector Reform Program, that in consideration with the hydrological boundaries and criterion 41 outlined in the Program, the river systems in Tajikistan will be divided into four river basins, and where necessary into sub-basins with consequent creation of River Basin Organization and River Basin Council. Territorial division of Tajikistan to River basins as outlined below: Picture 3.1 Territorial division of Tajikistan to River basins Source: Water reform program 1) The Tajik part of Syr Darya Basin consisting of the Syr Darya and its tributaries within the Republic of Tajikistan. As a management unit, the basin of the Syr Darya includes as the sub-basin Zarafshan River Basin in Tajikistan. Both of these rivers are of inter-state importance, and management of water resources of the river is part of the Interstate Commission for Water Coordination in Central Asia (ICWC), (Program, 2015 article 77). 40 Program, 2015, A.91 41 Program, 2015, articles 74-76. CHAPTER - 3 60 2) The Kofarnihon River Basin consists of the river system Kofarnihon and its tributaries Elok, Sarvo, Varzob; the downstream part of the river basin boundaries are formed by the Kofarnihon tributaries. In upstream part of the Kofarnihon river basin a sub-basin the Karatag River is included that crosses the border of Tajikistan and Uzbekistan, and forms the upstream part of the Surkhandarya River Basin (Program, 2015 article 78) 3) The Vakhsh River Basin includes the whole basin of the Vakhsh River and its tributaries, except for the extreme upstream part, which is located in Kyrgyzstan. 4) The Tajik part of the Panj River Basin includes the area of the Panj River and its tributaries located in Tajikistan. The boundaries of the basin to the North and West are the boundaries of the Vakhsh River basin and in the South it is the channel of the Panj River, which also forms the border with Afghanistan. In accordance to the Water Reform Programme it is envisaged that the main functions of RBOs will be the following: Development of an annual plan for the use and protection of water in the river basin; Mid-term and long-term planning of the development and protection of water resources; Monitoring of distribution and quality of water; and proposals on undertaking of the mandatory measures in the case of non-observance of the plans; Development of plans to reduce the effects of drought and flooding and monitoring of their implementation; Monitoring of the state of the riverbanks and works related to their protection from flooding and determination of repairs needed at the level of basins and sub-basins. It is expected that activities of RBOs in the first 2-3 years will be organised in form of working groups consisting of the stakeholders at the basin level and through the “Basin Dialogue” platforms supported by the development partners. Following approval of state budget, these working groups will be transformed into ROBs under the MEWR and financed from the state budget. In addition to the above, the following specific responsibilities of the RBOs will also include the following: Develop seasonal, mid-term and long-term water resources development and protection plans and basin development programs; Monitor water distribution and water quality and propose (binding) measures in case of deviation from the plans; Quality control, oversight and backstopping of service providers in water distribution and effluent collection, including sewage water; Create and maintain records of licenses for water use and discharge of drainage water (effluents), dissemination of water distribution information among stakeholder organizations; Coordination of organizations and water users and resolution of dispute among them. CHAPTER - 3 61 The main functions of the River Basin Council will be: Review of and recommendation on the seasonal distribution of water between different users; and review and recommendations regarding the medium and long-term plans for the development of the basin water resources; Consultation with RBO and other stakeholders on the feasibility of implementation of basin plans; Expression of opinion on various issues related to management, distribution, use, and conservation of water resources and water quality; Provision of assistance to and conflict resolution between stakeholders and water users, WUA and their federations. The River Basin Councils in all four river basins (Syrdarya, Kofarnihon, Vakhsh and Panj) and, if necessary, in the sub-basins will be created. The RBCs will be the platform of the various stakeholders in the water sector. The RBC has the right to access to information, to participate in decision-making on water resource management. RBC represents the interest of all water users and stakeholders, and will also include representatives of the civil society interested in water management. The most important task of the RBC is to provide appropriate recommendations to RBOs on use, protection and development of water resources, effective control of its use and its protection. Other functions of RBC include: Data collection on water distribution, water supply and its quality for development of the annual plans and proposals on improvements; Collection of views of interested parties on: (1) the management and regulation of water resources; (2) the distribution of water; (3) water quality; (4) the quality of the service, and provision of information to the RBO; Support and recommendation to resolution of disputes among water users or groups of water users. The detailed structure of the RBC shall be identified and determined during its creation but would be composed of representatives of the different categories of water users and civil society. The RBC will carry out its activities in accordance with approved charter. As the transition to IWRM is a long-term process, RBCs can also provide a platform for policy dialogue on IWRM at basin level. CHAPTER - 3 62 3.3. P UBLIC EXPENDITURES , BUDGET ALLOCATION , EXECUTION AND EVALUATION Direct expenditures in WRM sector are difficult to estimate. Obtaining compatible historical data on public expenditures in WRM is rather difficult given the multitude of reforms that have been affecting ministries/agencies. This task is further complicated by the multitude of agencies directly and indirectly involved in the WRM. Even within agencies directly involved in WRM, like the Ministry of Energy and Water Resources and the Committee for Environmental Protection, only part of the staff is engaged in water-related sectors. In undertaking this PEER, access to disaggregated data on staff and salaries was constrained (due to data non-availability, technical issues or unwillingness to provide data) both from the Ministry of Finance and key stakeholders. Public expenditures in WRM are primarily limited to salaries and goods/services. Some sub- sector specific expenditure analysis related to salaries and goods/services is presented in the relevant chapters but generally, public expenditures in WRM are by and large, limited to staff salaries and operational expenditures (repairs, computers, maintenance) of relevant ministries, agencies, committees. Again, precise estimation is nearly impossible to make given the challenges outlined above. There are distinct differences in terms of sub-sector public expenditures in WRM. The irrigation and drainage sub-sector remains heavily in the public domain and thus some direct expenditures are made (and presented in the relevant chapter). WSS was taken out of the public domain with the reorganization of the sector and creation of the KMK and all salaries and goods/services are paid by the KMK without any funding from the state (central or local). Only small portion of public expenditures could be attributed directly to a few stakeholders like the staff of regional or local government dealing with water supply from the policy, execution, monitoring, planning point of view i.e. department on water supply under local hukumat or a Parliamentary committee on infrastructure. Indirectly, however, a number of research agencies, committees, regulators are involved in WRM providing specific regulatory or licensing and monitoring functions. Annex 3 contains detailed information about such stakeholders. Obtaining salary data and operational expenditures of such agencies also proved challenging and something that the Water Council could consider undertaking. Download 0.75 Mb. Do'stlaringiz bilan baham: |
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