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User fees Payment based irrigation services for agriculture were introduced under Resolution No. 281 on 25 June 1996. Until then, irrigation service costs were covered by the state budget. This fee is to cover the cost of operation and maintenance of irrigation systems and energy costs for pumped irrigation systems. In some cases, cascade systems are used which consist of 4,5 and up to 6 stages of pumping. Between 2008 and 2010 there were separate tariffs for gravity and pump-based irrigation but these were replaced with a uniform tariff. For zones where there are no water measuring devices, the fee is based on the average water requirements for each crop per ha of irrigated land. The tariff is determined taking the following into account: cost of the fixed assets, payroll costs, operating costs, value added tax, regulatory profitability (15%) on the development and creation of a reserve fund (deduction of all subordinate operating and contracting construction organizations for ALRI in the amount of 10% used for emergency situations and natural disasters). After calculating the rate, it should be agreed with the Antimonopoly Agency and approved by the Government and by ALRI . Fees are paid both to ALRI directly and through WUAs and are sometimes paid in kind in the form of agricultural products and the labour participation of users . The total volume of water delivered annually for gravity and pumped irrigation is about 5 bln m 3 out of which around 3.9 bln comes from pumping stations. In theory, the amount delivered is agreed between the water service provider and water user before the irrigation season and based on the crops and the area but there is no reconciliation between planned and actual consumption (AHT / UNICON 2013). Farmers are charged 17.7 TJS (US$ 2.3)/1000m 3 of water (15.5 TJS +18%VAT) regardless of whether the water is pumped or gravity fed. Based on a study of 6 pilot schemes, the World Bank 85 finds that these charges would be barely enough to cover the average electricity charge which is approx. 14 TJS (US$ 1.8)/1000m 3 pumped. There is nothing left to cover other costs (pump repair, salaries canal maintenance, upgrading etc.). Not only is the charge insufficient to cover costs, only a proportion of fees are recovered. Farmers are often unable to pay their fees to the WUA 86 . Payments have been low, and high debts have accumulated. Water debts among farming communities are high and service delivery poor. 87 85 World Bank (2015) The Costs of Irrigation Inefficiency in Tajikistan 86 Tajikistan: FAO Aquastat - accessed 16th May 2016 87 “Water management organizations in Isfara river basin received 7 excavators from UNDP in Tajikistan” UNDP Press Release 27 July 2015. CHAPTER - 4 77 The majority of the debt is accumulated in pumped irrigation systems. 88 Collection of annual fees from WUAs is less than 50%, which gave rise to a shortfall of US$9.5m in 2011 which exacerbates the funding gap. 89 Losses from the sector result from leakage, from tariffs that do not cover costs and from inadequate tariff collection. The shortfall is not made up from the local or central budget and the result is the failure to maintain infrastructure. This is exacerbated by weak capacity. There have been two major write-offs of water users’ debts. In 2004, 38 million somoni (or US$ 12,7 mln.) was written off to the Ministry of Melioration and Water Resources. The second time debts were written off was during the process of restructuring of the Ministry of Melioration and Water Resources to ALRI. At that time, 260 million somoni (US$ 86.7 mln.) of debts were written off. Hundreds of WUAs have been formed over past three decades but the vast majority fail because of lack of ownership. In Tajikistan with the pumped schemes, the crop yields are so low and the water control from the main and lateral canals is so poor that it is unlikely that WUAs will be socially or financially able to support the large irrigation schemes in the near future. According to the World Bank 90 “A long-term improvement program to provide manageable water will need to succeed before farmer support on sustainable levels can be achieved.” The report from the Bank recommends a national plan to reduce the expenses of operating the pumping plants with a combination of improving pumping plant efficiencies to reduce energy costs and reducing the costs associated with constantly rebuilding and servicing pumps. Donor assistance needs to be coordinated in a national plan. 4.3. P ROCESS OF BUDGET ALLOCATION , EXECUTION CONTROL AND EVALUATION IN THE SUB SECTOR ALRI was established in 2013. It has under its control a number of companies to which it transfers funds according to the decision of the Government of the Republic of Tajikistan from February 27, 2013 №125 (see above). On annual basis, ALRI reviews its central, provincial, territorial and regional departments involved in the operation of irrigation systems, supply of electricity, capital construction, design, science, training, monitoring of irrigated land, the exploitation of housing facilities, etc. ALRI operates independently of local government and is funded by central government. But local authorities can and do provide funds to ALRI and central government can provide funds directly to local bodies of executive power to carry out certain activities in their respective domains such as capital construction, prevention and disaster management. The process of allocation of funding in theory is based on the size of irrigation systems but because of the difficult financial situation, government distributes only what it can afford and not in accordance to the needs and standards of operation. In 1992-2001 on average, the amount of 5- 6% of public funds was spent on maintenance of irrigation systems. The government is supposed to use standards to identify financial resources allocation based on the costs of the specific systems. Then with the funds allocated by the Ministry of Finance, ALRI allocates some to capital construction and some to the development of new irrigated land. 88 Landell Mills (2013) Proposed Irrigation and Drainage Water Debt Resolution Roadmap” Annex D: Provision of Technical Assistance to the Tajik Ministry of Land Reclamation and Water Resources in Support of Institutional Reforms in the Water Sector, CONTRACT NUMBER: 2012/292193 89 AHT/UNICON (2013) Republic of Tajikistan: Developing Water Resources Sector Strategies in Central and West Asia, Technical Assistance Consultant’s Report Project Number: 45353-001 (RETA 8015) 90 World Bank (2015) The Costs of Irrigation Inefficiency in Tajikistan CHAPTER - 4 78 The process begins with the Ministry of Finance in February forming the budget for next year and informing the public authorities what they can expect. The budget allocation for ALRI is determined according to standards for payroll and headcount and personnel engaged in maintenance money but the amount disbursed is reported to be 1/5 of the level of 1990. In their study of irrigation efficiency in six schemes the World Bank says there is very little budget. Scheme personnel have to focus on dealing with the pumps and the sediment issues. There are few resources left over to deal with the huge problems associated with providing flexible, reliable and equitable water distribution across the fields, the main problem seems to be obtaining funds for replacement pumps and pipelines. They say (p. 34) “ALRI should spread its resources and efforts in a more balanced manner including water movement and management between the rivers and the individual fields. Until the quality of water distribution service to fields can be improved, strong WUAs are unlikely to develop”. 4.4. A NALYSIS OF PUBLIC EXPENDITURES IN THE SUB SECTOR 4.4.1. M INISTRY OF F INANCE DATA The budget spending for code for irrigation (10107) was analysed for state and local budget actual spending from 2007 to 2014. This exercise was complicated by a change in the budget codes in 2014 but as far as possible, these expenditures were matched up. Total budget spending on irrigation and agriculture, converted to 2015 prices are shown below. The chart below (Figure 4.1) shows that overwhelmingly the sector funds come from the republican rather than local budget. Figure 4.1: Total irrigation finance (USD - 2015 prices) Source: Author’s calculations using Ministry of Finance data Looking at trends over time (fig 4.2), state budget spending on irrigation increased sharply in 2007 and then dipped slightly before recovering to a new peak in 2013 and declining slightly in 2014. Local budget spending is considerably lower but shows a sharp increase in 2014 although this may be due to the new categorization of budget codes. - 10 000,00 20 000,00 30 000,00 40 000,00 50 000,00 60 000,00 70 000,00 2007 2008 2009 2010 2011 2012 2013 2014 2015 User Fees State budget Local Budget Total CHAPTER - 4 79 Figure 4.2 State and local budget spending on irrigation (KUSD) Source: Ministry of Finance data However, irrigation spending only accounts for a small proportion of the state budget (less than 1%) and an even smaller proportion of the local budget reaching .02% in 2014 (Fig 4.3). Figure 4.3: Irrigation share of state and local budget (%) Source: Ministry of Finance data Within the state budget, spending tends to be split across three budget headings (fig 4.4): Purchase of main capital – this includes “main centralized investments” and “new construction” Purchase of goods and services – goods and services not included in other budget lines, utility bills, communications, fuel Salaries. Overall there seems to be a decline in spending on goods, services, and an increase in “purchase of main capital” - 5 000,00 10 000,00 15 000,00 20 000,00 2007 2009 2011 2013 State budget - actual spending on irrigation (KUSD, 2015 prices) - 500,00 1 000,00 1 500,00 2 000,00 2 500,00 Local Budget (in KUSD, 2015 prices) 0,00 0,20 0,40 0,60 0,80 Irrigation share total state budget (%) 0,00 0,05 0,10 0,15 0,20 0,25 20072008200920102011201220132014 Irrigation share total local budget (%) CHAPTER - 4 80 Figure 4. 4: Share of total state budget for irrigation Source: Author’s calculations using Ministry of Finance data Figure 4.5 shows the share of externally financed capital investment in the sector funded through the Public Investment Programme. This has accounted for an increasing share of expenditure in the sector but is still small relative to the Republican budget, accounting for less than 13% of sector funding in 2015. Fig 4.5: Externally funded capital investment for irrigation and drainage in state budget Source: Author’s calculations using Ministry of Finance data Note that spending on irrigation by central government does not equate to revenue for ALRI. Overall, state and local spending on irrigation was about twice the amount that ALRI reported as income from the state budget. 0,00 20,00 40,00 60,00 80,00 100,00 120,00 2007 2008 2009 2010 2011 2012 2013 2014 5000 Purchase of main capital 2100 Purchase of goods and services 1000 Salary and share distribution of employers 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% 2007 2008 2009 2010 2011 2012 2013 2014 PIP State Local CHAPTER - 4 81 4.4.2. O VERALL FUNDING ACCORDING TO ALRI Total funding for irrigation and drainage over the past decade from domestic sources has increased in real terms over the past decade although revenue from user fees, which is the main source of sector income, has yet to recover to its 2008 level. Figure 4.5: Revenue from user fees (‘000 somoni, actual prices) Source: Author’s calculation using ALRI data When the data are converted to 2015 prices (using WDI inflation values) the picture is slightly different. And suggests that total income levels now are lower than in 2007, due to the failure of user fees to recover from their drop in 2008/2009 (Fig 4.6). Figure 4.6: Total funding for irrigation and drainage (KUSD 2015 prices) Source: Author’s calculation using ALRI data Looking at the overall sources of revenue for irrigation and drainage, as indicated above, the share taken by user fees has declined but state budget funding has increased over the past decade. Total revenue in 2015 was 120 mln. somoni (US$ 16 mln.) which is far below the World Bank’s estimates of required revenue of US$ 31 mln. cited above. - 10 000,00 20 000,00 30 000,00 40 000,00 50 000,00 60 000,00 2007 2008 2009 2010 2011 2012 2013 2014 2015 User fees in kUSD - 10 000,00 20 000,00 30 000,00 40 000,00 50 000,00 60 000,00 70 000,00 1 2 3 4 5 6 7 8 9 User Fees State budget Local Budget Total CHAPTER - 4 82 Figure 4.7: Sources of Revenue for Irrigation and Drainage Source: Author’s calculation using ALRI data The data show that the majority of ALRI’s income has been from user fees (Figure 4.7) of the last decade but this share is declining. The local budget accounts for less than 10% of the total budget. Looking at the regional allocation of the state budget (Figure 4.8), nearly half is to DRS although the amount going to DRS and Sughd declined from 2008 to 2010 and was taken up with a bigger allocation to the region of Khatlon. GBAO has never attracted more than 4% of the total state budget. Figure 4.8: Share of spending of state budget on irrigation and drainage Source: Author’s calculation using ALRI data 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% 2007 2008 2009 2010 2011 2012 2013 2014 2015 Local Budget State Budget User Fees 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 KHATLON (KURGAN) KHATLON (KULYAB) SOGHD DRS GBAO CHAPTER - 4 83 4.4.3. T ARIFFS AND COSTS User fees are charged per hectare. Table 4.2 shows the fees for regions of Tajikistan in actual prices. Table 4.2: Water supply tariffs per 1 ha (USD – Actual prices) Year GBAO Sughd Oblast Khatlon (Kulyab) Khatlon (Kurgan) 2006 30,00 27,72 25,33 31,00 2007 26,47 27,22 26,18 27,06 2008 26,47 58,31 26,47 52,06 2009 21,95 58,65 23,17 43,17 2010 20,45 38,20 24,55 40,23 2011 22,83 43,88 29,78 38,48 2012 22,34 59,34 26,60 37,66 2013 22,05 49,56 27,51 37,16 2014 21,28 42,49 36,47 35,87 2015 16,67 45,05 35,40 28,10 Source: ALRI data Fees have increased across the regions. However, when converted to constant (2015) prices, the 2015 tariffs are about the same as those in 2007 (Fig 4.9 below). The Kurgan region of Khatlon has the highest tariffs. Figure 4.9: Water supply tariffs for various agricultural for 1 HA (USD – 2015 prices) Source: Author’s calculation using ALRI data $ 67,50 $ 54,19 $ 47,89 $ 32,97 $ 28,86 $ 30,26 $ 26,34 $ 24,56 $ 22,58 $ 16,67 $ 62,37 $ 55,73 $ 105,50 $ 88,08 $ 53,90 $ 58,17 $ 69,97 $ 55,22 $ 45,09 $ 45,05 $ 57,00 $ 53,59 $ 47,89 $ 34,80 $ 34,63 $ 39,48 $ 31,36 $ 30,65 $ 38,70 $ 35,40 $ 69,75 $ 55,39 $ 94,19 $ 64,84 $ 56,76 $ 51,01 $ 44,41 $ 41,41 $ 38,06 $ 28,10 2 0 0 6 2 0 0 7 2 0 0 8 2 0 0 9 2 0 1 0 2 0 1 1 2 0 1 2 2 0 1 3 2 0 1 4 2 0 1 5 GBAO Soghd Khatlon (Kulyab) Khatlon (Kurgan) CHAPTER - 4 84 The tariffs above follow a similar pattern to water production costs shown below (Table 4.3). Table 4.3: Net cost of 1 М3 for water supply (USD – Actual prices) Year GBAO Sughd oblast Kulyab region of Khatlon oblast Kurgan-tube region of Khatlon oblast 2006 0,59 0,33 0,37 0,37 2007 0,52 0,32 0,33 0,32 2008 0,52 0,79 0,37 0,53 2009 0,43 0,83 0,40 0,45 2010 0,40 0,59 0,42 0,45 2011 0,38 0,50 0,39 0,48 2012 0,38 0,62 0,47 0,49 2013 0,37 0,69 0,48 0,52 2014 0,36 0,67 0,34 0,53 2015 0,28 0,52 0,40 0,43 Source: ALRI data When costs are converted to 2015 prices, they follow a similar pattern to tariffs as shown above. Tariffs and costs are lowest in GBAO. Data were not supplied for DRS. Table 4.4: Net cost of 1 М3 for water supply (USD – 2015 prices) Year GBAO Sughd Khatlon (Kulyab) Khatlon (Kurgan Tube) 2006 1,33 0,75 0,83 0,83 2007 1,07 0,66 0,67 0,66 2008 0,94 1,44 0,67 0,96 2009 0,65 1,25 0,60 0,68 2010 0,57 0,83 0,59 0,64 2011 0,51 0,66 0,51 0,63 2012 0,44 0,73 0,55 0,58 2013 0,41 0,77 0,54 0,58 2014 0,38 0,71 0,36 0,56 2015 0,28 0,52 0,40 0,43 Source: Author’s calculation using ALRI data CHAPTER - 4 85 4.4.4. U SER FEES Users fees are the main source of income but there are disparities in the collection rate (table 4.4). Table 4.5: Fee collection rate (actual as % planned fees) GBAO DRS Sughd Khatlon (Kulyab) Khatlon (Kurgan) Tajikistan 2005 … 35.67 53.67 59.72 61.44 55.91 2006 … 37.86 50.40 59.79 57.98 53.14 2007 … 102.80 63.12 83.24 58.42 64.62 2008 … 26.59 28.31 26.94 23.40 26.03 2009 179.41 85.87 39.11 54.23 40.07 44.01 2010 41.25 78.60 54.49 41.01 40.03 49.50 2011 32.29 87.13 54.21 39.42 57.82 57.05 2012 100.00 95.88 66.94 49.60 66.24 67.18 2013 100.00 81.64 80.09 61.06 57.01 68.19 2014 100.00 70.15 75.66 50.42 57.32 64.67 Download 0.75 Mb. Do'stlaringiz bilan baham: |
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