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- 5.6 C ONCLUSIONS AND RECOMMENDATIONS
- 1. Overall WSS: better linking policy and funding
- 2. WSS sector specific recommendations and funding
- 3. Public expenditure composition, planning and execution
- CHAPTER - 6 124 6. C ONCLUSIONS
- Expenditure Public expenditures in water sector are low
- Substantial differences in sub-sector spending.
- Changing sources of expenditures.
- Financial sustainability of service provides is under challenged by a number of factors
- Increasing public expenditures do not always lead to improved performance
- Substantial urban-rural divide and inter-regional public expenditures.
- Budgeting Existing budgeting processes are too vague and lack specific project/program targets to affect feasible change
- Budget allocations are constrained by fiscal space.
- Budget allocations do to reflect stated policy priority
- CHAPTER - 6 126 Recommendations
CHAPTER - 5 120 Key sector performance observations Notable improvements in water supply and infrastructure (production of water), primarily in urban areas More focus on drinking water and very insignificant attention to sanitation Growing urban-rural water supply divide in both access and quality of WSS services Water losses (including in urban areas) have increased despite efforts to improve infrastructure pointing to weaknesses in the water supply system Growing water bills issued, collection rates related to improved metering but still substantial challenges related to debts being accumulated both by individual consumers, commercial consumers and budgetary organizations. Tariffs grew gradually since 2010 but not enough to allow for major capital expenditures to improve infrastructure. Sector sustainability Tajikistan’s WSS needs are considerable but current fiscal space is likely going to be very limited given cross-cutting priority assigned under current NDS WSS will find it increasingly difficult to sustain current capital expenditures in the sector without proper transparency and accountability for the expenditures to instil further trust in the system on the part of donors Improving public investment management, including CSIP (with the aim at improving water service delivery) and prioritization of WSS will play at important role through to meeting water SDGs by 2030 In order to meet ambitious water goals, Tajikistan needs to at least double the amount of current planned public expenditures and almost triple recurrent expenditures. Sector sustainability will depend on addressing taxation – tariffs- performance link in WSS There is room to increase public expenditures within existing budget limitation given that Sector 7 stands as the 4 th largest functional expenditure category 5.6 C ONCLUSIONS AND RECOMMENDATIONS Given apparent importance of the drinking water and sanitation sub-sector as stated by the President of Tajikistan, and as highlighted in the Water Sector reform program, the following specific recommendations are offered as part of the PER to strengthen financing of the sub-sector: 1. Overall WSS: better linking policy and funding Strengthen the work of the existing Working Group on Drinking Water with a dedicated executive level and technical sub-groups of sector funding and performance issues. The main objective of this sub-group would be to develop and main internal data base (on funding and sector performance) since reliable data across sector remains quite problematic Review/update of the current drinking water supply improvement programs (2007-2020) subject to funding trends and synchronize funding arrangements and action plans (including infrastructure rehabilitation plans/estimates/needs) with the water sector reform program (2030). This information should be made public and implementation monitored by the Office of the President as one of the priority programs. CHAPTER - 5 121 Develop a dedicated rural drinking water supply and sanitation program with complete inventory of needs and cost estimates as part of the updated drinking water supply improvement program with clear monitoring, tracking and accountability mechanisms All WSS MABAs to become part of ongoing MTEF training processes. Creation of a specialized high-level MTEF working group (staffed with international and local WSS funding experts) to develop a road map for introduction of MTEF in WSS based on the findings of the PER 2. WSS sector specific recommendations and funding Develop a new taxation model for the water utilities as part of bi-annual performance review of the “contract” between with KMK and the state (local municipalities). Any tax relief should be clearly linked to improved performance in water service delivery (investment, safety, water loses) with verifiable third party validation of outcomes. Ministry of Economic Development and Trade to work closely with other internal and external stakeholders to explore and develop new investment attraction models for WSS projects (Islamic financing, PPP, concessions, pilot privatization projects especially for greenfield projects). “Ring-fencing” limited public expenditures in WSS and ensuring that funds allocated to local municipalities for drinking water/sanitation related purposes actually reach targeted beneficiaries. Establish capacity to ensure local authorities are more responsible and accountable for water related expenditures Staff and train specialized WSS projects feasibility teams or contract out preparation of WSS feasibility studies (especially in rural WSS) to meet and exceed CSIP requirements (and/or meet donor requirements) WSS sector public expenditures could benefit from equity (more equitable regional allocations) and greater expenditure allocation efficiency (i.e. focus on priority preventative programs, lowering losses and capital investments into projects with the greatest impact) Review water tariff rates in view of long-term sustainability of the sector. Any increases in tariffs should not take place only on the grounds of collecting more revenue. Tariff increased should be linked to improvements in service delivery and improving operational efficiencies of water utilities. Single-trigger increases (based on economic performance of the sector) of water tariffs should be avoided but automatic annual inflation adjustment should take place without lengthy approval processes. 3. Public expenditure composition, planning and execution Develop options for an improved system of water subsidies planning and allocation for most vulnerable population related to any upcoming water tariff increases. Water subsidy payment monetization could be considered as an option to simplify existing processes in place, increase trust in the system an optimize existing systems and processes in place as abuses in the system are reported to be quite wide-spread. Ministry of Finance and budget organizations to improve budgeting and actual payment for drinking water delivered to the state-funded ministries and agencies by the water utilities CHAPTER - 5 122 based on actual historical volumes of water consumed (water bills accrued) of water, real forecasts and tariff increases. Move away from normative, mechanical increases in water bills (planned in the budget) as resulting tax settlements and accumulation of debts as a result of improper planning of costs. Improve accountability and reporting on all water related public expenditures involving staff of the Ministry of Finance, KMK and water utilities and make semi-annual report on water related public expenditures made available to the broad public. This will greatly increase confidence of local communities and international donors providing funding to the sector. Earmarking up to 5% of the total CSIP envelop to the WSS projects based on improved quality and coverage of WSS projects by better preparation, project appraisal, evaluation and reporting could go a long way in ensuring country’s water goals are met. Given the importance of WSS sector, consider increasing government counterpart funding of WSS projects supported by the donors to up to 30-35% for all new investment projects. Pilot merging WSS domestic capital program (CSIP) with externally funded program (PIP) to better plan capital and recurrent expenditures in the sector. CHAPTER - 5 123 CHAPTER - 6 124 6. C ONCLUSIONS The PEER has shown that identification of the water related finance in Tajikistan is a complex task. Water is used in different ways and by many users through diverse institutional structures in rural and urban setting across the country. The task is complicated further by a number of ongoing reforms both in water and in public management and increasing international commitments (i.e. SDGs), international transboundary and global challenges like the climate change The water sector brings together an extensive range of national government agencies in water and local government as well as industry, customers, energy production and farmers. Given the need to collectively manage this shared resource, a strong institutional structure is essential. In addition to formal boundaries of institutional responsibilities there are also institutional norms that may not correspond with the formal structures. To some extent the evolution of the institutional structure has been varied across the country hence some municipalities are responsible for water in some areas (such as Dushanbe and Khujand) but not in others where water utility acting as KMK or a branch thereof. Government spending in the sector has been increasing but so far fails to match the very high levels of need in both WSS and irrigation and does not reflect the state of urgency stated by the highest authorities in the country. Donor funding is significant making a growing contribution to the water sector. This has been mainly in drinking water although donor funding to sanitation and irrigation has also been growing. However, much greater funding is urgently required to roll out services to rural areas and to strengthen irrigation for agriculture. The main conclusions from this review are as follows: Expenditure Public expenditures in water sector are low. Total spending in the water sector came to just over TJS 316 mln. (US$ 40 mln.) in 2015, up from a low of TJS 74 mln. (US$ 16.8 mln.) in 2010 and accounting for on average 3.2% of total budget spending (including public investment program), which is less than spending on culture and slightly over the lowest category of public expenditures, mining/industry. Without donor projects (funded through the PIP), public water expenditures amount to around 1% of budgeted total expenditures. Substantial differences in sub-sector spending. The majority of government spending on water goes to irrigation and drainage, which came to about TJS 81 mln. (US$ 16,5 mln.) in 2014 while spending on WSS was around TJS 47 mln. (US$9.6 mln.) Local budgets have been accounting for a diminishing proportion of overall funding. Donors have been accounting for a growing proportion of sector funding but this has been erratic. In 2015 over 60% of finance came from external sources compared with 11% of funds in 2007. Since 2012 a growing proportion of donor funding has been allocated to sanitation. Changing sources of expenditures. Both KMK and ALRI rely on income from user fees and this is the largest funding source for ALRI accounting for over 60% of income in 2015 although this share has been declining from a peak of 85% in 2008. Local budget funds have been unchanged and the republican budget allocation has increased. Tariffs have increased for WSS but are still low at US$ 0.22 per m 3 . However, improvements in metering, billing and collection rates mean that user fees have increased from around TJS 20 mln. in 2010 to almost TJS 60 mln. in 2015. Financial sustainability of service provides is under challenged by a number of factors. Both ALRI and KMK are accumulating debts. ALRI is existing on a shoestring with funding just to cover the basics of salaries and maintenance. There are high debts owed by farmers and ALRI CONCLUSIONS - 6 125 has accrued debts for electricity, for tax and owed to staff. For KMK the debts are in part due to underpayment of state subsidies the non-payment of water bills by state agencies. Increasing public expenditures do not always lead to improved performance. Leakage rates continue to be high and have grown every year since 2011. Water losses are estimated to be in the range from 20 to 50% in urban areas. Much of the infrastructure is still not operational. The sector needs substantial investment as much of the infrastructure in operation dates back to the Soviet era and is in a very poor condition. Only 68% of water supply networks are operational in cities and this is as low as 40% in rural areas. Substantial urban-rural divide and inter-regional public expenditures. Donor and government investment efforts have been focused on improving access in urban areas and in the rural areas with the most acute supply issues. Meanwhile over half the rural population (around 3.5 million) does not have access to safe drinking water while there is virtually no access (0.2%) to sanitation facilities in rural areas. Budgeting Existing budgeting processes are too vague and lack specific project/program targets to affect feasible change. Budgetary processes are not entirely transparent and it was difficult to access the relevant data for PEER. Budget allocations are constrained by fiscal space. While there is an interactive process where funding needs are identifying by the service provider, in practice, allocations tend to be based on previous disbursements. There seems to be little monitoring of spending and impact. Budget allocations do to reflect stated policy priority. Despite stated policy commitments to the water sector and a desperate need for investment only a small proportion of government revenue is devoted to WSS and irrigation. In WSS there is a need for investment in rural water but expenditure is dominated by urban infrastructure. Support for rural areas is urgently needed Institutions A number of organizational reforms have been implemented over the past decade, the most recent of which was approved in 2015. The Water Sector Reform Programme for 2016-2025 proposes further restructuring. Water management involves a number of agents often with conflicting incentives. The institutional structure is complex with the hierarchical structure of water management (via ALRI, KMK and MEWR) intersecting with the tiers of central and local government in different ways. In some cases, water supply is under the local government (such as Dushanbe) and in others it is the responsibility of KMK. In WSS there is some involvement of local government but it is not clear how this relates to the local ALRI units. Throughout the sector there seems to be evidence of responsibilities that are not matched by institutional capacity. This is in the state institutions where low wages make it difficult to recruit and retain staff and in the informal water user associations where only around 20% are currently functional and considered to be viable. Yet they are regarded as the foundation for financial sustainability of irrigation. CHAPTER - 6 126 Recommendations Direct funding to areas of greatest need: More support is needed in rural areas. The majority of the population is located in rural areas and around half of these are living in poverty with a significant proportion at risk of malnutrition. Far greater support is needed to supply water and sanitation (which is largely non-existent) and to support livelihoods in rural areas. However, the scope for reallocating spending within the water sector is small given that there are also high levels of need in urban areas. Water sector asset inventory stock taking needs to be undertaken and funding requirements identified on the basis of this inventarization, i.e. share of funding from the state budget, population, water sector utilities, donors and private investors). Legal underpinnings in the water sector asset ownership are is critical to improve water sector sustainability. These include issues of water management, leasing, sub-leasing, public water use etc. Enforceable and operational legal foundation in water management is also critical in order to attract private investors. Creation of “water trusts” could be one of the potential tools towards this objective, i.e. consolidated funding from various types of water ownership under effective public oversight; and public-private partnership (PPP) projects. Water tariff policy should be revised to toughen water payments processes. All water bills should be paid by all those who use this resource; water subsidy monetization should be introduced while support of the most vulnerable should be designed to be targeted and be simple enough without exceptions (as exceptions are usually meant potential loopholes especially in the context of Tajikistan). The Processes and Systems behind water payments shall be designed and enforced in such a way so as to avoid in-kind payments (or any other non-monetary forms such as barter deals, mutual settlements) or payments shall be optimized through adoption of the dedicated mandatory instructions that provide clear guidance with regards to water payments. Currently a low proportion of the government budget is allocated to the water sector despite the government’s stated commitment to sector improvements. A reallocation of spending priorities could increase the revenue allocated to the sector. As such, public funds could be re-allocated in a way to allow water royalty proceeds to remain in the sector, conditioning (usually some sort of performance conditions) public expenditures for SUE/SOEs in the sector; as well as through targeted funding of stated priorities in the water sector strategies (PIP, Concept on rational and effective use and protection of water resources in Tajikistan, Water sector reform strategy and other) only. Revenue from users can be increased. The tariff is low by international standards and technological improvements can increase revenue collection of WSS tariffs. However, tariff increases need to be matched with improvements in service delivery. Currently satisfaction with services for both WSS and irrigation are at such a low level that there is likely to be hostility to a rate rise. CHAPTER - 6 127 Consideration should be given to tax concessions in the water sector for both ALRI and KMK as they both use tax revenue and are required to pay taxes. ALRI which is in dire need of funds for investment has had to pay nearly US$ 1 mln. in fines and penalties in respect of tax obligations. Improve budget processes Budgetary processes need to be more transparent and open to the public. This objective could be achieved through introduction of mandatory public hearings of the budget (could be water sector budget and certainly investment projects in water sector), publication of budget deliberations and key parameters in mass media and strengthening the role of the Parliament in budget processes. Greater attention is needed to ex-post spending. Evaluation of spending should be built into the budgetary process. Budgetary processes need to be more closely linked with activity and with sector priorities, i.e. based on existing/updated benchmarks for capital and current expenditures in water sector (i.e. funding limit per hectare of land, per cubic meter, square meter etc.) There is scope to increase efficiency of public expenditures and increase water sector funding within existing budget envelop. Reforming water royalty system with clear enforcement and re-investment mechanisms could at least partly address funding gap in water sectors. There needs to be greater emphasis on the overall coordination of budgetary planning across the sector within a Medium Term Expenditure Framework (MTEF) linking all donor sources with government spending in the context of the sector strategy. Spending is needed across all fronts (irrigation, drainage, sanitation and drinking water) both to increase the reach of networks and to repair existing facilities to reduce leakage. Spending needs to focus on the projects with the highest impact. Coordination across WSS and irrigation could be helpful, for example, with capital works for irrigation on-going, consideration should be given to linking this with capital investment in drinking water and sanitation projects in the same location to maximize use of staff and equipment. Strengthen institutions across the sector The capacity of institutions across the sector needs to be strengthened within a sector wide assessment of skills available and skills needed to effectively manage water sector Greater capacity is also needed at the regional and district level and this could be achieved with specific training for project teams for WSS and irrigation. WUAs urgently need support (for example with infrastructure maintenance and with training in financial management) from the government if they are to be effective in managing rural infrastructure and providing a revenue base for sustainable financing of ALRI. 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