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To p -D o w n st ra te gie s B o tt o m -u p st ra te gie s Th e d ev elo p m en t o f t h e d et ail ed M TE F r o ll- o u t p la n fo r w at e r s e ct o r w h ile a n im p o rt an t c o m p o n e n t b u t w as n o t a c o re d e liv e ra b le u n d er th e W P EE R . H o w ev er , g iv e n th e u ltim at e g o al o f s h ift in g w at er s ec to r p u b lic e xp e n d itu re s t o w ar d s t h e M TE F, th e W P EE R te am b e lie ve s t h at th is is su e d es er ve s t o b e a d d re ss ed a s a s ep ar at e T ec h n ic al A ss ist an ce p ro je ct b y c ap ita liz in g o n th e a n aly sis p re se n te d a b o ve . G iv e n e xp e rie n ce w ith th e M TE F a cc u m u la te d in T aji kis ta n to d at e, th e f o llo w in g s p ec ific re co m m en d at io n s f o r t h e M TE F r o ll- o u t a re h ig h lig h te d a s p ar t o f t h is re p o rt : CHAPTER - 2 39 CHAPTER - 3 40 3. P UBLIC E XPENDITURES IN THE W ATER R ESOURCE M ANAGEMENT SUB SECTOR 3.1. O VERVIEW OF SUBSECTOR OBJECTIVES , POLICIES , PROGRAMS AND AGENCIES 3.1.1. I NSTITUTIONAL AND POLICY FRAMEWORK FOR WRM Water resources management (WRM) incorporates the management of all the nation’s water resources. WRM policies are typically aimed at managing water resources in a way that maintains balanced use, safety, protection and regulation of water resources. Particular reference is paid to respecting the needs of population for drinking water, irrigation water for agriculture both within the national borders and for downstream countries, and the needs of industry, especially in energy in case of Tajikistan. WRM needs to take into account all water use but this clearly presents challenges as the stock of water is constantly changing and is not always clearly visible. Water flows in rivers, are subject to evaporation and often stored underground, glaciers melt, droughts or extensive irrigation affect volume and usage is not easily measured. Functions of water resources management are very complex tasks and may involve many different activities conducted by many different players and, essentially, should represent an array of activities aimed proper management (including planning), developing, distributing and safeguarding the optimum use of water resources. Any operational WRM system, even before getting into discussions of what institutional and policy frameworks could or should be, has to perform this functions, increasingly in an integrated manner. It is the complexity of interconnections and cross-cutting nature of the WRM that has led to the development, adoption and proliferations of Integrated Water Resource management practices around the world as shown in Figure 3.1. Figure 3.1 Cross sectoral integration Source: Global Water Partnership As a result, while there are best practices in WRM, in reality, country’s institutional and policy framework for WRM should really focus on: 1) Creating an enabling environment for efficient WRM (for example incentives for private and public service delivery etc.); (2) clarifying institutional roles CHAPTER - 3 41 of government, non-government and international partners (for example capital expenditures and maintenance costs, etc.); and (3) has proper management and executive instruments (budgeting planning/reporting). Usually, less attention is paid to these issues by developing countries that tend to focus on funding issues only as a panacea for all sector challenges. It is only in combination with the above three elements, that the increased funding could really bring results and lead to coordinated development and management of water, land and related resources in order to maximize economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems. 3.1.2. L EGAL AND INSTITUTIONAL BASIS FOR WRM IN T AJIKISTAN The legal and institutional basis for water resource management in the Republic of Tajikistan is relatively well defined. WRM is outlined by the following legal and normative acts: The Constitution of the Republic of Tajikistan, Water Code, Tax Code, Land Code and other laws and by-laws, the international, interstate and regional agreements, conventions and other legal documents adopted and ratified by the Parliament of the Republic of Tajikistan. The Program “On the Water Sector Reform of the Republic of Tajikistan for the Years 2016 – 2025” which outlines the proposed water sector reforms in all sub-sectors related to water use was adopted at the end of 2015. The legal basis for adoption of the program was The Decree of the President of the Republic of Tajikistan of 19 November 2013, #12 “On improvement of the management structure of executive authorities of the Republic of Tajikistan”. The Program on the water sector reform aims to set the foundation for the application of decentralization and devolution of part of service delivery in the process of division of responsibility between the ministries and agencies, and partially, NGOs. The proposed reforms are based on common regulatory principles of IWRM and focus on taking account of social, economic and environmental interests through sustainable and balanced management and development of the water resources (Water sector reforms programme of the Republic of Tajikistan for 2016- 2025). The goal of the reform is: “An efficiently planned, developed and managed water sector based on sound policies, joint analysis and management of ground and surface water quantity and quality, balances the different sectors that use water, using the basin as the management area, aiming to obtain the best economic benefit for the Republic of Tajikistan, in a fair and equitable manner without compromising the ecological integrity.” (p.59, Water sector reforms programme of the Republic of Tajikistan for 2016-2025 ) CHAPTER - 3 42 3.1.3. WRM IN T AJIKISTAN – CHALLENGING TRANSITION Water Resources Management in Tajikistan has undergone substantial transition in the last 25 years. WRM systems and institutions are still very much strongly anchored in the Soviet system with it clear advantages and disadvantages. The situation for WRM has faced challenges with the dissolution of the Soviet Union, cessation of funding and outmigration of specialists. Two episodes of civil unrest in Tajikistan in the 90s put an additional burden on physical water infrastructure and subsequent severe underfunding of the water sector has brought it to a state of almost complete collapse. The early 2000s, brought new life to the water sector in Tajikistan. With the Government’s renewed focus on water and namely, President’s international call for the “Decade of Water” and initial technical and financial support from donors, things have started to slowly change. Since then, the governance and institutional framework in the water sector has been continuously changing but the legacy, by and large, continues. Some distinct institutional milestones are presented in Annexes and individual chapters, but two things are worth mentioning: 1. The water sector has continuously been undergoing reforms, with ongoing public administration reforms, vertical/functional reviews of ministries and other similar high level policy/institutional reforms, many of them counterproductive and counter-efficient, with a few notable exceptions, given their narrow focus i.e. Project-driven approach 2. Water resource management, as a sector has never really focused on the public expenditure side of things and this has resulted in the deterioration of public services in this area despite stated sector priorities and donor support. Water, despite its obvious importance for many real sectors of the economy and being declared as a priority, was de- facto, behind other pressing issues like social spending, energy and transport both in terms of policy attention, public funding and investment It is only in the last two years, that the discussions have slowly moved toward integrated water resource management and with substantial experience and knowledge accumulated in the WRM sector, such as the creation of WUAs, restructuring of ministries and service providers, creation of new agencies, all with significant impact on public expenditures (and revenues) increasing importance is attached to the sector. 3.1.4. WATER SECTOR OBJECTIVES Water sector in Tajikistan has identified the following key challenges to be addressed when it comes to the institutional development: 1. Transition from the administrative and territorial management of water sectors to institutions based on hydrological or hydraulic management areas 2. Effective coordination of various sub-sectors under one leading institution 3. Creation of efficient and effective organizational structures of institutions capable of adopting and implementing IWRM principle, including WUAs at the field level based on hydraulic boundaries 4. Improvement of relationships between service providers and users and reduction of interference by local governments in resources management and service delivery CHAPTER - 3 43 A number of key documents have been developed and adopted in Tajikistan to address these challenges. In particular: The National Development Strategy (2016 to 2030) 35 considers water and water resources as one of the foundations for industrial and innovative development of the country, capable of creating opportunities for the development of the export oriented and import-substituting industries, as well as modern sectors of mining and manufacturing, non-ferrous iron and steel as well as non- polluting agriculture. Medium-term development program of Tajikistan for 2016-2020 also sees water and water resources as one of the growth engines for the country's development in the medium term mainly through the development of agro-industrial complex. Water Sector Reform Program has a goal to create “an efficiently planned, developed and managed water sector based on sound policies, joint analysis and management of ground and surface water quantity and quality, balances the different sectors that use water, using the basin as the management area, aiming to obtain the best economic benefit for the Republic of Tajikistan, in a fair and equitable manner without compromising the ecological integrity”. Water sector reform strategy aims at achieving the following outcomes: i) A shift from territorial administrative approach to water management to hydrological and hydrographical management areas; ii) creation of efficient IWRM institutions at national level capable of developing policies and regulations that allow effective coordination across sectors and interest groups, and at different scales, from local to international; iii) Transparent and accountable water governance institutions and separation of policy development/and strategic guidance from operational aspects of water management in accordance and aligning with the modern efficient and performance based management principles. An Action plan that is part of the water sector reform program outlines the following four major fields for institutional and financial interventions: i) Legislative and Regulatory Framework; ii) Institutional Development; iii) Infrastructure Rehabilitation; iv) Supporting Measures for Implementation of Water Sector Reform. 35 Adopted by the decree of the Government of RT #791 from 30.12.2015 CHAPTER - 3 44 According to the action plan, most of the funding under the program will be channelled toward infrastructure rehabilitation that is not surprising given the substantial underinvestment of the sector (Graph 3.1) Graph 3.1 Action Plan for the Implementation of the Water Sector Reform Programme for the period 2015-2025 (KUSD) 36 Source: Water Sector Reform Program – Action Plan It is also expected that the largest share of costs associated with the implementation of the water sector reform program will be shouldered by the development partners. Specifically, state budget is expected to cover less than 10% of the total planned costs (170 mln somoni or US$ 21.52 mln) while 90% (1,6 billion somoni or US$ 202,5 mln) is expected to be sourced from the donor community. 36 Exchange rate 1 USD/7.9 TJS is used. - 10 000,00 20 000,00 30 000,00 40 000,00 50 000,00 60 000,00 70 000,00 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 Supporting Measures for Implementation of Water Sector Reform Infrastructure Rehabilitation Institutional Development Legislative and Regulatory Frameworks CHAPTER - 3 45 Graph 3.2 State budget vs. development partners’ ratio in financing Action plan under WSRP (KUSD) Source: Water Sector Reform Program – Action Plan 3.1.5. O RGANIZATIONS /A GENCIES INVOLVED IN WRM AND LINKS TO B UDGETING : Overall, the WRM system in Tajikistan is complex and performs multiple functions when it comes to management, use, distribution and protection of water resources. Specific functions include monitoring, forecasting, use and protection, planning (including investment planning), water- related legislation, analysis, policy development and evaluation, strategy development, execution. Different sources of water and sectors that use water are subject to various requirements when it comes to water quality, level of oversight and monitoring needed also contributing to the complexity. (See figure 3.4) Important considerations to take into account include the following: National vs. local stakeholders (ministries, agencies, committees etc.) Directly involved (policy development, execution, planning) and indirectly involved (regulatory or safeguarding roles) Policy setting vs. execution vs. regulators - 20 000,00 40 000,00 60 000,00 80 000,00 100 000,00 120 000,00 140 000,00 160 000,00 180 000,00 200 000,00 1 2 3 4 State Donors CHAPTER - 3 46 CHAPTER - 3 Fi gu re 3 .2 : P o lic y se tt in g at n at io n al le ve l - S o u rc e: A u th o rs v is u al iz at io n 47 3.1.6. P OLICY IMPLEMENTATION IN WRM National level agents Water management on the national level is based on a combination of basin and administrative- territorial principles and implemented by the Government of the Republic of Tajikistan as well as local executive bodies (Hukumats) along with authorized state agencies involve in regulation of use and protection of water (See graph 3.3). As a result, the number of authorities, involved directly or indirectly, in water management is extensive. The following is the list of the state (National) authorities and institutions of the Republic of Tajikistan involved in decision-making, management, use and protection of water resources on the National level (Graph 3.1) The President of the Republic of Tajikistan Majlisi Oli Majlisi Milli of the Republic of Tajikistan (The Parliament) Government of the Republic of Tajikistan Ministry of Energy and Water Resources (MEWR); Ministry of Agriculture (MoA); Ministry of Health and Social Protection (MHSP); Committee of Environment Protection under the Government of Tajikistan (CEP); Committee of Emergency and Civil Defence (CECD); Agency for Land Reclamation and Irrigation (ALRI); Main Department of Geology under the Government (MDOG); State Unitary Enterprise Khojagii Manziliu Komunalli (SUE KMK) Open Joint Stock Holding Company Barqi Tojik (OJSHC BT). State Supervision of Safety in Industry and Mining Services under the Government of the Republic of Tajikistan (SSSIMS); Local authorities From the public finance point of view, the Ministry of Finance and the Ministry of Economic Development and Trade are heavily involved in allocating and planning sector resources, including investment (capital and recurrent) CHAPTER - 3 48 General structure of organizations involved in WRM is outlined below: Graph 3.3. National level of water resource management: Source: Authors, based on official agency charters. CHAPTER - 3 49 The table below outline the key direct National-level stakeholders and their key functions: Table 3.1. National-level stakeholders and their key functions Organization Main functions President of the Republic of Tajikistan The President of the Republic of Tajikistan is the Head of the State and Executive Authority (the Government). He defines: The main directions of domestic and foreign policy, fiscal policy, monetary system and informs the Majlisi Namoyandagon on his decisions. He disposes of the Special Reserve Fund and signs all laws including the law “On the State budget”. Download 0.75 Mb. Do'stlaringiz bilan baham: |
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