Strategic Policy Framework for the Water Sector

1. At Constitutional Level: Ministry will directly be in charge of national planning, establishing laws, policies and strategies: to make the organisational function possible, an enabling environment has to be created, requiring water policies, institutional development policies, including human resources development and normative and executive legislation and coordination with other parties involved in the water sector. To maximise the benefit from existing programmes and activities, a simple but functioning coordination mechanism is vital. MIWRE will coordinate with development partners and implementing agencies in issues of policy development, strategic interventions and institutional reform, in issues of joint development programming and fundraising, as well as specific needs in terms of capacity building. This will ensure: a) efforts made by the different partners in the improvement of administration and capacity building will not be duplicated, thus saving substantial amount of resources and efforts that goes into individually designed support programmes; b) the donor community and implementing agencies can contribute to the development of national policies and strategies. Important issues that are cross-sectoral in nature, would be better reflected in the establishment of an Inter-Ministerial Commission for the natural resource sector. This will further enhance the quality of policies and development and 20 ensure an integrated approach to recovery and development processes. MIWRE will take the lead in this process.

2. At Organisational Level: River Basin Management Authorities will be in charge of allocating water flows, assimilative capacity, ecosystem maintenance, and potential energy. To minimise problems and conflicts of the different uses and users, coordination of water use and allocation is required, as well the development and/or changes of water use rules. Other activities involved will be coordination, planning, decision-making and policing of water use and users in water systems (river basins, aquifers). MIWRE will initiate, legalise and support the establishment of River Basin Authorities in the five main river basins and will contribute to their planning and coordinate and monitor their performances.

3. At Operational Level: Sub-Basin – or Watershed management will be in charge of regulating water uses and users subject to operational rules, to meet demands and needs. Activities are focussed at use or control of water for specific purposes to fulfil specific needs and demands, including water supply and sanitation, irrigation and drainage, flood protection, hydropower, industrial supplies, tourism and recreation, fisheries, navigation and the preservation of rehabilitation of ecosystems. This level can be at sub-basin, watershed or micro-watershed. MIWRE will, in close cooperation with the river basin authority, function as facilitator and adviser at this level. Specific activities by MIWRE will be awareness raising and promotion of effective and efficient use and involvement with the establishment/ strengthening of the water user organisations. Integrated Water Resources Management requires integrated performances at and between all these functional levels. For MIWRE to function effectively at these levels there is an urgent need for: • Enhancement/strengthening of planning and implementation capacities at the Ministry and all stakeholders; the implementation of restructuring exercise of the Ministry (Institutional Reform Process) with Departments of Water Resources, Environment and Irrigation is a first step. • Establishment of an effective commission (Inter-Ministerial) as a central coordination agency. • Reorganisation and strengthening of government institutions that can effectively respond to the present and future needs of the country in the water sector. • Promotion, initiation and strengthening of regional/local authorities in a decentralised manner, such as river basin authorities and of water management bodies at community level, such as Mirab, Karez management and other water user associations and organisations. • Encouragement and promotion of the private sector in both capital investment and operation capacities in the water sector. 21 INTEGRATED WATER RESOURCES MANAGEMENT “Water and Environment: A common Goal to Preserve!” Considering the multiple challenges in the water sector, the government has recognised the need for integrated water resource management. The development of the river basin management approach by the MIWRE is a first step towards integrated water resource management. To achieve this, MIWRE will adopt the following principles in its policy as guidelines: • National water resources development and management should be undertaken in a holistic, integrated and sustained manner to meet national development goals, as described by the National Development Framework (NDF). • Planning, development and management of water resources would be decentralised to an appropriate level corresponding to river basin boundaries. • Delivery and extension of water services would be delegated to autonomous and accountable public, private and/or cooperative agencies providing measured water services in a defined geographical area to customers and/or members for an appropriate service fee, ensuring longer-term cost-recovery. • Water use in the society would be sustainable within a transparent policy framework – with incentives, regulatory controls and public education promoting economic efficiency, conservation of water resources, and protection of the environment. • Water sector development activities would be participatory and consultative at each level, leading to commitment by stakeholders and actions that are socially acceptable. • Successful water sector development requires a commitment to sustained capacity building, strategy development, budget funding, monitoring and evaluation, research, information services and learning at all levels. • MIWRE will strive to address issues related to shared water resources within and between nations to be efficiently allocated for the mutual benefits of all countries affected. Specific objectives of the water resource management are: • Adaptation of the principle that water is a public good and water rights is a public right, that cannot be claimed and/or owned by any individual or organisation. • Promotion of equitable allocation of water, addressing the social and environmental needs, and at the same time recognising its economic value. • Creation of mutual understanding and public awareness and acceptance that while political boundaries are made by men, water boundaries are set by nature. • Promotion of effective and efficient use of water. • Assurance of sustainable access to water for family households. • Assurance of a sustainable environment, particularly with abstraction and use of drainage, sewage and urban discharge of water. • Creation and development of appropriate institutions for effective management of water resources. 22 • Promotion and encouragement of stakeholders’ interest and responsibility, using appropriate consultation and involvement in decision-making. • Promotion of research, appropriate technologies, and best practices that can provide a robust empirical basis for future policy development, as well as for enhancement of effective and efficient water use. • Review and harmonisation of existing legislation and regulations and enactment of new appropriate legislations and regulations that can respond to longer-term needs of the water resource management and use. 23 IRRIGATION FOR AGRICULRURAL DEVELOPMENT “The Management of Water Means: More Crop Per drop!” In the socio-economic contexts of Afghanistan irrigation is the most important water sub-sector. Almost 80% of the population depend on agriculture for their livelihoods from agriculture, and over 95% of available water resources are consumed in the agriculture sector. Therefore, adequate access to irrigation water is an essential factor in achieving food security and self-reliance in food production. In the past, the agriculture sector was also a source of foreign currency earning, with the surplus in agriculture and animal husbandry, as well as other rural products being exported in the region. There are three categories of irrigation facilities and systems in Afghanistan: (1) small scale rural irrigation that is mostly managed and maintained by the communities themselves, including the underground water channels (Karezes); (2) medium- and large-scale irrigation schemes managed and maintained by the public sector and the communities; and (3) underground water exploitation through shallow and deep wells, where research and studies are carried out by the Ministry of Water and Power, while exploration lasts with MIWRE. Lack of maintenance and continued damage to most irrigation facilities has reduced access to irrigation water by more than 50%. In addition prevailing poverty in the country constrains the ability of the farming community to repair even local traditional irrigation facilities, reducing their participation in the reconstruction and development processes. Objective to determine water availability, coupled with lack of access to most needed agriculture goods and services have already caused large-scale displacement and population movement both within the country and to the neighbouring countries. Rural to urban migration is beginning to have serious negative impacts on the processes of reconstruction and rehabilitation. Lack of agriculture support and access to irrigation water, with the four years of persistent drought, has had serious impacts on the rural economy, counting for one of the major reasons for some farming communities to go into illicit farming practices, such as poppy, making Afghanistan the biggest poppy producing country in the region. In the short- and medium-term, the strategy for the irrigation sub-sector will concentrate on the implementation and promotion of sustainable and efficient irrigation systems, supporting the opportunities to diversify and intensify agricultural production in a manner to provide sustainable livelihoods for the farming communities, ensure food security and self-reliance in the country. Food security is defined as a condition in which all people, at all times, have physical and economic access to safe, culturally acceptable and nutritious food necessary to lead an active and healthy life. To achieve these strategies, MIWRE will undertake the following activities: • Integrate irrigation planning and management with agricultural and power development, based on the river basin approach. 24 • Implement emergency irrigation rehabilitation that will take community- based small irrigation systems as a priority, followed by repair and rehabilitation of medium- and large-scale irrigation schemes and development of new irrigation schemes at national level. • Strengthen national and local capacities of all stakeholders, public, private and community-based organisations and water user associations for planning, implementation and management of irrigation. • Improve and regulate ground water use, development and management. Successful implementation of these activities will depend significantly on the following pre-conditions: • Functionally effective coordination and partnership among all stakeholders, especially the irrigation and agriculture sub-sectors, the private sector, community organisations and water user associations; • Securing adequate financial resources and their timely allocation for all components of irrigation and agriculture and rural development; • Development of alternative livelihood and alternative crops to replace illicit drug cultivation, production and trafficking, along with employment opportunities for the large number of otherwise underemployed or unemployed people that are currently working in the poppy fields; • Enforcement of national legislation and regulations to control cross-border trading that adversely affect agriculture in Afghanistan. MIWRE has identified specific priority interventions in the irrigation sub-sector to address immediate needs in this area, including: • Current share of formal engineered schemes in the water sector, especially for irrigation is around 10%. MIWRE is planning to increase formal schemes up to 35%. This will require development of a series of medium- and large- scale dams, which will guarantee more water storage. • Improvement and introduction of specific infrastructure interventions in the traditional irrigation schemes, as part of an effort to upgrade these systems, will lead to more water storage and reduce water loss, through a series of rehabilitation and development programmes. 25 MULTIPURPOSE IRRIGATION AND HYDROPOWER DEVELOPMENT Afghanistan’s need for energy is vast. Even before the war the vast majority of rural population had no access to electricity. While the situation in some major cities has improved over the last two years, though with regular disruption, most rural people have no access to electricity. Power infrastructure, including dams, stations and supply and distribution systems have been damaged and will require many years to be re-established to reach the pre-war level. MIWRE recognises the importance of hydropower development as a major source of electricity that will have positive impact on the environment too. The demand for fuel and electricity is growing with the rapid increase in population. MIWRE will concentrate on small scale hydropower interventions at this stage, making more human and financial resources available for other more essential services, such as clean drinking water and sanitation, irrigation, environment and the water resource management. Future strategies will further expand the role of hydropower in the overall developmental goals and objectives. All interventions in the hydropower sub- sector will be carried out in close coordination and cooperation and understanding with the Ministry of Water and Power. To achieve its strategy in the hydropower sub-sector, MIWRE will coordinate and cooperate closely with the relevant line ministries, taking into consideration the following principle guidelines: • Encourage the development of cost-effective small and medium hydropower projects to meet domestic needs at an affordable price. • Encourage private sector investment in hydropower development and power distribution and service delivery on a competitive basis and under approved rules and regulations. • Provide increased government support, human, technical and financial, to develop and implement rural electrification programmes. • Integrate specific social and environmental mechanisms into all hydropower development processes. • Encourage and promote renewable and alternative energy production for rapid recovery of environment. • Encourage power-based industries and transportation system to create markets for larger hydropower generation plants. • Facilitate financial resources from domestic sector to the hydropower sub- sector and develop and implement strategies for cost-recovery, as the basis for sustainable hydropower development that is environmentally friendly. • Develop technical, managerial and institutional capacities at national and local levels that will be able to respond to both the immediate and longer-term needs of the country in hydropower development. • Establish and develop an effective coordination mechanism among all stakeholders for more efficient development and exploitation of hydropower. 26 DROUGHT MITIGATION AND FLOOD CONTROL Floods and droughts are two common phenomena in Afghanistan, often causing devastating damage, especially to the farming communities. Loss of lives, shelter and agricultural fields are some of the common characteristics of floods and droughts. During the spring and summer, the river flow can be as high as five times of average monthly flow and as high as ten times of mean daily flow. Between 1976 and 2001, the UN humanitarian assistance has reported as many as 31 major floods, affecting 1.4 million people countrywide, killing some 18,700 people and causing about US$ 414 million damage to the rural economy. Some of the provinces mostly affected by floods include Badakhshan, Baghlan, Herat, Kabul, Jowzjan, Samangan and Takhar. Over the last two decades the floods with an estimated cost of US$ 0.5 billion have affected some half a million people. In Afghanistan, drought is another disaster for the agriculture sector in particular and for the communities in general. The recent cycle of drought of 1998-2001 affected almost 90% of country and it is estimated that only 10% of the irrigation was not seriously affected by drought. Irrigated wheat production, for example, reduced by 35% from the normal production of around 2.0 million tons to 1.3 million tons. Rain-fed production virtually vanished during the same period. It also resulted in a large-scale displacement of people within the country and migration to the neighbouring countries. Therefore, the need to respond effectively to future droughts through effective measures in drought mitigation, will require specific strategies at national level. These will include measures before the drought occurs, during the drought and after the drought. MIWRE will design a set of specific strategies and interventions that can effectively respond to the long-term needs of the communities. To achieve development strategies in drought mitigation and flood control, MIWRE will adopt the following principles as guidelines: • Development of cost-effective water storage and dams that can reduce drought and flood damage through appropriate measures for rain and flood water harvesting and storage; this will also assist in recharging the aquifers and will have positive impact on the environment, consequently leading to local water security; • Introduction of drought resistant plants; • Securing government and donor financial and technical support in drought mitigation and flood control programmes; • Developing technical, managerial and institutional capacities at national and local levels that will be able to respond to both the immediate and longer-term needs of the country in relation to droughts and floods; • Establishing and developing a coordination mechanism among all stakeholders for effective and efficient instruments and approaches for drought mitigation and flood control. 27 OTHER ECONOMIC USES OF WATER Afghanistan’s present priorities for water use focuses on domestic water, irrigation and industrial water and hydropower, especially considering the challenges in these three sub-sectors over the 10-15 years. While MIWRE believes that prioritisation approaches must be based on the most urgent needs of the communities, it also believes the appropriate use of water in other economic sub- sectors should not be completely ignored. The use of water should be strategised in a manner that can effectively contribute to the national economic growth, by providing additional employment and earning additional income, while improving the quality of life at the same time through appreciation of tourism and recreational opportunities, as well as aquaculture, industrial water uses and transportation. However, strategies for these and other economic uses must be compatible with existing water needs and uses and future demands and should be sustainable and environmentally friendly. While a more detailed strategy will be required to fully address opportunities and areas of water use in other economic sub-sectors fully, the present strategy outlines a few essential actions for immediate needs to be addressed. These are: • Promote and encourage water-based recreational and eco-tourism activities; • Promote and support bottling and already identified natural springs for both the domestic use and for export; • Develop productive uses for floodplains; • Promote the development and enhancement of fisheries and aquaculture; • Promote efficient industrial water uses based on sound environmental standards and norms, including recycling, processing and treatment of wastewater; and • Establish specific regulations for zoning and development that will build confidence for private sector investment in these areas. 28 CONCLUSIONS The strategic objectives in this policy framework are a statement of Afghanistan’s short- and medium-term needs and will be expanded as the country progresses in the reconstruction, rehabilitation, and early development processes. MIWRE believes strategies must be flexible, especially as the country is going through a transitional period. Strategies - and to a certain degree policies - should be subject to change as the situation evolves and regular change occurs both within the country and in relation to its international development partners. Present and future policies and strategies should, therefore be responsive to local and national needs, and the country’s needs in dealing with its neighbouring countries. Similarly, this document outlines a brief description of major strategic interventions that MIWRE will undertake in the short- and medium-term, and will require a series of sub-sector policies and strategies, as well as technical papers and regulations to address each strategic objective separately. Successful achievement of the above strategic objectives will depend on the development of enhanced information systems, as well as on appropriate legislation and a functioning legal framework. To ensure the success of the strategies, MIWRE will address the following issues as a pre-requisite: • In relation to water-related information systems: development of a functioning information collection, analysis and dissemination mechanism; establishment of a functioning hydro-meteorological network; establishment of basin-wide water accounting systems; and integration of the water resource database with environmental database. • In relation to legal frameworks and legislation: preparation of a comprehensive national water policy and development and/or amendment of existing water resource acts; harmonise and amend existing laws and regulations that might be conflicting with national policies and interests and development processes; incorporate legislative provisions for groundwater use and management; establish procedures to enforce established acts and regulations; and establish equitable and functioning water rights and ownership. • In relation to regional cooperation for mutual benefits: appraise and understand the water needs of the neighbouring countries; pursue confidence- building measures with neighbouring countries (and implement mutually beneficial development programmes). • In relation to potable water supply, sanitation, and hygiene awareness: enhance institutional capacity for coordination, planning, implementation, management and monitoring of all stakeholders; regulate and enforce standards and regulatory mechanisms for water quality and waste discharge; facilitate and contribute to equitable water and sanitation programmes for both rural and urban areas; • adopt effective conservation and protection measures both for water resources and for the environment; and establish and develop an effective coordination mechanism with relevant public authorities, the private sector and other stakeholders, at national, provincial, and local levels. 29 SUMMARY OF THE 12-YEAR STRATEGIC PLAN FOR THE WATER SECTOR During 1381 and 1382 (2002 and 2003), the Transitional Islamic State of Afghanistan has promoted the development of National Development Budgets. This initiative was followed at the end of 1382 (December 2003) to develop a 12-year strategic plan for Afghanistan under the title “Securing Afghanistan’s Future”, known as the “Recosting Exercise” within the government institutions and international community in Afghanistan. MIWRE, together with MAAH, developed a 12-year strategic plan for the Natural Resource Management (NRM), along ten sub-programmes. Following is a list of the sub-programmes for the Ministry of Irrigation, Water Resources and Environment (MIWRE):

1. Institutional Strengthening and Capacity Building: aims to establish an effective and efficient water resources and environmental agency with sufficient capacities to be able to respond to both the immediate reconstruction and longer-term development needs of the country at national, regional and local levels. Enhancing institutional, managerial, and technical capacities of MIWRE at all levels in policy development, planning national water development, environmental management and monitoring and evaluation, as well as managing natural resources on a river basin or watershed basis.

2. National River Basin Management Programme: aims to establish decentralised integrated water resources management, based on river basin and watersheds approaches, including the generation of adequate data for planning and operational needs of water management and promotion of water conservation and harvesting.

3. National Emergency Irrigation Schemes rehabilitation Programme: aims to raise overall system efficiency in the existing schemes to increase the size of irrigated land through the extension of existing schemes and the construction of new irrigation schemes. It further aims to establish sustainable use of water through efficient operational maintenance systems that should lead to improved productivity and increased production in the agriculture sector.

4. National Long-term Irrigation and Power Programme: aims to rehabilitate all remaining plans in the existing informal and formal irrigation schemes, leading to a substantial newly irrigated land and the supply of power from small-scale hydropower plants for local consumption.

5. Environment Preservation and Regeneration: aims to protect and rehabilitate areas that are environmentally sensitive, either because they are highly degraded, contain systems of features that are ecologically sensitive in nature or are subject to significant pressure as a result of human activities within the area in question. The programme aims to generate employment in conjunction with community involvement in environmental management, particularly in protected areas. Furthermore, preservation of the genetic diversity of Afghanistan’s biological resources, introduction of environmentally sound and sustainable best practices, promotion and development of a viable private sector and the development of alternative energy to reduce the pressure on the natural resources, especially forests, are among other objectives. 30