Trimmu and Panjnad Barrages Improvement Project (RRP PAK 47235)

SECTOR ASSESSMENT (SUMMARY): AGRICULTURE, NATURAL RESOURCES,

AND RURAL DEVELOPMENT

Sector Road Map

1. Sector Performance, Problems, and Opportunities

1. Pakistan’s agriculture sector has been the main source of food production for the country’s
ever-increasing population, which has grown from 33.7 million in 1951 to 184.0 million in 2013,1
and is expected to produce adequate food for a projected population of 221.0 million by 2025. Its
share in the country’s gross domestic product (GDP) has declined from 29.0% in 1985 to 23.0% in
2011 and 21.4% in fiscal year (FY) 2013 (July–June). Nevertheless, it remains the second largest
contributor to GDP after the services sector, which contributed 57.7% of the GDP during FY2012-
2013.2 The sector provides employment for 45% of the nation’s labor force and remains the main
livelihood source for the majority of Pakistan’s rural population.

2. Agriculture plays an important role in Pakistan’s transformation towards industrialization. It

supplies raw materials to industries such as textiles and food processing, and is among the biggest
purchasers of industrial products such as chemicals, fertilizers, pesticides, and machinery.
Agriculture also accounts for the majority of Pakistan’s exports in the form of semi processed and
agro-based products, and is the main source of foreign exchange earnings. The agriculture sector
has been and is likely to be one of the main drivers of Pakistan’s economic growth, ensuring food
security and poverty reduction.

3. The Ministry of Planning and Development has estimated that the agriculture sector has to
grow at 5% per year to reduce the poverty incidence and ensure food security, and for the national
economy to reach its 7%–8% annual growth target.3 However, the agriculture sector has been
performing below its potential, averaging a low annual growth rate of only 3.3% over 2003-2013,
reflecting in part the low level of public and private investment in the sector. Less than 10% of the
country’s total gross capital formation goes to agriculture, notwithstanding its contribution to GDP
(footnote 2), and gross capital formation has declined steadily during 2008 and 2013 to its lowest
share of GDP since the 1970s.

4. Land and water resources are the important natural resources contributing to agriculture.
With an average annual rainfall of 240 millimeters and mostly semi-arid and arid country, Pakistan’s
agriculture sector is heavily dependent on irrigation. About 80% of arable land and over 90% of
agriculture output depends on irrigated agriculture, and irrigation uses about 95% of the country’s
water resources. Out of 22.04 million hectares (ha) of cultivated land in Pakistan, approximately 18.8
million ha are irrigated, with the remainder being barani (rain-fed) agriculture areas.4

5. Pakistan’s Indus River basin covers around 65% of the country’s territory and is the main
source of water.5 The annual renewable water resource is 246.8 cubic kilometers (km3), which
includes 18% groundwater.6 The annual wastewater is estimated as 12.5 km3. The country’s water

1
Ministry of Finance, 2013. Pakistan Economic Survey 2012–2013, June 2013. Islamabad: Government of Pakistan.
2
Ministry of Finance. Pakistan Economic Survey, 2012–2013. Islamabad: Government of Pakistan.
3
Ministry of National Food Security and Research. 2013. Draft Agriculture and Food Security Policy. Islamabad:
Government of Pakistan.
4
Bureau of Statistics. 2013. Agriculture Statistics 2011–2012. Islamabad: Government of Pakistan,
5
Food and Agriculture Organization (FAO) of the United Nations. Aquastat, FAO's Information System on Water and
Agriculture. http://www.fao.org/nr/water/aquastat/basins/indus/index.stm.
6
Based on FAO Aquastat data www.fao.org/nr/aquastat/. FAO aquastat uses the dependency ratio of 78% for renewable
water resources.
2

availability per capita declined from 5,000 cubic meters (m3) in 1950 to 1,068 m3 in 2013, close to the
water scarcity threshold of 1,000 m3 per capita. 7 Water resources also face problems of high
temporal and spatial variability and water quality degradation.

6. Performance of the Indus basin irrigation system, the lifeline of Pakistan’s agriculture sector,
has been low both in terms of water adequacy and reliability. Crop water requirements in the system
have dramatically increased as a result of cropping intensities and cultivation of high
water-consuming crops, such as sugarcane and rice. While the demand for canal irrigation water has
increased, surface water availability has essentially remained the same as no new reservoirs have
been constructed on the Indus River since 1976. Irrigation efficiency is also low at about 40%, which
means that 60% of water available at the head of the main canal is lost either in conveyance (though
some goes for groundwater recharge) or during its use at the farm level.

7. Agriculture productivity per unit of water, land, and other inputs is well below global and
regional standards because of water shortages, land degradation, and mismanagement of water
resources.8 The poor condition of the irrigation and drainage infrastructure and weak management
practices result in unreliable surface irrigation service delivery. The Indus basin irrigation system is
also financially unsustainable, recovering only on average 24% of the costs necessary for the
effective management of the irrigation infrastructure.9 As a result, asset management remains a
pervasive problem as the irrigation departments routinely defer maintenance because of the lack of
funds to cover operation and maintenance costs.

8. Groundwater ensures reliable and equitable water resource and contributes 40%–50% of
irrigation supplies. Over 90% of groundwater is used to supplement insufficient surface water
supplies in canal-irrigated areas, and constitutes the major source of water in more than half of the
canal commands in Punjab, the country’s agricultural heartland (footnote 3). However, in several
areas (especially at the tail end of canals in Punjab), intensive pumping has led to the lowering of
groundwater levels by an average of 1 meter annually, resulting in high pumping costs and
saltwater intrusion. The balance between recharge and groundwater pumping is in peril.10 Given
the importance of this resource for agriculture and other sectors, effective groundwater
management is of critical social and economic importance.

9. About 20% of Pakistan’s cultivable area is outside the Indus basin irrigation system. Farming
in most of these areas is almost exclusively dependent on rainfall, resulting in low agricultural
productivity. Some of the country’s poorest populations also reside in these barani areas and are
dependent on agriculture for most of their income. Improvement in their livelihood greatly depends
on gains in agriculture. Without a secure source of water for irrigation, however, farming in barani
areas is both a low-productivity and high-risk venture.

10. Pakistan is susceptible to climate change impacts, including greater unpredictability in

monsoon and rains leading to more frequent and intense floods or droughts. Already stressed water
resources will be further strained by variability in flows in the Indus River system as a result of

7
Based on FAO aquastat data and author’s analysis. www.fao.org/nr/aquastat/ (accessed 7 December 2013). The water
scarcity indices follows Falkenmark, M. 1989. "The massive water scarcity threatening Africa-why isn't it being
addressed." Ambio 18, no. 2 (1989): 112-118.
8
Friends of Democratic Pakistan Water Sector Task Force. 2012. A Productive and Water-Secure Pakistan:
Infrastructure, Institutions, Strategy. Islamabad.
9
Planning Commission. 2012. Canal Water Pricing for Irrigation in Pakistan: Assessment, Issues and Options. Islamabad:
Government of Pakistan.
10
In some of the arid zones, such as Balochistan, aquifers have been exhausted and groundwater use in some critical
aquifers is a small portion of what it once was.
 3

glacial melt. Sea-level rise will exacerbate saline water intrusion and further damage the already
fragile coastal zones and marine ecosystems, with greater likelihood of increased storms.

11. Opportunities exist to bring an additional 8.3 million ha of arable land under irrigation and
improve the water and land productivity by 1.5–2.0 times. Additional storages on the Indus River
can harness the flood flows for irrigation, hydro power development, and flood mitigation.
Construction of small dams in rain-fed areas can develop irrigated agriculture and stabilize crop
yield through supplemental irrigation, thereby improving rural livelihoods, reducing poverty, and
contributing to greater food security in these areas. Improved irrigation infrastructure and service
delivery via irrigation reforms can minimize the impact of climate change and ensure the
sustainability of irrigated agriculture, thereby contributing to food security.

2. Government’s Sector Strategy

12. The federal government’s Framework for Economic Growth sought to accelerate and
sustain economic growth with a focus on improving productivity, to which the agriculture sector is a
key contributor. The growth strategy accorded priority to investments for the development and
efficient management of water resources through (i) augmentation of surface water resources
through the construction of additional storage; (ii) conservation measures (lining irrigation channels
and watercourses, and modernizing and rehabilitating the country’s irrigation system) and efficiency
enhancements for better management of the system; (iii) protecting the systems from flood impacts;
and (iv) addressing land degradation resulting from waterlogging and salinity. The Ministry of
Planning and Development is reviving the 5-year planning process and is currently working on a
new 2013–2018 development strategy focused on reviving the economy for balanced and
sustainable growth by promoting private sector and transforming productive sectors, such as
agriculture, towards value addition through innovation, enhanced quality, and productivity.

13. Punjab derives 90% of its agricultural production from its 8.4 million ha of irrigated land and
accounts for 80% of Pakistan’s agricultural production. The government of Punjab’s Medium-Term
Development Framework (2012–2015) aims to provide adequate, equitable, and reliable irrigation
to enhance agricultural productivity by (i) expanding irrigated agriculture; (ii) modernizing existing
irrigation infrastructure; (iii) mainstreaming sustainable use of surface and groundwater resources;
(iv) reducing land degradation and extending and improving drainage and flood protection; (v)
improving productivity of rain-fed areas; and (vi) implementing broad-based reforms to improve
service delivery. 11 The government of Khyber Pakhtunkhwa will increase water availability;
modernize existing irrigation; invest in new irrigation infrastructure, water conservation, and
groundwater regulation; and expand flood protection efforts in response to potential climate change
impacts.12 The sector focus for the Federally Administered Tribal Areas (FATA) is to bring more
agricultural land under irrigation by conserving recharge groundwater, diverting perennial water,
and harvesting seasonal run-off.13

3. ADB Sector Experience and Assistance Program

14. Since 1970, ADB has provided $3.7 billion in loans and grants and $45.0 million in technical
assistance to Pakistan’s agriculture sector. The water resources subsector has been the largest
recipient with loans totaling $2.1 billion, followed by agricultural production and markets ($916
million) and area-based rural development ($311 million).14 The recent focus of assistance has been

11
Government of Punjab. 2013. Medium-Term Development Framework 2013–2016 and Development Programme 2013–
2014. http://www.pndpunjab.gov.pk
12
Government of Khyber Pakhtunkhwa. 2010. Comprehensive Development Strategy 2010–2017. Peshawar.
13
Government of Pakistan. 2007. FATA Sustainable Development Plan, 2007–2015. Peshawar.
14
ADB. 2006. Evaluation of the Agriculture and Natural Resources Management Sector. Manila.
4

on sector-specific policy reforms to promote freer markets in agricultural inputs and outputs,
community-based area development projects, and rehabilitation of provincial irrigation infrastructure
through both sector and project loans. Under the country partnership strategy (CPS), 2009–2013,
ADB provided support to the development of water resources to support investments and reforms in
the irrigation, drainage, and flood protection subsectors.15

15. Under the new CPS, ADB will continue to focus on improving agricultural production and
economic growth and reducing rural poverty and food insecurity, while conserving the natural
resource base. Ongoing and new water resource investments will directly contribute to achieving
sector outcomes through (i) provision of better irrigation and water resources infrastructure, and
improved irrigation service delivery and water resources management; (ii) rehabilitation and
upgrading of the Indus basin irrigation system and associated infrastructure; (iii) establishing new
nonperennial irrigation systems; (iv) supporting irrigation and water resources reform initiatives; and
(v) strengthening government and local community capacity for better water management.

16. ADB will complete three ongoing projects under the $700 million multitranche financing
facility (MFF) for the Punjab Irrigated Agriculture Investment Program and undertake a new $150
million stand-alone project in Punjab. ADB will also support four new stand-alone interventions to
increase agriculture productivity and improve the natural resource base in the arid and semi-arid
areas of Balochistan, FATA, Khyber Pakhtunkhwa, and Punjab. The benefits from these projects
will be improved water supply and agricultural production, enabling diversification into high-value
crops; increased farm incomes; economic growth; and improved resource sustainability in the
project areas.

17. Ongoing and planned interventions by major donors to the sector, such as the Japan
International Cooperation Agency, the United States Agency for International Development, and the
World Bank, will continue to complement the ADB program. These partners also provide support to
the irrigation subsector in Balochistan, Punjab, and Sindh provinces for increased water security;
enhance agricultural production; and strengthening the capacity of government institutions, water
users, and community organizations for more effective planning and management.

18. To ensure a more climate-adaptable sector, ADB-supported large infrastructure schemes

will be designed to be more climate resilient.16 ADB will also work with the government to prepare a
flood policy and an integrated flood and drought management plan, and bring integrated water
resources management practices into operation. ADB’s climate-resilient interventions will support
better watershed management, water harvesting, and appropriate cropping and farming systems in
the fragile arid and semi-arid regions, and sustainable coastal management in Sindh and
Balochistan provinces.

19. Women will be important beneficiaries of ADB interventions. Lessons learned from
ADB-funded water resources projects suggest providing interventions such as drinking water supply
and provision of washing and sanitation facilities along the canals. Under the new CPS, ADB’s
support to the sector will significantly improve women’s access to water and provide other
gender-based opportunities, such as (i) increasing women’s participation at the design and
implementation stage, (ii) engaging women in water user groups and associations, and (iii)
improving women’s livelihood opportunities. ADB will also explore opportunities to support
innovation and improved technologies through research efforts and development of knowledge
products that could lead to private sector investment opportunities.

15
ADB. 2009. Country Partnership Strategy: Pakistan, 2009–2013. Manila.
16
This will be achieved through increasing flood capacity, structural safety, and hydraulic performance.
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Problem Tree for Agriculture, Natural Resources, and Rural Development

Food insecurity, high rural poverty,

and slow economic growth

Slow growth of agriculture sector Rapid environmental degradation

Effects

Farmers’ low capacity, low input level, Low interest of private sector in
and lack of confidence in agriculture investment in farming and rural areas

Core problem Declining agricultural production

Low productivity of Crop water stress, lack of crop High risks of floods
rain-fed agriculture diversification, and low yield and land degradation

Water deficit Under-performin Under-performi Limited Encroachment Reduced

and land g agriculture ng irrigation and options for over flood land for
degradation support services drainage reservoirs plains and agriculture
waterways
Causes

Declining water Weak Underfunding Deteriorated Inadequate Improper land

quality and quantity research for operation irrigation drainage water use and weak
and reduced and and and flood storage implementation
agricultural water extension maintenance protection facilities capacity
share services

Competition for water among agriculture, Poor water Competition

industrial, urban, environment, and energy sectors governance for land

Low and erratic Limited water and land Ever-increasing

rains resources population
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Sector Results Framework

(Agriculture, Natural Resources, and Rural Development, 2015–2019)

Country Sector
Outcomes Country Sector Outputs ADB Sector Operations
Indicators
Outcomes with
with Targets Outputs Main Outputs
ADB and with ADB Indicators with Planned and Ongoing Expected from ADB
Contribution Baselines Contribution Incremental Targets ADB Interventions Interventions
Reliable Reliable Irrigation  One barrage and 3,500 Planned key activity Planned key activity
irrigation water infrastructure km irrigation canals areas areas
supplies, supply to rehabilitated rehabilitated/upgraded - New construction and - About 90,000 ha land
reduced about 2 and by 2016 compared to improvement of canals improved with new
flood risks, million ha upgraded 2008 and appurtenant irrigation supplies
and  One new barrage structures (70% of - Private agricultural
sustained Agricultural New serving 1.1 million ha funds) support system
agricultural production irrigation constructed by 2016 - Irrigation reforms and serves over 50,000
production in maintained infrastructure compared with 2012 capacity building (30% ha
the project over 2 developed  New irrigation canals of funds) - Farmers’
areas million ha serve 90,000 ha Pipeline projects with organization
Irrigation and  Three new irrigation estimated amounts manages irrigation
About water projects initiated and  TPBIP (loan amount distribution system of
300,000 resources 90,000 ha improved by $150 million) about 80,000 ha
people reforms 2016  FATA Water Resources Pipeline projects
protected introduced  54 farmer Development ($47
from high Capacity of million) - Rehabilitation and
organizations manage upgrading of the two
flood risk the irrigation irrigation distribution  KP Water Resources
by 2019 officials and barrages serving 1.7
systems serving Development ($100
(2014 farming million ha
700,000 ha by 2016 million)
- About 2,000 ha
baseline; communities compared to none in  JIP ($100 million)
none). enhanced improved with
2012  BWRDP ($100 million) irrigation supplies
 More than 1,000 Ongoing projects with
Flood farmers and 50 staff approved amounts
passing Ongoing projects
from Punjab Irrigation PIAIP MFF:
capacity of Department trained  Loan 2299-PAK ($217.8 - About 3,500 km of
existing canals rehabilitated
barrages  Flood passing capacity million) for LBDCIP
- About 700,000 ha
of the two barrages  Loan 2300-SF ($10
enhanced million) for PDF ensured with reliable
enhanced by 1.4–1.5
 Loan 2841-PAK(SF) irrigation supplies
times by 2016 - Two barrages
($270 million) for NKBP
upgraded
 Loan 2971-PAK ($73
- About 54 farmers’
million) for PCSBIP
organizations
established and
trained in operational
management of
irrigation system
ADB = Asian Development Bank, BWRDP = Balochistan Water Resources Development Project, FATA = Federally
Administrated Tribal Areas, ha = hectare, JIP = Jalalpur Irrigation Project, km = kilometer, KP = Khyber Pakhtunkha, MFF =
multitranche financing facility, LBDCIP= Lower Bari Doab Canal Improvement Project, NKB = New Khanki Barrage Project,
PCSBIP = Pakpattan Canal and Suleimanki Barrage Improvement Project, PDF = Project design facility, PIAIP = Punjab
Irrigated Agriculture Investment Program, TPBIP = Trimmu and Panjnad Barrages Improvement Project.