Water Apportionment Accord 1991: A Comprehensive Guide to Pakistan’s Inter-Provincial Water Sharing

1. Introduction

Water is Pakistan’s most strategic resource that determines agriculture, hydropower generation, industry, ecosystem integrity, and domestic water supply. Pakistan is an agro-based country that is highly dependent on the Indus River System, which is one of the largest contiguous irrigation systems in the world.

Since the waters of the river are beneficial to Punjab, Sindh, Khyber Pakhtunkhwa (KP), and Balochistan provinces, there has been a historical challenge to distribute and apportion the water in an equitable manner. To resolve the disputes and ensure that the inter-provincial water sharing takes place in a just and transparent manner, Pakistan has formalized the Water Apportionment Accord 1991.

The Accord, which was signed on 16 March 1991, is considered an outstanding achievement for Pakistan’s water policy as it ensures the apportionment of water between the provinces based on a clearly defined institutional water governance framework.

Despite being in force for more than three decades, the accord is currently under the test due to the changing climatic conditions, growing population, and increasing fresh water demand.

This article highlights the history, purpose, features, implementation, achievements, and future directions for improving Pakistan’s water governance in light of the Water Apportionment Accord 1991.

2.Historical Background

The Indus Basin has sustained civilizations for thousands of years. During the British rule, the canal irrigation system was finalized, which brought prosperity to the Indus Plain. When Pakistan came into existence in 1947, irrigation became an integral part of the country’s agrarian economy.

With increased irrigation, disputes over the apportionment of river water also increased between the provinces. Additionally, the natural flow of rivers, extra demand for agricultural production, and the creation of more storage reservoirs and barrages also impacted the water sharing between the provinces and the territories.

Water apportionment in Pakistan remained an issue of contention between the provinces. However, to institutionalize water governance, a policy-level accord was finalized by the provinces that provided a water allocation framework for the Indus River System.

The Water Apportionment Accord was signed on 16 March 1991, which provided a mechanism for the provinces to share the river waters in Pakistan.

3. Why was the Water Apportionment Accord needed?

A number of factors necessitated the need for apportioning water between the provinces. Some of the primary factors included:

Increasing water demand

There has been a growing need for water for irrigation, domestic use, and industrial applications.

Disputes over water use between provinces

The provinces had frequently disputed the right to use the waters of the river system, especially during the Kharif and Rabi seasons.

Agricultural production

There was an extra demand for water for new irrigation schemes and cultivated areas.

Need for water security

There was a need to ensure food security, economic growth, and geopolitical stability through water security.

Efficient river basin management

There was a dire need to have proper water governance to manage the river system rather than ad hoc approaches.

4. Objectives of the Water Apportionment Accord 1991

The objectives of the Water Apportionment Accord 1991 were to:

Ensure fair and just water distribution among the provinces
Reduce inter-provincial water disputes
Enable transparency in water governance
Create a reliable institutional framework for water management
Facilitate planning for irrigation development
Promote optimum utilization of water resources
Ensure flexibility in water allocation according to natural flows
Ensure national water security

5. Key Features of the Accord

According to the Water Apportionment Accord, the following features stand out:

1. Apportionment of water to the provinces

The provinces have agreed to the water quotas that would be distributed annually based on a consensus.

2. Division of water on seasonal basis

The water was divided on the basis of the Kharif and Rabi seasons.

This is mainly due to the fact that Pakistan is predominantly an agricultural country with massive water demand during these seasons.

3. Consensus-based approach

The Water Apportionment Accord promotes the principle of consensus-building rather than the majority vote basis.

4. Flexible apportionment of water

There is also flexibility to apportion water on monthly and annual basis depending upon the water availability.

5. Creation of new storages

The Accord also emphasizes the need to create additional storages to harness the country’s water resources in order to ensure optimum utilization of the water in Pakistan.

6. Provincial Water Allocations

According to the water apportionment accord, each province has been allocated a certain percentage of the total water in the system. The water is measured in Million Acre-Foot (MAF).

Province	Allocation (MAF)

Punjab	55.94
Sindh	48.76
Khyber Pakhtunkhwa	8.78
Balochistan	3.87
Total	117.35

This table shows the share of each province in terms of water allocations. It must be noted that the number of MAF changes depending upon the inflow into the canal system.

Seasonal Water Distribution

The Water Apportionment Accord also makes a distinction between the water allocated for the Kharif and Rabi seasons.

Season Description

Kharif Higher water flows due to melting snow and rains; ideal for cultivating rice, cotton, maize, sugarcane, etc.

Rabi Lower water flows; suitable for growing barley, wheat, gram, linseed, and mustard

One of the key challenges for Pakistan’s water governance is to address the seasonal demand-supply gap.

7. Institutional Framework for Implementing the Water Apportionment Accord 1991

To ensure the effective implementation of the Water Apportionment Accord 1991, Pakistan has put in place an institutional framework for the regulation of river flows, canal releases, reservoir operations, and water distribution among provinces.

The institutional framework fosters transparency, collaboration, and data-sharing to promote harmony in apportionment and mitigate competing demands.

Key Agencies

The following institutes constitute the institutional framework for implementing the Water Apportionment Accord 1991:

Institution Responsibilities

Indus River System Authority(IRSA) Inter provincial water apportionment under the Water Apportionment Accord 199

Ministry of Water Resources National water policy

Water and Power Development

Authority (WAPDA) Dam construction and hydropower projects

Provincial Irrigation Departments Canal operations and management

Pakistan Meteorological Department(PMD) Weather forecasts and hydrological information

Federal Flood Commission (FFC) Flood management

Together, the institutes form an institutional framework for water management in Pakistan.

8. The Role of the Indus River System Authority (IRSA)

The Indus River System Authority (IRSA) has been constituted by the Indus River System Authority Act, 1992, for the apportionment of waters of the Indus River System among Punjab, Sindh, NWFP, and Balochistan in accordance with the Water Apportionment Accord 1991.

IRSA is the primary authority for apportioning water among the provinces in Pakistan.

Responsibilities of IRSA

Under the Indus River System Authority Act, 1992, the IRSA is mandated to:

Implement the Water Apportionment Accord 1991
Ascertain the share of each province in a given season
Monitor reservoirs and river discharges
Coordinate reservoir operations
Settle disputes relating to the operation of the Accord
Conduct research and data collection
Advise the Federal Government on matters relating to water apportionment

Through the responsibilities, IRSA serves as a central agency in water management in Pakistan.

How Water Is Distributed under the Accord

The distribution process under the Accord involves several steps designed to promote equity and transparency in apportionment.

Procedure for Allocating Water under the Accord

Step 1: Measurement of River Flows and Inflows

River flows are measured at designated gauges throughout the Indus Basin.

Step 2: Assessment of Water Resources Availability

The IRSA takes into account the following factors:

Storage in reservoirs
River flows and inflows
melting snow forecasts
Rainfalll
Canal requirements

Step 3: Preparation of Seasonal Operating Policies

The operating policies are prepared on an annual basis for Kharif and Rabi seasons.

Step 4: Water Distribution According to Proportional Shares

The water is distributed according to the provincial shares apportioned by the Accord while considering the resource availability.

Step 5: Monitoring of Compliance and Operations

The compliance with the operating policies and the implementation processes are monitored to facilitate adaptive management of water resources in accordance with the set guidelines.

9. Achievements of the Water Apportionment Accord 1991

Over the years since its inception, the Water Apportionment Accord 1991 has registered numerous achievements in terms of benefits reaped from the equitable distribution of water among the provinces.

1. Reduction in Inter-provincial Water-related Conflicts

Prior to the promulgation of the Accord, inter provincial disputes over water had intensified and threatened the harmony between various provinces. The Accord provided a policy framework for apportioning water among the provinces on an equitable basis, thus eliminating various sources of discord.

2. Strengthening of National Water Governance

The Accord has significantly contributed to the improvement of national water governance in Pakistan. This is evident from the enhanced institutional framework and the use of empirical data in decision making in water management.

3. Improvement in Irrigation Planning

The provision of water in accordance with the stipulated provincial shares has facilitated effective planning of agricultural production, canal operations, and reservoir management.

4. Institutional Capacity Building

The creation of the Indus River SystemAuthority (IRSA) has played a significant role in strengthening institutional capacity for water management in Pakistan.

5. Achievement of National Unity

Perhaps the most significant achievement of the Water Apportionment Accord 1991 relates to fostering a spirit of national unity and cooperation among the provinces as they strive to achieve national development goals.

10. Challenges of Implementing the Accord

Despite the significance of the Water Apportionment Accord 1991 in water management, there are numerous challenges in its implementation. Some of the challenges impeding optimal utilization of water resources in accordance with the Accord include:

1. Climate Change

Climate change is a major threat to the sustainability of water resources in Pakistan, thus hindering the implementation of the Accord.

Some of the impacts of climate change which pose a challenge to implementation of the Accord are:

Increased glacier melt and snowfall
More frequent and severe floods and droughts
Changes in river flow patterns

2. Rising Population

Since 1991 when the Accord was signed, Pakistan’s population has increased tremendously. The rise in population has led to an increase in demand for food, water, and energy, thus putting pressure on the available water resources.

3. Decline in Water Use per Person

Although Pakistan is endowed with abundant water resources, the availability of water per person has declined over time due to an increase in population and limited water resources.

4. Losses from Irrigation Systems

A considerable amount of water is lost from irrigation systems due to seepage, leakage, poor maintenance, water theft, and ineffective distribution policies.

5. Reservoir Sedimentation

The reservoirs provided for in the Accord are increasingly being silted up, thus limiting their usefulness in storing water.

6. Groundwater Exploitation

Due to the limitations of the surface water resources, farmers overuse groundwater which has adverse impacts on groundwater resources, such as:

Depletion of groundwater resources
Increased cost of drilling
Groundwater salinity
Groundwater contamination

11. Climate Change and the Future of Water Allocation

The Water Apportionment Accord 1991 is being implemented in an era of climate change, which presents a great challenge to the implementation process.

Therefore, policy makers, researchers, and practicing hydrologists must consider future climate change scenarios in water allocation and management.

Importance of Water Governance

Water governance plays a critical role in ensuring that the principles of the Water Apportionment Accord 1991 are upheld to promote equitable distribution of water in Pakistan.

Good water governance facilitates transparent decision-making based on factual information and ensures accountability in the implementation of the policies.

The concept of water governance promotes stakeholder participation in the decision-making process as well as scientific decision making based on empirical evidence.

To realize effective water governance that promotes equitable distribution of water in accordance with the Water Apportionment Accord 1991, the following must be undertaken:

Transparent Decision Making

Transparent decision making entails dissemination of reliable information regarding water distribution and management.

Stakeholder Involvement

Water governance will enhance water management in Pakistan if all stakeholders such as farmers, researchers, water professionals policymakers, water users, media, and civil society participate in the decision making process.

Accountability in the Implementation Process

Various water governance institutions should be held accountable for their roles and responsibilities in the implementation of the Water Apportionment Accord 1991. This will promote effective execution of the implementation framework.

Adoption of Scientific Approaches to Water Allocation

Implementation of the Water Apportionment Accord 1991 should be informed by current scientific approaches to improve accuracy of water distribution, management, and allocation.

12. Policy Recommendations for Effective Implementation of the Accord

For the Water Apportionment Accord 1991 to be effectively implemented in order to achieve its intended objectives, the following recommendations are proposed:

Modernizing Water Monitoring Systems

Water monitoring systems should be modernized using advanced technologies such as remote sensing and telemetering to enhance accuracy and transparency in water accounting.

Increasing Water Storage Capacity

There is a need to construct new reservoirs and maintain existing ones in order to increase water storage capacity for efficient regulation of seasonal flows, and to meet the growing demand for freshwater.

Improving Irrigation Practices

There is a need to emphasize on the use of efficient irrigation practices and canal linings to minimize water losses from canal systems and ensure sustainable agricultural production.

Enhancing Collaboration among Water Sector Agencies

The following institutes should collaborate closely for effective implementation of the Water Apportionment Accord 1991:

Indus River System Authority (IRSA)
Water and Power Development Authority (WAPDA)
Provincial Irrigation Departments
Ministry of Water Resources
Research institutes and universities

Integrating Climate Change Considerations

Future water allocation policies should incorporate climate change adaptation measures including flood control and drought management measures.

Water Apportionment Accord 1991 and Sustainable Development

The Water Apportionment Accord 1991 promotes sustainable development by supporting the attainment of the Sustainable Development Goals (SDGs). Some of the SDGs that the Water Apportionment Accord promotes are outlined below:

SDGTarget

SDG 2 – Zero HungerSupports the achievement of food security through increased agricultural production

SDG 6 – Clean Water and SanitationFacilitates equitable allocation of water resources

SDG 13 – Climate ActionPromotes adaptive water management in response to climate change

SDG 15 – Life on LandPromotes sustainable management of water resources

Water Apportionment Accord 1991 is key to attaining sustainable development in Pakistan.

13. Future Outlook for the Water Apportionment Accord

Water apportionment accord 1991 provides a framework for the allocation of waters among Pakistan’s provinces. However, the country’s water sector is encountering unprecedented challenges, including climate change, burgeoning population, urbanization, industrialization, and environmental degradation, among others.

Implementation of the accord in the future will require looking beyond water allocation and considering integrated water resources management.

Future issues to consider regarding water apportionment accord 1991 include:

Climate-Resilient Apportionment

With climate change, the Indus basin is experiencing extreme weather conditions, including prolonged droughts and severe floods. Water apportionment in the future should incorporate climate forecasts, reservoir operation policies, and hydrological models to inform decision-making.

Storage Development

Developing large-scale reservoirs and storage facilities is necessary in view of rising water demand, prolonged droughts, and seasonal floods, among other factors. Pakistan currently only stores a small percentage of its river discharge, limiting its water availability and adaptive capacity.

Modernization of irrigation systems

Modernizing traditional irrigation techniques and systems will increase water productivity and ensure sustainable agricultural development. Current practices, which entail high wastage of water, are no longer efficient or appropriate, given the country’s dwindling resources.

Digitalization of water governance

Digital technologies, including remote sensing, geographic information systems, artificial intelligence, Internet of Things, and telemetry, can facilitate transparent and effective watergovernance, as well as accurate data capture and analysis.

Enhanced cooperation and institutional coordination

IRSA, WAPDA, research institutions, and universities need to collaborate more closely to advance water policy and improve water governance in general.

14. Water Apportionment Accord 1991 vs. Indus Waters Treaty 1960

The table below compares some aspects related to the Water Apportionment Accord 1991 and the Indus Waters Treaty1960.

Feature	Water Apportionment Accord 1991	Indus Waters Treaty 1960
Scope	Water sharing among Pakistan's provinces	Water sharing between India and Pakistan
Parties	Punjab, Sindh, Khyber Pakhtunkhwa, Balochistan	India and Pakistan
Purpose	Inter-provincial allocation	International river management
Implementing Institution	IRSA	Permanent Indus Commission
Focus	National water governance	Transboundary water management
Legal Basis	Political consensus and federal implementation	International treaty

Legal framework: Domestic Legal framework: International

Both water treaties contribute to the management of Pakistan’s water resources. Whereas the Indus Waters Treaty addresses inter-state water management issues, the Water Apportionment Accord deals with intra-state matters. They complement each other and should be implemented in a synergistic manner to achieve sustainable water use across the Indus basin.

Can the Accord address current and future water challenges?

The Water Apportionment Accord 1991 provides a robust framework for water management and policy in Pakistan. However, future water governance will require adaptive and flexible policy frameworks that take into account changing climatic conditions, growing water demand, and emerging technologies in the field.

Key Takeaways

Water Apportionment Accord 1991 is Pakistan’s primary water management framework for allocating water among the provinces. The Accord makes provision for dividing the water in accordance with the availability and the needs of the soil. IRSA is the institution mandated to implement the accord. The agreement has facilitated amicable water use among the provinces and ensured continued agricultural productivity. Current challenges that affect the implementation of the Water Apportionment Accord 1991 emanate from climate change, increasing demand for water, and unsustainable groundwater use. Addressing these issues will require investment in modern technology, enhanced institutional coordination, improved irrigation systems, and additional water storage facilities among other adaptive measures.

Conclusion

Water Apportionment Accord 1991 is one of Pakistan’s key achievements in water management. It has provided a firm policy framework for the apportionment of water among the provinces, resulting in enhanced agricultural production and harmonious co-existence. The accord has also helped Pakistan to achieve some degree of national cohesion and security. Nevertheless, the country faces some challenges in water management, including climate change, groundwater depletion, and increased demand for water.

Moving forward, Pakistan needs to invest in expanding and modernizing its irrigation infrastructure and water storage facilities and adopt integrated water resources management to ensure that water is used sustainably and productively. In addition, improved monitoring and evaluation of water resources, as well as strong institutional coordination and cooperation, will be critical in promoting effective water governance. A science-based, transparent, and coordinated approach to water management will yield desirable results in terms of water security, environmental sustainability, and national security for Pakistan.

Frequently Asked Questions (FAQs)

What is the Water Apportionment Accord 1991?

The Water Apportionment Accord 1991 is an inter-provincial water management agreement that facilitates the allocation of the waters of the Indus River System among Punjab, Sindh, Khyber Pakhtunkhwa, and Balochistan.

Why was the Accord signed?

The Accord was signed to ensure harmonious allocation and use of the water resources among the provinces.

When was the Water Apportionment Accord signed?

The Water Apportionment Accord was signed on 16 th March 1991, following exhaustive deliberations among the provinces.

Which institution manages the Accord?

Indus River System Authority (IRSA) is the implementing agency that facilitates the apportionment of water among the provinces in accordance with the Accord.

How much water is allocated under the Accord?

According to the Accord, about 117.35 Million Acre Feet (MAF) of water are divided among the four provinces as per their shares and the availability of water resources.

Why is the Accord important?

The Accord promotes equity, national cohesion, and food security by ensuring that water is distributed based on the needs of the soil and the water available in the river system

What are the main challenges facing the Accord?

The following challenges hinder the smooth implementation of the Accord and affect water use in general:

• Climate change

• Demographic shifts

• Reduction in per capita water availability

• Groundwater depletion

• Reservoir siltation

• Aging irrigation infrastructure

• Increasing demand for water

Related Link

External References

Water Apportionment Accord 1991: Complete Guide to Pakistan’s Inter-Provincial Water Sharing