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Abbottabad - Integrated Development Vision

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Strategy for SustainableDevelopment

Abbottabad

The designation of geographical entities in this book and the presentation of material do notimply the expression of any opinion whatsoever on the part of IUCN concerning the legalstatus of any country, territory or area, or of its authorities, or concerning the delimitation ofits frontiers or boundaries.

Published by:IUCN, Sarhad Programme.

Copyright:© 2004 International Union for the Conservation of Nature and Natural Resources, Pakistan,and the Government of the North West Frontier Province (NWFP).

Abbottabad—An Integrated Development Vision (Abbottabad Strategy for SustainableDevelopment) was prepared by the Government of the NWFP (Planning and DevelopmentDepartment) in collaboration with IUCN-The World Conservation Union. It was supported bythe Swiss Agency for Development and Cooperation (SDC).

Citation is encouraged. Reproduction and/or translation of this publication for educational orother non-commercial purposes is authorised without prior written permission from IUCNPakistan, provided the source is fully acknowledged.

Reproduction of this publication for resale or other commercial purposes is prohibited withoutprior written permission from IUCN Pakistan.

The contents of this document and the opinions expressed do not constitute an endorsementby the SDC.

Citation:IUCN Pakistan (2004). Abbottabad—An Integrated Development Vision (Abbottabad Strategy for Sustainable Development). IUCN Pakistan and NWFP, Karachi, Pakistan. xvi +172 pp.

Resource Person:Khalid Saranjam Khan

Editor:Firuza Pastakia

ISBN:969-8141-71-5

Design:Creative Unit (Pvt.) Ltd.

Layout:Azhar Saeed, IUCN Pakistan Country Office

Printed by:The Times Press (Pvt.) Limited.

Available from:IUCN-The World Conservation Union, PakistanSarhad Programme OfficeHouse No. 109, Sarhad Office RoadDefence Officers ColonyKhyber Road, PeshawarTel: 091-5271728/5276032Fax: 091-5275093

IUCN-Abbottabad OfficeDistrict Government SecretariatAbbottabadTel: 0992-9310358Fax: 0992-332449www.acs.iucnp.org

ContentsAbbreviations iv

Introduction vReader»s Guide vii

Executive Summary viii

PART I BACKGROUND1. Genesis and History 32. Governance and Sustainable Development 11

PART II GREEN SECTORS3. Agriculture and Horticulture 194. Forests and Watersheds 255. Livestock and Poultry 336. Grazing Land and Fodder Reserves 397. Biodiversity, Parks and Protected Areas 458. Fisheries 51

PART III BROWN SECTORS9. Mining 5710. Energy 6111. Waste Water and Solid Waste Management 6512. Land Use Planning and Zoning 73

PART IV SOCIO-ECONOMIC SECTORS13. Education 7914. Health and Population Welfare 8715. Infrastructure: Roads and Communications 9516. Drinking Water 10117. Ecotourism 10718. Enterprise Development 11319. Culture 11720. Gender 119

PART V TOWARDS SUSTAINABLE DEVELOPMENT21. Sustainable Development Priorities 12722. Implementation Framework 13523. Resource Mobilisation 15124. Assessing Progress 159

Annex 1: NWFP Local Government Ordinance 2001 166Annex 2: Bibliography 169

Annex 3: Map of Abbottabad 172

ADB Asian Development Bank AFSD Abbottabad Fund for Sustainable DevelopmentAMC Ayub Medical College and Hospital Complex ASSD Abbottabad Strategy for Sustainable DevelopmentBADP Barani Area Development Project CBO Community-Based OrganisationCNG Compressed Natural Gas DCO District Coordination Office EDO Executive District OfficerEIA Environmental Impact AssessmentEPA Environmental Protection AgencyGDA Galliyat Development AuthorityGoNWFP Government of the North-West Frontier ProvinceGoP Government of PakistanIT Information TechnologyIUCN The World Conservation Union KfW Kreditanstalt für Wiederaufbau L&DD Livestock and Dairy Development DepartmentLGO Local Government Ordinance 2001 LPG Liquefied Petroleum Gas MSU Multi-Donor Support Unit NCS Pakistan National Conservation StrategyMTR Mid-Term ReviewNGO Non-Governmental OrganisationNRCP Natural Resource Conservation ProjectNSSD National Strategies for Sustainable DevelopmentNWFP North-West Frontier ProvinceOECD Organisation for Economic Co-operation and DevelopmentPFC Provincial Finance Commission PRSP Poverty Reduction Strategy PaperPTA Parent-Teacher Association PTDC Pakistan Tourism Development CorporationRs RupeesSDC Swiss Agency for Development and CooperationSEA Strategic Environmental Assessment SHYDO Sarhad Hydel Development Organization SPCS Sarhad Provincial Conservation StrategySRSP Sarhad Rural Support ProgrammeSTC Sarhad Tourism CorporationTMA Town Municipal Administration UN United Nations UN-MDG United Nations Millennium Development GoalsWAPDA Water and Power Development AuthorityWB World BankWSSD World Summit on Sustainable Development

ABBREVIATIONS

iv Abbottabad Strategy for Sustainable Development

vAbbottabad Strategy for Sustainable Development

The sustainable development agenda of the North-West FrontierProvince (NWFP) is spelled out in the pioneering Sarhad ProvincialConservation Strategy (SPCS), where the provincial governmentmakes an explicit commitment to formulate lower-tier developmentstrategies, as part of a wider set of measures aimed at promotinggood governance. The Abbottabad Strategy for SustainableDevelopment (ASSD) is one such district-level initiative. Drafted andfine-tuned by means of an elaborate consultative process, the ASSDaims to formulate a comprehensive and sustainable developmentframework for the district. Its goal is to mitigate poverty, improveaccess to basic services and enhance the quality of life of the peopleof Abbottabad by improving the capacities of individuals and institu-tions, and creating an enabling environment where the district’s natu-ral recourses can be used in a sustainable fashion.

The strategic visions proposed in the ASSD, developed to cover a 10-year period, are not set in stone. Rather, the ASSD calls for a three-yearreview exercise that will enable these proposals to be reformulated inlight of experience gained during implementation. The hope is that thisprocess will serve to keep the ASSD relevant, providing the district gov-ernment with the flexibility to accommodate emerging socio-economicand political trends in the national and international arena, while at thesame time adjusting to changing realities at the local level.

The challenge of preparing a lower-tier development strategy must by necessity focus on issues particular to the district. Yet every efforthas been made to keep in mind the broader ethical and intellectualimperatives of the sustainable development paradigm currently being shaped globally. Closer to home, the ASSD is also enriched bythe insights of a mid-term review (MTR) of the Pakistan NationalConservation Strategy (NCS), commissioned by the Government ofPakistan in 2000. The report of the MTR endorses the necessity of moving away from the traditional emphasis on conservation,towards an integration of conservation objectives with socio-economic priorities.

The ASSD aims to make a fundamental departure from the narrowapproach of sectoral analyses and prescriptions. This move wasnecessitated by the growing realisation that broader, macro issuesunderlie most of the problems that plague specific sectors. This insightis given credence by the near universal acceptance today in develop-ment circles of the interconnected nature of poverty alleviation, naturalresource conservation and, ultimately, sustainable development.

INTRODUCTION

For any sustainable development strategy to besuccessful, it needs to achieve three key objec-tives. First, it should mainstream environmentalissues in a way that creates widespread accept-ance of ecological concerns among stakehold-ers, thereby drawing conservation into the cycleof policy making for sectors traditionally thoughtto be unrelated, such as economic growth andindustrial development. Second, it must payclose attention to quality of life and humandevelopment, by taking into account the link-ages between sectors such as health and edu-cation. Finally, it has to demonstrate rather thanmerely discuss the impact of sustainable devel-opment on ‘mainstream’ areas of concern suchas poverty alleviation by providing and safe-guarding livelihood opportunities.

No strategy, no matter how thoughtfully pre-pared, can hope to bring about measurableprogress without capacity building and institu-

tional strengthening of the actors involved inimplementation. Similarly, a development visioncannot become reality in the absence of goodgovernance and enlightened priorities. Foreffective implementation to occur, institutionalsupport will be required in a variety of areas torealign institutions and budgets, increase knowl-edge, improve monitoring, and mobilise non-conventional sources of funding.

Besides support at the institutional level, a keycomponent of successful implementation is own-ership among stakeholders. The ASSD placesownership of its strategic interventions squarelyin the hands of the people of Abbottabad. Theirwill, exercised through the zilla council, will bepivotal in turning the ASSD into a manifesto for development that is endorsed by local governments, elected representatives, the private sector and civil society as a whole.

vi Abbottabad Strategy for Sustainable Development

Introduction

viiAbbottabad Strategy for Sustainable Development

The structural framework for the ASSD and its companion publication,the State of the Environment and Development (SoED), was devel-oped simultaneously so that each document, while standing alone,would also reflect the content of the other. The ASSD lays the ground-work for an integrated development vision for Abbottabad and isdesigned to optimise decision making and implementation. As such,this volume is action oriented and unencumbered by excessive data.It aims to present the relevant information succinctly, while providingenough detail to enable efficient action. For sector specialists andthose seeking a deeper understanding of the on-ground realitiesunderpinning the strategic initiatives proposed here, we recommendthat the ASSD is read in conjunction with the SoED.

The ASSD begins by tracing the conceptual lineage of the lower-tierstrategy formulation process, discussing key shifts in developmentparadigms at the international level as well as landmark national initiatives. The nexus between governance and sustainable develop-ment is also examined, setting the stage for strategic proposals relatedto specific sectors.

The sustainable development vision of the ASSD is grouped themati-cally under three broad categories—green, brown and socio-economicsectors—to emphasise the fact that many of the underlying issuesaffect not just a single sector but rather a range of inter-related areas.Each sector is examined more closely in individual chapters, with proposed initiatives divided according to the time frame required forimplementation. The sector proposals—the heart of the strategy—provide readers with a brief survey of the current status in key sectorsbefore laying out remedial measures. The initiatives outlined in thesechapters have been drafted with a view to establishing linkages withthe new structures of devolved local government being set up in thedistrict. At every step, an effort is made to highlight synergies andcross-sectoral impacts.

The concluding section of this document looks ahead, focusing onimplementation. The analysis here is pragmatic, examining institutionalarrangements and resource mobilisation issues as well as progressassessment mechanisms. These chapters assess the current resourceposition and explore funding options, calling for the institutionalisation ofstructures, processes and mechanisms to support implementation andmonitor progress.

READER»S GUIDE

viii Abbottabad Strategy for Sustainable Development

WASTE WATER AND SOLID WASTE MANAGEMENT

SUMMARY

Impetus for the formulation of the ASSD may be traced back to anumber of ground-breaking summits and commitments at the inter-national level, as well as key policy documents prepared at home,including the conservation strategies endorsed by the federal and

provincial governments. In addition, the conceptual framework of theASSD takes into account the emerging shape of lower-tier governance, a system launched throughout the country by means ofprovincial ordinances promulgated in 2001.

The strategy formulation process began with elaborate public consul-tations held in all union councils and selected villages, as well as theurban and town levels. The combined input of these consultations ledto the synthesis of 18 core areas which form the heart of this docu-ment. In order to assess the situation on the ground, take stock ofdevelopmental initiatives completed or in the pipelines and criticallyexamine lessons provided by these efforts, individual sector paperson these core areas were commissioned and finalised after broadinteraction with stakeholders. The ASSD draws on their findings to for-mulate a strategic vision for sustainable development in Abbottabad.

Even before a strategy can be laid out, it is necessary to recognise thecritical link between governance and sustainable development.Indeed, development thinking today favours decentralisation and par-ticipatory planning at the grassroots level. Lower-tier administrative

EXECUTIVE

entities become all the more important becauseit is at this level that genuine sustainable devel-opment initiatives can be initiated. In this para-digm, processes, coordination, mechanisms,capacity, indicators and continuous realignmentare indispensable. If it is to have any realisticchance of achieving measurable results on theground, the ASSD proposals need to accommo-date these conceptual requirements.

Certain constraints on a systemic level also needto be addressed. These include the ‘departmen-tal’ orientation, where collective interests andintegrative mechanisms are sidelined. Similarly,control over critical sectors has not beendevolved, leaving the district to confront seriouscoordination problems. Further constraints onthe district government’s administrative authoritycome in the form of uncertainty regarding fiscaldevolution, and poor capacity at the district, townand union levels.

One underlying theme of the ASSD strategicvision is the need to diversify economic activity inthe district. Economic diversification in turnrequires the provision of basic services and infra-structure. But many of the entities responsible forthese sectors are not answerable to the districtgovernment although their operations cover keyareas related to sustainable development at thedistrict level. This too poses a challenge for thedistrict government.

THE VISION

The ASSD does not pretend to introduce whollynew strategies or devise a blueprint for strategicinterventions. Rather, this document serves as anumbrella strategy, incorporating the goals and con-cerns of many plans currently in implementation.

Agriculture is the backbone of Abbottabad’seconomy. Across the district, subsistence-levelfarming is carried out on smallholdings that areoverwhelmingly dependent on rain. Repeatedinterventions have failed to improve yields, andthe district is forced to rely on imports of staplecereals such as maize and wheat. The ASSDproposals for this sector include enhancing the

impact of agriculture extension services byincreasing coverage, improving cultivation techniques, introducing better quality seeds,encouraging crop rotation, and enabling farmersto grow a greater variety of fruits and vegeta-bles. The introduction of techniques such aswater harvesting needs to be scaled up, and therational use of fertilisers, herbicides and pesti-cides is to be promoted. Innovative practicessuch as kitchen gardening and off-season vegetable production must be introduced on awider scale, with a view to optimising currentagricultural practice and diversifying production.

Forests play a critically important role in the eco-nomic life of the district but forest managementremains under the jurisdiction of the provincialgovernment. There is little the district authoritiescan do to conserve or protect forest resourcesexcept lobby higher-tier decision makers. Theabsence of sufficient powers at the local levelalso affects the district’s ability to capitalise onthe economic potential of forest resources. Asthings stand, the district government has no sayin the formulation of working plans or in moni-toring their effectiveness. Nor can the district domuch to change the current orientation of forestmanagement that is characterised by policingrather than community participation. Districtauthorities are powerless to curb the activities ofthe notorious timber mafia, or to share profitsfrom timber sales with rightsholders and localcommunities. The forest department’s writ overrangelands and watersheds poses additionalproblems for the district, where fodder issuesare of critical importance. The district must findways to contend with the forest authorities’ over-whelming stress on timber and afforestation, atthe expense of fodder and rangeland issues thatare central to the diversification of the localeconomy. The principal interventions suggestedhere revolve around acquiring control overforests and rangelands through gradual devolu-tion, reducing pressure on forests by pursuingalternative sources of fuel, and moving towardsa participatory managerial orientation.

Development of the livestock sector is inextrica-bly linked with the management of rangelands,fodder reserves and animal feed production.

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Administrative responsibility for livestock hasbeen devolved to the district level, but thedepartment has only nominal writ over range-lands. The livestock department favours veteri-nary interventions rather than measures toimprove production techniques. But even thisbias has failed to increase outputs or improvethe health of animals reared. Coverage of exten-sion services is poor, and further restricted bythe fact that the department employs no femaleextension workers, thereby marginalisingwomen who bear many of the responsibilitiesrelated to livestock and poultry rearing at thehousehold level. Poor road conditions in ruralareas, coupled with inadequate equipment andfacilities, further curtail the effectiveness ofextension efforts. The remedial interventionsproposed here are aimed at improving coordina-tion between the three departments responsiblefor various aspects of the sector so that greaterattention may be given to fodder and feedissues. At the same time, attention is required toimprove health coverage, strengthen breedimprovement, and encourage the adoption ofscientific transport and storage methods.Capacity building across the board and commu-nity involvement are also necessary.

With regard to poultry production, the districthas failed to capitalise on the latent potential ofthe sector. Extension services are woefully inad-equate, disease control is difficult and massivefeed shortages persist. The market for poultry ischaracterised by fluctuations in demand andsupply, depriving producers of a fair price. Theinterventions required here are similar to thosethat will be needed to develop livestock anddairy production, along with scientific methodsto forecast market demand.

Biodiversity in the district is subjected to thesame pressures as other natural resource-related sectors. Overgrazing, excessive harvest-ing and encroachment threaten species andhabitats, while little has been done in the way ofin situ conservation except for the creation of theAyubia National Park and Qalandarabad gamereserve. Although this is a step in the right direc-tion, whatever positive impact might accrue fromthis move is diminished by the fact that activities

in other sectors are allowed to continue whichdefeat the very purpose of designating protectedareas. By its very nature, biodiversity conserva-tion is a cross-sectoral challenge. As such, theinterventions proposed here suggest targetingactors in a range of sectors that directly or indirectly affect natural resources. Greaterinvolvement will be required not just from admin-istrative personnel but also communities that livein the vicinity of protected areas. An additionaloption available to the district government is topursue resources for conservation through thecommitments made under various multilateralenvironmental agreements.

The fisheries sector has long been the victim ofneglect. The district’s fisheries resources arethreatened by pollution as well as the absence ofadministrative oversight to check overfishing,and the use of cruel and destructive methods. Toremedy this situation, a coordinated effort will berequired so that the fisheries sector can bedeveloped as a source of income generationwhile at the same time benefiting from interven-tions aimed at conservation and sustainable use.

Mining is by its very nature an unsustainable activity, since mineral resources are ultimatelyexhaustible. The industry is also notorious for its devastating impact on the environment.Nevertheless, there are ways in which mineraldevelopment may be carried out while mitigatingits more harmful impacts. This is what is proposedfor Abbottabad, where significant mineral reservesexist but have not been properly explored. As asubject that has not been devolved, however,mineral development is not within the jurisdictionof the district government. The interventions pro-posed for the sector address this issue, alongwith measures to ensure that mining activities arestrictly regulated.

Sustainability and self-sufficiency are key issuesin the energy sector, where the district’s powergeneration capacities are practically non-existent.Not only does this mean that Abbottabad relies onthe national grid for its electricity, it also putsexcessive pressure on the district’s forests.Natural gas and electricity supply does not fullycover rural areas, and alternative sources of

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energy are not sufficiently developed, with theresult that the district’s rural population dependsheavily on wood for cooking and heating. This situation is simply unsustainable in the long term,and will lead to the wholesale destruction ofAbbottabad’s forests. Initiatives for the energysector target a wide range of issues, from efficientuse and theft prevention to indigenous productionand the provision of alternative fuel sources.

Another area that is not strictly within the admin-istrative domain of the district is waste water andsolid waste management, responsibility forwhich has been devolved to town administra-tions. Problems arising as a result of inadequatewaste management impact such a wide range ofhuman development indicators that they cannotbe examined merely at the town level.

Across the district, the standard of waste management is abysmal. With no major indus-trial activity taking place, the waste generated inAbbottabad comes mainly from homes, com-mercial establishments and medical facilities.Much of this waste water and refuse is dumpedout in the open or discharged directly into watersources used for drinking and irrigation. Thedanger this poses to public health goes withoutsaying, but public attitudes regarding the issueare characterised by apathy. With the peoplethemselves showing little or no concern, it is difficult to imagine how measurable gains canbe achieved in improving waste management.As such, awareness raising is a key componentof the remedial initiatives proposed for this sector. Interventions required here focus onstreamlining waste collection and disposal, fram-ing land use and zoning regulations, and introducing punitive measures for polluters.

Land use and zoning legislation is required toease the pressure on a public service deliverysystem that is stretched to the limit. Widespreadpoverty in the district has led in recent years toincreasing urbanisation, with the mushroomingof encroachment and illegal settlements where inmany cases no provisions have been made forwater supply or sanitation. Population growthincreases pressure on land both for housing andagriculture, creating a domino effect where

scarce agricultural land is co-opted for housingand commercial plazas, while standing forestsare cleared for agriculture. Zoning and planninglaws are the only way to ensure that the land useneeds of today do not leave the area degradedfor future generations. Although regulation herehas been devolved to the town level, with certainpolicy matters to be determined by the provincialgovernment, the district has some room tomanoeuvre in the form of by-laws on the subject.

Natural resource conservation and wise use go along way in mitigating poverty, particularly in areaswith a large rural population and in economiesthat are dominated by agriculture. Poverty is alsolinked to education, with more educated popula-tions better placed to pursue employment as wellas other income-generating activities.

The district’s education indicators are mixed, withsmall gains achieved in literacy and enrolment atthe primary level, but high drop-out rates as thelevel of education rises. Despite the resourcesthat have been pumped into showcase projects,overall participation remains low, with a seriousimbalance in favour of boys’ education andschooling in urban areas. Access to schooling forgirls, and in rural areas, needs to be the focus ofremedial measures. Steps will be required toensure the relevance of education on offer, withrevisions to the curriculum at all levels. Initiativesfor the education sector also need to address thetraining needs of teachers. The interventions pro-posed aim not just for the construction of newschools but also for existing resources in the sec-tor to be used optimally. This includes upgradingfacilities as well as the capacities of personnel.The use of indicators is another measure that willhelp improve performance.

In the health care sector, indicators present a picture that is deceptive. The presence of a singlemega-project in Abbottabad city has skewed statistics for the district as a whole, where healthcoverage is patchy and of poor quality, and largesegments of the rural population do not haveaccess even to the most basic medical facilities.The interventions proposed for this sector focuson expanding rural coverage to address the current imbalance, improving the performance

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of existing facilities by providing adequate sup-plies and equipment, and promoting preventivemedicine.

Equally distressing is the district’s demographicprofile, which is predominantly youthful. Althoughthe district shows lower growth than theprovince, population density in Abbottabad is ris-ing at an alarming rate. These two factors alonespell disaster for the future, when increasingnumbers will enter the workforce and in all likeli-hood migrate to urban areas to improve theireconomic prospects. The impact of uncheckedpopulation growth is felt in every other aspect ofthe district’s social and economic life, fromissues such as food security and employment tothe provision of basic services such as educa-tion, sanitation and health care. Population welfare activities have so far failed to achieve thedesired effect, and are the focus of the remedialinterventions proposed. More accurate andmeaningful indicators also need to be developedso that progress—or failure—in this criticallyimportant sector can be closely monitored.

In terms of infrastructure, the district is relatively well served both by major roads andtelecommunications networks. This is of coursea double-edged sword since infrastructuredevelopment often comes at the cost of the nat-ural environment. Trade-offs will be required,along with strict enforcement of legislationaimed at curbing the adverse impacts of infra-structure development projects. Farm-to-marketroads are needed to provide growers withimproved access to wider markets. Abbottabadcity is a major hub for transit traffic and so wit-nesses severe congestion as well as pollution.These issues are addressed in the interventionsproposed for the sector.

Drinking water supply is an area where coverageis relatively high. Here, however, quantities sup-plied are insufficient to meet the needs of the pop-ulation and quality is suspect. Remedial meas-ures proposed include improving quality, reducingwaste and introducing more rational user charges.

With its stunning mountain landscape and richbiodiversity, as well as a number of picturesque

hill stations, Abbottabad ought to be a favouredholiday destination. This, unfortunately, is notthe case. Little has been done to enhance thedistrict’s profile as a tourist haven, with the resultthat visitor numbers have declined steadily overthe past few years while Abbottabad city hasbecome a transit point en route to more popularspots elsewhere in the region. The district suf-fers the negative impact of this traffic whilereceiving none of the benefits. The strategic initiatives proposed for this sector involve devel-oping tourism to create much-needed jobs in thedistrict. By promoting ecotourism and nature-based activities, the district can also indirectlysupport conservation. The trade-offs requiredhere can be managed by ensuring that activitiesin the sector retain a pro-poor focus.

Poverty alleviation is a key component of thesustainable development paradigm. In a districtwhere unemployment is high and many otheravenues for income generation are either satu-rated or intractable, at least in the short term, aneffective way to boost economic activity is byestablishing small businesses. Microenterprisedevelopment is currently addressed haphaz-ardly, largely by means of microcredit extensionprogrammes. Without the necessary support inskills, credit utilisation or project selection, muchof this money is invested in run-off-the-mill enterprises or used for non-productive purposes.Lending of this sort only serves to deepen poverty by increasing indebtedness. The strategic interventions proposed here call for theformulation of a coherent, integrated povertyalleviation plan in which microenterprise is a keycomponent but not the sole component. Thefocus of initiatives should not be simply to provide credit, but to enable communities toutilise these funds optimally. This in turn requiresthat support is available in areas such as skillstraining and marketing.

While pursuing development, it is important tokeep in mind the specific cultural norms and tra-ditions of Abbottabad’s residents. Urban areasare undergoing a process of modernisation, withthe attendant erosion of traditional values. Thistransformation has yet to hit the vast majority ofthe district’s rural residents, who are not only

xii Abbottabad Strategy for Sustainable Development

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key stakeholders in the ASSD vision but alsoresponsible for implementation. The success orfailure of the strategic interventions proposedhere will depend on the active ownership andinvolvement of these communities.

Traditional cultural norms are nowhere moreclearly visible than in the social and economicrole of the district’s women. The interventionsproposed here require that the gender imbal-ance is redressed in every sector from educa-tion and health care to employment and creditextension. This includes enhancing women’srole in natural resource management activities,where they are already key players. It is alsoimperative that the federal and provincial governments honour their commitments toestablish employment quotas for women.

IMPLEMENTATION

Many of the inputs necessary for sustainabledevelopment to take root are complex and time-consuming, requiring major changes both in themacro-structural environment of the district andthe attitudes of its people. A crucial first steptowards implementation is to understand thebroader themes and deeper issues at stake.Abbottabad’s future prospects for sustainabledevelopment depend on diversifying the economy and improving institutional efficacy. Inaddition to poverty alleviation, issues related tothe standard of living must also be taken intoconsideration.

The major concern regarding implementation isof course related to devolution and the adminis-trative uncertainty that has been created by thedecentralisation of mandates from the provinceto the local level. Lower-tier governments, them-selves undergoing a radical structural metamor-phosis, have been handed new responsibilitieswhile the necessary civil service transformationsare still awaited. Across the board, the expandedmandate of various tiers has not automaticallyresulted in an accompanying enhancement ofcapacity. In addition, the status of fiscal devolu-tion and local-level revenue generation remainsunclear.

As the devolution plan unfolds, new and un-expected problems are likely to arise. At thesame time, age-old constraints both on thestructural and administrative level will also needto be tackled. Departmental thinking has longprevailed in administrative circles, where aholistic, integrative, cross-sectoral approach isnow urgently required. Another formidable hurdle for development planners is the absenceof reliable data for key sectors. Lessons learnedfrom past experience will also need to be incor-porated into a vision for the future. Key issuesthat have emerged as recurring themes includepoor governance; the exclusion of local commu-nities from decision making, project identifica-tion and implementation; and the lack of ade-quate funding for operation and maintenance.

The ASSD will be implemented through the newinstitutional framework that is emerging underdevolution. The district administration works underthe leadership of the nazim, who is assisted andadvised by grouped functional offices, while thedistrict government will provide an umbrella forthe integration of sectoral policies at the locallevel.

A number of additional implementation mecha-nisms are also available, both at the district levelas well as higher tiers of government. At the dis-trict level, the Mushavirat Committee will serveas a platform for coordinating the policies andprogrammes of various tiers of local govern-ment; the District Development Committee isvested with the authority to give the technicalgreen light to projects; and Citizen CommunityBoards will allow the people to access public-sector funds to implement development projectsfor their own communities. At higher tiers, theLocal Government Commission will prescribestandards and norms for various sectoral func-tions; the Provincial Finance Commission (PFC)will determine the amount of funds allocated tothe district by the provincial government; andthe SPCS has the potential to act as a coordi-native entity for the implementation of ASSDproposals. The implementation process will alsobe influenced by the federal government, partic-ularly where the country’s national, regional andinternational commitments intersect with mat-

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ters that are operationally under the jurisdictionof the district. An additional implementationmechanism comes in the shape of the DistrictRoundtable, which brings together a variety of stakeholders. It will act as a think tank forenvironmental policy, serve as an advocate forsustainable development and provide a forumfor the articulation of civil society’s interests.

In the ultimate analysis, responsibility forachieving sustainable development rests with acomposite of stakeholders, including the districtgovernment, elected representatives, devolvedoffices under the administrative control of thedistrict government, non-devolved entities thatcontinue to operate under the provincial or federal hierarchy, and civil society. The successof the endeavour will depend on their level ofcommitment. The ASSD vision cannot beattained through a routine and cavalier approachor by means of compartmentalised thinking. Norwill the strategic interventions proposed herebenefit from the pursuit of a narrow politicalagenda characterised by quick-fix, pseudo-developmental interventions.

There is a long-standing tradition in developingcountries to look to the government for thedelivery of services in a wide range of areas.Perhaps as a result, the general trend in development interventions has been to seekexternal funding, either through donors, the fed-eral and provincial governments, or non-governmental organisations (NGOs). This system is not sustainable. It is, rather, a form of‘fund addiction’—a subsidy-dependent mindsetthat will prove to be a serious handicap in thelong term. Pursuing external funding is, there-fore, not the central thrust of implementingASSD initiatives. The ASSD aims to chart acourse towards sustainable development whichby definition means that interventions must beself-sustaining.

The ASSD examines options for revenue gener-ation at the local, provincial and federal level.The ability to generate funds locally will providefiscal space for the implementation of pro-grammes aimed specifically at sustainabledevelopment. At the same time, current public-

sector expenditure will be streamlined.Additional revenue options that will be pursuedinclude provincial and federal government fund-ing windows, and resources earmarked by inter-national donor agencies. The Abbottabad Fundfor Sustainable Development (AFSD) will beestablished to coordinate and channel resourceallocation towards sustainable initiatives.

The success or failure of the ASSD vision can-not be gauged without systematic monitoring. Tothis end, the district government will developindicators to assess progress towards sustain-ability. These indicators will take into accountkey facets of each sector and will be designed tocover all major components of the sustainabledevelopment paradigm, moving beyond theanalysis of purely economic variables whichtend to ignore a range of critical social and envi-ronmental realities. The assessment processwill require action at more than one level andparticipation from more than one stakeholder.Assessments will be carried out at frequentintervals, preferably to coincide with annualdecision making, particularly the budget cycle.Embedded in the idea of monitoring is theassumption that at some point political changeand programme alterations will be required.

The pursuit of sustainable development is a formidable challenge where progress is at bestpainfully slow and only incremental changes canbe expected. For those who might be tempted to see the ASSD as a quick fix for all of the district’s problems, it is important to introduce anelement of pragmatism. As such, it is worthrepeating that the pace of change is gradual,that the consolidation of processes and systemsis incremental, and that capacity gaps, particu-larly in the transitory stage of devolution, cansometimes be disheartening.

For the ASSD vision to become a reality, supportfor the strategy will be needed across the board,regardless of ideological and political divides.Strong political will is also required to reconcilethe conflicting agendas of various interestgroups and stakeholders, whose commitmentand involvement is critical for the success ofASSD implementation.

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BackgroundPART I

3Abbottabad Strategy for Sustainable Development

and History

Impetus for the formulation of the ASSD maybe traced back to a number of ground-breaking summits and commitments at the

international level. On the domestic front, thisdevelopment vision draws vital insights from keypolicy documents and studies, including the con-servation strategies endorsed by the federal andprovincial governments, as well as relatedreviews conducted by experts (Figure 1).

INTERNATIONAL CONTEXT

The first formal response to global concerns regarding devel-opment, poverty alleviation and the environment materialised inthe form of the World Conservation Strategy: Living ResourceConservation for Sustainable Development (1980), preparedby IUCN-The World Conservation Union with the assistance ofthe United Nations Environment Programme (UNEP), theWorld Wide Fund for Nature and other agencies.

In 1987, Our Common Future: the Report of the WorldCommission on Environment and Development popularised

Genesis

the term sustainable development, defined as:development which meets the needs ofthe present without compromising theability of future generations to meet theirown needs (cited in OECD 2001).

Also known as the Brundtland Report, after GroHarlem Brundtland who chaired theCommission, Our Common Future alerted theworld to the necessity of ensuring that economic development takes places without

4 Abbottabad Strategy for Sustainable Development

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Brundtland Report1987

Rio Summit and (Local) Agenda 211992

World Conservation Strategy1980

Pakistan National Conservation Strategy1992

Sarhad ProvincialConservation Strategy

1996

Balochistan ConservationStrategy

2000

Strategies for Sustainable Development

Abbottabad–An IntegratedDevelopment Vision2004 (forthcoming)

Chitral–An IntegratedDevelopment Vision

2004

Northern Areas Strategy forSustainable Development

2003

depleting natural resources or harming the env-ironment (Figure 2). At the heart of this conceptis the idea that over the long term, social, eco-nomic and environmental objectives are compli-mentary and interdependent. Sustainable devel-opment and conservation must therefore beviewed as processes that are symbiotic ratherthan mutually exclusive, where the adjustmentsneeded to optimise this symbiosis can be under-taken through area-specific trade-offs.

In June 1992, the United Nations Conferenceon Environment and Development, also knownas the Earth Summit, was held in Rio deJaneiro. Here, over 150 nations endorsedAgenda 21, a document which sets out themanner in which both developed and develop-ing countries can work towards sustainabledevelopment. Among broader concerns,Agenda 21 singles out local government as akey player in the development process. Twothirds of the actions outlined in Agenda 21require the involvement of local authorities.This aspect of Agenda 21, called ‘Local Agenda21’, has inspired the formulation of lower-tierconservations strategies across the world. Thekey elements of Local Agenda 21, spelled out insix generic groups, focus on the need for localauthorities to address environmental and developmental concerns in a participatory manner by initiating advocacy measures, pursuing capacity development, and putting in place implementation and assessment mechanisms.

At the Rio Summit, governments also made acommitment to adopt national strategies for sus-tainable development (NSSDs), based on theprinciples outlined in Agenda 21:

This strategy should build upon and har-monize the various sectoral economic,social and environmental policies andplans that are operating in the country.[. . .] Its goals should be to ensure socially responsible economic develop-ment while protecting the resource baseand the environment for the benefit offuture generations. It should be devel-oped through the widest possible partici-pation. It should be based on a thorough

assessment of the current situation andinitiatives [UN 1992a: paragraph 8.7].

This idea in echoed in documents such asShaping the 21st Century, which calls for the for-mulation and implementation by 2005 of a sus-tainable development strategy in every country(OECD 1996). The formulation of NSSDs is alsoone of the seven development goals agreedupon by the international community.

Parallel to these institutional initiatives, thereemerged a formal definition of the NSSD con-cept as a coordinated set of participatoryprocesses involving analysis, debate, capacitystrengthening, planning and investment, aimedat seeking to integrate the short- and long-termeconomic, social and environmental objectivesof society and managing trade-offs where nec-essary (OECD 2001). This definition reflects indi-cators for sustainable development strategiesoutlined in A Better World for All: ProgressTowards the International Development Goals(UN et al. 2000).

The NSSD paradigm was endorsed at the August2000 United Nations World Summit onSustainable Development (WSSD) inJohannesburg, where the nexus between economy, society and the environment wasacknowledged. The Rio summit was seen as aconference primarily on the environment, wherethe social dimension was missing both from thedebates and the conclusions. The WSSD demonstrated that, since Rio, the integrationagenda essential to sustainable developmenthas advanced considerably. Following theWSSD, poverty has come to be accepted as theunderlying theme that links sustainable develop-ment with economic, environmental and socialissues.

Today, rising poverty, accelerated naturalresource deterioration and the challenges posedby the World Trade Organization regime haveforced the global community to rethink develop-ment. The ASSD attempts to reflect thesechanging realities and the conceptual shifts thatthey have necessitated, adapting this knowledgeto local sustainable development goals.

5Abbottabad Strategy for Sustainable Development

1Genesis and History

NATIONAL CONTEXT

Influenced by the global shift towards greaterintegration between sustainable developmentand environmental conservation, in 1987 theGovernment of Pakistan began work on the for-mulation of the NCS. Formally approved in1992, this document identified 14 core areas ofconcern and called for increasing expenditureon NCS-related areas from 4% of GNP in1991–92 to 8% of GNP by 2001. The total esti-

mated investment in the period 1992–2001 wasexpected to be Rs 150.7 billion, with contribu-tions from the government as well as the privatesector and donor agencies (IUCN 1992).

After the NCS was completed, IUCN assistedthe Government of Pakistan in exploring imple-mentation options. One explicit lesson thatemerged was that NCS implementation at theprovincial level

would be possible only if the provincialgovernment at the highest level perceived

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Sustainable Development

Meeting the needs of the present…

■ Economic needs: includes an adequate income or the assets needed for a sustainable livelihood.

■ Environmental needs: includes safe, secure housing with adequate provision for water, sanitation and drainage; living and working environments protected from environmental hazards.

■ Social, cultural and health needs: includes health care, education, transport.

■ Political needs: includes freedom to participate in national and local politics, and in decisions regarding the management of one’s home andneighbourhood, within a broader political and legal framework that protects civil, political, environmental and resource use rights.

Without compromising the ability of future generations to meet their needs…

■ Minimising the use and waste of non-renewable resources (including biodiversity and fossil fuels); minimising the waste of scarce mineralresources (reduce use, reuse, recycle, reclaim).

■ Sustainable use of finite renewable resources (including soils, forests andfreshwater).

■ Not overtaxing the capacity of ecosystems to absorb or break downwaste.

■ Protecting natural processes and climatic systems; not overtaxing thefinite capacity of global systems to absorb or dilute wastes withoutadverse effects (especially greenhouse gases, stratosphericozone-depleting chemicals and persistent organic pollutants).

■ Political and institutional structures within nations as well as internationallywhich support the achievement of the above goals and pass on intact theknowledge and experience of each nation’s or social group’s cultural heritage.

the need for pursuing such a strategy andaccepted responsibility for doing so(GoNWFP and IUCN 1996: ix).

The Government of the NWFP took the lead inthis regard, preparing the SPCS in the period1992–96 as

a statement of commitment by the govern-ment and the people of the NWFP to moveforward with an effective programme ofsustainable development (ibid.).

Implementation of the SPCS was expected tocost Rs 14.787 billion in the short term (1995–98)with contributions from donors, the federal gov-ernment and the private sector to the tune of 51%,and a long-term investment of Rs 65.578 billion.

One of the central concerns of the SPCS isexpressed under the core area, ‘Decentralisationand Governance’, where a commitment is madeto test the concept of district-level strategic plan-ning with an emphasis on decentralising thedevelopment process. The stage for districtstrategies was set: two pilot strategies for Chitraland Abbottabad were initiated in 1997.

CONCEPTUALFRAMEWORKBesides international thinking on development,the conceptual framework of the ASSD derivesimportant insights from recent studies and policy reviews carried out at home. The NCS-MTR, completed in 2000, explicitly criticises theNCS planning and implementation orientationas a by-product of the post-Rio focus:

Mainstreaming of environmental andsocial concerns into development initia-tives and government procedures isessential for improving the sustainabilityof ongoing investment, production andconsumption patterns; and “projectisa-tion” of NCS-2 activities additional tomainstream activities should be a lowerpriority (Hanson et al. 2000: 10).

Of particular relevance are the issues raised inan MTR-related paper which notes that the

conservation of natural resources andsustainable development still need tobecome firmly embedded in the agendasof politicians, political parties, the bureau-cracy and local government to be trulytaken seriously (Khan 2000).

The ASSD also recognises the nexus betweenpoverty and sustainable development, under-scored in the Interim-Poverty ReductionStrategy Paper (GoP 2001).

In addition to these studies, the ASSD frame-work takes into consideration the emergingshape of lower-tier government, envisaged bythe National Reconstruction Bureau andlaunched throughout the country by means ofprovincial ordinances promulgated in 2001.

FORMULATION PROCESS

Energised by the spirit of the NSSD paradigmand galvanised by the debate at home, theASSD formulation process was launched in1997. Led by then district administration onbehalf of the Government of the NWFP, theprocess was funded by the Swiss Agency forDevelopment and Cooperation and providedtechnical assistance by IUCN.

Elaborate public consultations were held in allunion councils and select villages, as well asthe urban and town levels, to seek civil societyinput on issues perceived to be important forthe pursuit of sustainable development.Simultaneously, a Steering Committee led bythe then deputy commissioner, with membersdrawn from key line departments and civil soci-ety organisations, was constituted to overseethe strategy formulation process. A multi-stake-holder Roundtable was notified, guided by theprinciple of ensuring representation to all mem-bers of society who would otherwise be mar-ginalised or excluded by the requirements offormal forums.

The combined input of these two institutionalmechanisms and the public consultationprocess prioritised the following core areas:

7Abbottabad Strategy for Sustainable Development

1Genesis and History

■ agriculture and horticulture;■ forests and watersheds;■ livestock and poultry;■ grazing land and fodder reserves;■ biodiversity, parks and protected areas; ■ fisheries;■ mining; ■ energy; ■ waste water and solid waste management;■ land use planning and zoning; ■ education; ■ health and population welfare;■ infrastructure: roads and communications;■ drinking water;■ ecotourism; ■ enterprise development;■ culture; and■ gender.

In order to assess the situation on the ground,take stock of developmental initiatives completedor in the pipelines, and critically examine lessonsprovided by these efforts, individual sector paperson these core areas were commissioned andfinalised after broad interaction with stakeholders.

As the ASSD formulation process was gainingmomentum, the promulgation of the NWFP LocalGovernment Ordinance (LGO) 2001 broughtabout significant changes in the structure of local-level government. The LGO saw the creation of anew District Government Abbottabad and reas-signed responsibility for many sectors from theprovincial to the district and town levels. Thisnecessitated adjustments in the ASSD itself, andadditional input was sought from elected officialsand government functionaries at various tiers.

ACCOMMODATING CHANGEPublication of the ASSD comes at a time whengreat changes are taking place both locally andat the global level. The geopolitical events of theopening years of the 21st century have led todramatic realignments in the internationalarena. Concepts of sustainable developmentwill need to accommodate the impact of theseshifts, without losing momentum in the imple-mentation of international commitments geared

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1 Genesis and History

Prior to the formulation of the ASSD, public consultation meetings were held in all union councils as well as selected villages.

towards poverty alleviation and sustainabledevelopment.

On the domestic front, the devolution of localgovernment is far from complete. The frameworkestablished by the LGO awaits implementationin the form of subordinate rules and regulationsgoverning many areas. The establishment ofthree towns (Abbottabad, Havelian andNawanshehr) leaves many jurisdictional mattersopen to question.

In the process of formulation, emerging devel-opment trends at the international level werecontinuously examined to ensure that the ASSDremained attuned to the latest concepts.Similarly, changes in the governance structureat the district level were incorporated into thedocument on a running basis. In the future, too,the ASSD will need to accommodate changeboth in the national and global arena. A proac-

tive approach will be required, initiated by thedistrict government, but one that includes theactive participation of all stakeholders.

As the ASSD is readied for publication, it is evi-dent that the LGO provisions mandating the for-mation of district-level sustainable developmentvisions need to be matched on the ground withrequisite capacity. At the same time, the incre-mental operationalisation of the devolution planleaves many administrative and jurisdictionalareas unclear. The ASSD aims to acknowledgethis state of flux and to provide for the changesthat are likely to occur after the document hasappeared in print. Included in the implementa-tion mechanisms discussed here is a cycle ofassessment and, where necessary, strategicreorientation. Our hope is that this will allow theASSD to remain relevant to the real concerns ofthe people of Abbottabad for many years tocome.

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11Abbottabad Strategy for Sustainable Development

Sustainable Development

In the spirit of the Rio Summit, particularly LocalAgenda 21, administrative thinking today favoursdevolution. Decentralised planning and participatory

decision making at the grassroots level are key com-ponents of this new paradigm. In the move towardsformulating NSSDs, lower-tier administrative entitiesbecome all the more important because it is at thislevel that genuinely sustainable development can beinitiated.

NEXUS WITH DEVOLUTION

In the context of Pakistan, the provincial Local GovernmentOrdinances promulgated in 2001 serve as an endorsement of theNSSD orientation, formalising what was agreed upon in Local Agenda21. Indeed, the NWFP LGO contains an explicit recognition of theNSSD concept, requiring the formulation of “integrated sustainabledevelopment visions” to create an enabling environment for economicprogress, human welfare and sustainable development.

The intricate interrelationships between good governance, efficaciousmanagement, economic development, poverty alleviation and conser-

Governance and

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SSUUSSTTAAIINNAABBLLEE DDEEVVEELLOOPPMMEENNTT AANNDD TTHHEE DDEEVVOOLLUUTTIIOONN OOFFGGOOVVEERRNNAANNCCEEFFIIGGUURREE 33

Compiled by Khalid Saranjam Khan

Devolution

Good governance

Accountability Transparency Participatory orientation

Localised solutions tolocal problems

Fulfilling economicneeds

Catering to conservation and

environmental needs

Delivering social objectives

Providing for political needs

Immediacy of attention

Optimal use of funds

Decreased pressure on natural resource

conservationPoverty alleviation

Greater employmentopportunities through

diversification, strengthening

dependence on indigenous resources

Accelerated and equitable development

SUSTAINABLE DEVELOPMENT

vation—and their ultimate confluence as sus-tainable development—is shown in Figure 3.This chart is neither normative nor all-inclusivebut rather attempts to provide a picture of thecore components of the NSSD paradigm underwhich the ASSD has been framed.

Sustainable development serves as both theoverarching objective and the raison d’être ofthe ASSD. The strategy itself adopts a cyclicalapproach characterised by periodic review, finetuning and revision, drawing on insights derivedfrom the implementation experience. This orien-tation extends to the strategic interventions pro-posed, requiring the continuous monitoring andevaluation of key processes and mechanisms

as well as impacts and outcomes of develop-ment initiatives. This process should enabledebate on key issues and needs, allowing direction and priorities to be reformulated wherenecessary.

The complex and overarching nature of sustainable development issues is illustrated inFigure 4, which shows how processes, coordi-nation, mechanisms, capacity, indicators andcontinuous realignment are all indispensable. Ifit is to have any realistic chance of achievingsustainable development on the ground, theASSD will need to be viewed within the contextof these conceptual requirements.

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Compiled by Khalid Saranjam Khan

Participation

Negotiation and conflict management

Communication and awareness raising

Change management,including pilot activities

Financial resourcemobilisation and

allocation

Information systems (tracking trends, issues

and needs; research and analysis)

Monitoring, evaluationand accountability

Prioritisation, planning anddecision making

VisionGoals

Objectives

DEPARTMENTALORIENTATIONIn the realm of administration, compromises arefrequently made for the sake of ‘continuity’—aeuphemism for maintaining the status quothrough departments with exclusive jurisdictionsuch as agriculture, forests, finance and health.The tunnel vision that this breeds, accentuatedby departmental rather than collective interests,is a major barrier to achieving optimal returns ondevelopment interventions. While facile lip serv-ice is paid to the concept of a cross-sectoral andcross-functional approach, in practical termssuch integration remains elusive. The depart-mental orientation constitutes one of the mostformidable challenges facing the pursuit of sus-tainable development.

Although the basic philosophy of devolution grewin response to this challenge, the failure todevolve such critical departments as forestsmeans that the district will confront serious coor-dination problems for some time to come.Additional constraints that the district govern-ment’s agenda, embodied in the ASSD, will haveto learn to accommodate include the unclear sta-tus of fiscal devolution and fund generation; thecreation of resource-deficient town councils; andpoor capacity at the district, town and union lev-els. Elections to higher-tier legislative bodies willfurther disrupt this unstable administrative milieu.

The ASSD aims to highlight the nature of thesecross-sectoral linkages and to assess their rela-tionship to—and impact on—sustainable devel-opment through the mechanism of indicators.The hypothesis developed in this documentdrives home the point that the departmentaloutlook can no longer serve the interests of civilsociety. Even basic issues such as servicedelivery cannot be effectively tackled withouttaking into account cross-sectoral linkages. Theanalysis also suggests, albeit implicitly, that thepublic sector can no longer be the principalactor in the new development paradigm andthat genuine stakeholder participation, asopposed to ‘consultation’, is no longer achimerical construct but a conditional necessity.

LINKAGES TO PARALLELEFFORTSThe ASSD does not pretend to introduce whollynew strategies or devise a blueprint for all futureinterventions. Initiatives linked to the NCS,SPCS, Poverty Reduction Strategy Paper(PRSP) and Agenda 21 are already under way,along with routine planning at various tiers andthrough a number of departments. Programmessuch as the Barani Area Development Project(BADP) and Natural Resource ConservationProject (NRCP) are operational at the districtlevel, in addition to a number of civil societyinterventions spearheaded for the most part byNGOs. The objectives of these initiatives arecollated and formalised in the ASSD. Ratherthan focusing exclusively on new interventions,the ASSD serves as an umbrella strategy, incor-porating the goals and concerns of many planscurrently in implementation.

NON-DEVOLVED DEPARTMENTS AND GREY AREASWhile many ASSD proposals concern devolvedentities functioning at the district level, thereremain crucial overlaps with departments cur-rently administered at higher tiers. In the case ofAbbottabad, this situation is of particular con-cern with regard to critical sectors such asforests and watershed management whichremain only partially devolved.

The urgency is compounded by the fact thatthese sectors are central to ASSD proposals.Economic diversification, for instance, requiresthat activities such as livestock rearing and dairy production are developed. This in turnnecessitates improved fodder production andrangeland management. But these matters fallunder the jurisdiction of the provincial forestdepartment, essentially placing the district at themercy of the provincial administrative hierarchy.Similarly, the mining and mineral developmentsector remains a provincial subject.

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Diversification will also require the provision ofbasic services and infrastructure. Entities suchas the Water and Power DevelopmentAuthority (WAPDA), Sui Northern GasPipelines Limited and the National HighwayAuthority are not answerable to the district gov-ernment although their operations cover keyareas related to development at the districtlevel. The presence of the environment depart-ment through the Environmental ProtectionAgency (EPA) also remains ambiguous. As faras the Galliyat belt is concerned, the merger of

the Galliyat Development Authority (GDA) withthe Abbottabad Development Authority, and theresulting uncertainties regarding administrativeauthority, limit the role that such entities can beexpected to play in the near future.

Finally, a number of critical issues pertaining tothe armed forces are difficult to addressthrough traditional linkages. Sooner or later,these matters will need to be tackled in order tooptimise coordinated inputs that foster sustain-able development.

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Green SectorsPART II

19Abbottabad Strategy for Sustainable Development

and Horticulture

Most landholdings in the district are small andfragmented, capable of supporting only subsistence-level farming. At the same time,

alternate avenues for employment and income generation have not been explored fully. This has ledto rising poverty and increased pressure on a sectorwhere significant expansion is not cost effective.Output indicators for the district are poor and haveshown consistent recalcitrance despite a number ofdevelopment interventions.

Abbottabad’s farmers are exploited in a market that operates with lit-tle or no regulatory oversight. Robbed of a fair price for their produce,farmers’ cash needs are further intensified by cumbersome creditextension procedures and high interest rates. Meanwhile, the poorcondition of farm-to-market roads forces growers of perishable prod-ucts to sell cheaply or risk even heavier losses. In most respects, thecurrent system works against the interests of farmers who, accordingto some estimates, receive just 86% of the real value of their produce.

Only 35% of the district’s total reported area is under cultivation, whilea substantial 89% of this farmland is rain dependent. With a mere 11%

Agriculture

of agricultural land under irrigation and noprospect of dramatic improvement in the shortterm, water shortages are likely to remain achronic problem. This in turn means that littlecan be done to increase the amount of landunder agriculture in the forseeable future. Acute water shortages also preclude the cultiva-tion of water-dependent cash crops such assugarcane and tobacco. As a result, the varietyof grain, fruit, vegetable and fodder that may becultivated in the area is limited.

Progress in the agriculture and horticulture sec-tor is further constrained by poor extension sup-port. With a mandate restricted to educating andmotivating farmers, the agricultural extensiondepartment’s contribution on the whole hasbeen unremarkable. The department has failedto regulate the quality of inputs such as fertiliserand pesticide, which are subject to uncheckedadulteration by private-sector dealers. Nor hasany success been achieved in regulating theprice of inputs or encouraging rational use.

The department lacks both the resources andtechnical expertise to cover the district’s vast

and inaccessible rural areas. The reach ofextension services is further curtailed by the factthat the department employs no female agricul-ture extension workers.

As major players in natural resource manage-ment activities at the household level, womenare key clients for extension services.Traditional cultural norms prevalent in the dis-trict, particularly in rural areas, preclude womenfrom interacting freely with men. The absence offemale extension workers means that womenare excluded from extension activities. Besidesthe obvious question of inequity, this is also amatter of concern on a different level: withwomen denied access to extension services, avaluable human resource and knowledge baseis being wasted.

Insights derived from research initiatives in agri-culture and horticulture are also squanderedsince no mechanisms are in place to incorporatesuch findings into everyday farming practices.Another missed opportunity, partly a result of thedepartment’s reluctance to adopt a participatoryorientation, is its failure to establish meaningful

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Abbottabad»s farmers are exploited in a market that operates with little or no regulatory oversight.

linkages with stakeholders and coordinate itsown work with key players in other sectors. Theweakness of the extension component is com-pounded by the frequent creation and dissolutionof parallel, sub-sector institutions such as thenow-defunct Fruit and Vegetable DevelopmentBoard and the Abbottabad DevelopmentAuthority.

Sector-specific initiatives such as the Project forHorticultural Promotion and NRCP have notmade a significant impact, while the PotatoResearch Centre failed to promote crop rotation.It introduced the improved Batakhundi seedvariety which is exorbitantly priced, putting it outof the reach of ordinary farmers.

The net result of these factors is that althoughagricultural activity serves as the largest com-ponent of the district’s economy, the sector in itspresent form has severely limited income-generating potential.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Evaluate new approaches such as off-sea-son vegetable production; improved fruitand vegetable cultivars; the cultivation ofnew fruit, vegetable and cash crop varieties;farm forestry; floriculture; agroforestry; silvi-pastoral forestry; and fodder production.

■ Assess the status of key yield indicators byestablishing an objective, validated data-base of statistics; examine current trendsand determine the potential for futureexpansion in the sector.

■ Evaluate mechanisms to coordinate the workof natural resource-related departments,projects, NGOs and community-basedorganisations (CBOs) to improve the cost-effectiveness and timeliness of interventions.

■ Seek the involvement of the private sector,financial institutions and NGOs to arrive at aconsensus on measures and interventionsneeded to promote sustainable develop-ment.

■ Initiate public debate, most appropriately atthe union council level, to discuss means toimprove efficiency and address problemsconfronting the sector.

■ Launch farm forestry interventions, and pro-mote nursery raising and kitchen gardening,in order to alleviate poverty by developingalternative avenues of income generation.

MMEEDDIIUUMM TTEERRMM

■ Establish key indicators based on validatedstatistics and ensure that they are dissemi-nated down to the lowest tiers of local gov-ernment as well as agriculture departmentofficials and farmers’ groups. For each indi-cator, establish a baseline and set annualtargets, assigning individual, collective andinter-/intra-departmental responsibility. Thisprocess is analogous to the ‘managementby objectives’ approach employed in the cor-porate sector, principally as a determinant ofcareer paths. The largely autonomousbureaucracy must be subjected to rigorousperformance accountability, which is indis-pensable not only to achieve temporal tar-gets but also to inculcate deeper attitudinalchanges.

■ Initiate capacity-building inputs for the agricultural extension department withregard to operational resources, mobilityand coverage; awareness and understand-ing of the latest farming practices; capacityto transfer this knowledge to farmers; andemployment prospects (the nexus with moti-vation). The department’s supervisory rolein monitoring the production and use ofseeds/cultivars, pesticides, herbicides andfertiliser should be provided administrativeand legislative cover.

■ Involve projects and NGOs working in thesector, including the Sarhad Rural SupportProgramme (SRSP), SUNGI DevelopmentFoundation, Project for HorticulturalPromotion and Cabi Bioscience, to developreplicable models of the farmers field schoolapproach as a tool for technology transfer.

■ Seek innovative solutions to address chronic water shortages. Evaluate irrigationimprovements by examining various water

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harvesting techniques on a small scale,emulating and seeking technical assistancefrom organisations that have worked in thisarea such as the International Centre forIntegrated Mountain Development (Nepal).

■ Provide legislative cover for market regula-tion to protect the interests of farmers. Civilsociety vigilance can act as a catalyst, whileparticipation from middlemen to rationalisethe system will also prove useful.

■ Actively pursue and formalise gender parti-cipation in natural resource managementactivities, which is already a de facto realitybut has not been addressed systematicallyfrom the perspective of capacity enhance-ment.

■ Initiate efforts at higher tiers to introducechanges in current credit extension policies,particularly with regard to removing proce-dural difficulties; providing male guarantors

for female borrowers; extending borrowingrights to NGOs; and supplying guidance torural farmers in investment, record keepingand repayment schedules. Microfinanceshould be developed as a way to addresspoverty by opening up alternative avenuesof income generation.

■ Introduce new vegetable varieties and high-value fruits such as cherries, learning frominitiatives in other regions, such as theKalam Integrated Development Project inSwat. Seek the active involvement of NGOsand local communities in this effort.

■ Introduce and promote crop rotation andfarm planning, particularly given the suc-cess of similar initiatives elsewhere, such asin Nagri Bala (Galliyat), where wheat hasbeen introduced as a second crop in single-crop areas.

■ Begin indigenous production of quality

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As a result of acute water shortages, little can be done in the immediate future to increase the amount of land under agriculture.

seeds and improved fodder varieties.Suitable pockets of farmland exist in manyareas, including Bagh, Gorinee andNathiagali, where cereal and vegetableseed production can be developed.

■ Promote floriculture, an activity that is wellsuited to the district’s temperate climate andcarries substantial potential for futuregrowth. The perfume industry and thedemand for cut flowers in nearby Islamabadprovide two immediate potential markets.

■ Develop herb cultivation, particularly to fillthe demand for natural medicines, as a pos-sible alternative source of employment andincome generation. The district’s climate isideally suited for this purpose and the areais already home to 43 varieties of herbs.

LLOONNGG TTEERRMM

■ Continue evaluating progress and introducepunitive measures where shortfalls persist.

■ Reinforce the use of indicators as a tool foraccountability and transparency to improvegovernance. The hope is that this will helpto develop both motivation and commit-ment, even if it is only as a means to retainemployment.

■ Shift the focus of agricultural activity fromsubsistence farming to a market-orientedapproach. This will require capacity build-ing, improved road access, market regula-tion, innovative land use, the establishmentof cooperatives and support from the privatesector.

■ Seek ways to tap the sector’s potential byintroducing innovative practices such asstep cultivation. Work towards achievingoptimum gains by facilitating the appropriateuse of agricultural chemicals and maintain-ing soil in croplands.

■ Enhance food security by increasing disposable income, instead of single-mind-edly pursuing self-sufficiency, which sometimes proves financially unjustifiable.Increasing disposable income will requirethat the district’s economy is diversified.Eliminate inefficiency and waste by provid-ing for adequate grain storage. Facilitatetrade and communications to support theseefforts.

■ Liaise with the forest department to con-serve rangelands and improve fodder avail-ability. This step is particularly important ifthe agriculture sector’s orientation towardscereal cultivation is to be changed and abalance is to be created in relation to fodderproduction. Lobby and network with the relevant quarters to reorient watershedinterventions, shifting the focus fromforestry to agriculture and fodder issues.

■ Build on modern concepts such as integratedcrop management and create capacity atvarious levels to implement new techniquesbased on these principles.

■ Emphasise innovation and experimentation.Prioritise the dissemination of detailedknowledge on all inputs ranging from primary tillage to post-harvest techniques.

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25Abbottabad Strategy for Sustainable Development

Watersheds

The symbiotic relationship between people andforests can serve to address both conservationneeds as well as economic concerns. But either

through ignorance or because of the influence of vested interests, local communities, rightsholders andstakeholders have long suffered at the hands of arbi-trary forest administrative policy that denies their rights,often in the name of conservation. Ironically, local com-munities have been alienated by the ‘policing’ mentalityof the forest department while the timber mafia contin-ues to operate with impunity.

Watershed management policy too has failed to recognise the impor-tance of community participation. The element of trust has been erodedover the years and the people have come to feel alienated.

Under the NSSD framework, the conservation bias can no longer serveas an excuse to deny stakeholders their right to use natural resources.In its explicit recognition that trade-offs will be necessary, the NSSD par-adigm opens up a space for rational resource use. In the case ofAbbottabad, the challenge is to make sure that such trade-offs allow gen-uine stakeholders to benefit, while keeping other vested interests at bay.

Forests and

FORESTS

Forests in Abbottabad cover some 20% of thetotal reported area of the district (KfW 2000) andaccount for 5.4% of the province’s forestresources even though the district itself coversonly 1.8% of the total land area of the province.Abbottabad’s forests are demarcated in a num-ber of ways, according to ownership, entitlement,management and jurisdiction, as well as func-tional status such as forest type and density.

The district’s forests have been subjected toonslaughts from a variety of directions, includingillicit felling, regeneration failure, progressivedepletion, lack of continuity at the institutionallevel and the absence of participatory manage-ment. On the departmental level, pervasive cor-ruption and lapses in oversight have meant that today as much as 45% of forest cover isseverely depleted, standing at just 10–25% den-sity, while a mere 28% of forest area supports a

density of 50%. The net result is that today thesector’s potential to serve as a catalyst for sus-tainable development is doubtful.

Subjected to irrational and haphazard adminis-trative interventions, the very existence ofAbbottabad’s forests is threatened. It is sus-pected that the true picture of the current stateof forests is not fully known, largely owing toinaccurate data and unreliable interpretation.

Across the district, dependence on wood as asource of fuel is high. In the absence of affordablealternative fuels, 80% of the district’s urbanhouseholds and more than 90% of rural homesuse wood-burning stoves. What is more, annualdemand is growing at an alarming rate, spellingdisaster for local forests.

The heavy reliance on wood necessitatesimports while poorer households resort to illegalfelling and collection, which further acceleratesthe pace of forest degradation. In Abbottabad’s

26 Abbottabad Strategy for Sustainable Development

4 Forests and Watersheds

Subjected to irrational and haphazard administrative interventions, today the very existence of Abbottabad»s forests is threatened.

mountainous terrain, denudation has far-reaching implications, leading to natural disasters such as flooding and landslides.

In addition to 1,500 m3 of timber provided on per-mits annually, nearly the same volume of timberis taken illegally each year. Conservative esti-mates attribute the loss of 1,200 m3 annually totheft, largely at the hands of the timber mafia.Deforestation is accelerated by insecure tenure,poverty, population growth, inflated timber pricesand politically expedient management priorities.Frequent bans on harvesting, the seignioragefee controversy and only nominal participation inmanagement activities by owners have led towidespread community disinterest in conserva-tion. What is worse, such issues have in factincreased incentives to encash the resource,intensifying pressure on forests and encouraginglocal communities to resort to illegal harvesting.

Forests are a vital element of the conservationcomponent in the sustainable developmenttriad. At the same time, careful forest resourcemanagement can serve as a means to alleviatepoverty. Indeed, the health of forests is closelytied to the social and economic welfare of com-munities. This crucial link has been repeatedlyignored by the concerned authorities and forestresources have instead been allowed tobecome severely depleted. At the very least, thisadministrative myopia illustrates ignorance onthe part of forest officials who have failed torecognise that local communities have a keyrole to play in effective forest management.

The current forest management system isbased on constantly changing working plansthat focus on harvesting and marketing. Insteadof implementing a viable, long-term forestregeneration regime, free and continuous graz-ing is permitted even in areas set aside forregeneration. This short-sightedness has dam-aged soil quality, decreased the availability offodder palatable to livestock, harmed theecosystem, threatened biodiversity and led tothe onset of erosion. Cultivation on mountainslopes is threatened by excessive exploitationthat leads to increased erosion and, conse-quently, to landslides and slips in the fragile

shale formations. The roads network has beenexpanded without conducting environmentalimpact assessments (EIAs), with the result thatthe impact of infrastructure development onforests remains unchecked. Without land uselaws, encroachment cannot be controlled.Particularly in the case of guzaras, forests areincreasingly being converted into grass rakhs(arable land) or even cleared to make room forconstruction.

Timber has always been the focus of forestmanagement, with little or no attention paid tothe development of non-timber forest products.This has meant that a potentially rich andrenewable resource has remained untapped.

Progress in the sector is further hampered byincorrect and indiscriminate resin taping, fire haz-ards, a preservation rather than conservation ori-entation, the ineffectiveness of the ForestDevelopment Corporation and the inability ofgovernment agencies to take on board communi-ties, NGOs, rural women, CBOs and donors.Since forest management has not been devolvedto the local level, coordination with other naturalresource management sectors will prove difficult.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Determine the true status of forest coverand audit existing practices, particularlyrelated to policing and non-participatorymanagement. In this context, a consensualNSSD-supportive database will be critical todraw an accurate picture and devise reme-dial measures.

■ Consider options for the development ofsocial forestry to boost income generation,increase fuel wood supply, improve soils,support local industry, and protect the land-scape and environment. Particularly sincesocial forestry is a devolved subject, the dis-trict enjoys greater freedom to act in thissector. As such, social forestry should fea-ture prominently on the agenda of sectors

27Abbottabad Strategy for Sustainable Development

4Forests and Watersheds

that require development in order to miti-gate resource depletion.

■ Explore other natural resource manage-ment options such as agroforestry.

■ Motivate and actively assist the forest depart-ment in cracking down on the illegal removalof timber including illicit felling that occursunder the garb of free timber grants. In thiscontext, evaluate the Swat model, where treesare harvested once a year and transported todepots under forest department supervision.

■ Target the current dependence on fuel woodby taking measures to promote efficient useand energy conservation. Introduce the useof energy-efficient stoves and promote theconstruction of energy-friendly buildings.Awareness raising and capacity building willbe an integral part of this effort.

■ Examine the option of expanding gas sup-ply—both through cylinders and pipelines,and perhaps at subsidised rates—to reducepressure on forests. While energy is not adevolved subject, and thus remains underthe jurisdiction of the federal government,efficacious and innovative advocacy canlead to informed decision making by theconcerned authorities.

■ Add specific energy conservation clauses toland use planning and zoning laws currentlyunder consideration.

■ Seek compensation options for those affectedby the creation of the Ayubia National Parkand Qalandarabad game reserve.

■ Approach the forest department to devise aconsensual framework that facilitates theactive involvement of local communities inpark and reserve management, particularlywith respect to monitoring.

■ Support improvement felling in forests tofinance the basic cost of forest manage-ment. This will enable forest communities toreinvest in natural resource managementand will increase their sense of ownership ofthe resource.

MMEEDDIIUUMM TTEERRMM

■ Streamline the formulation and implementa-tion of working plans, taking the lead tochange departmental practice.

■ Influence lawmakers to enact area-specificlegislation and amend existing statutes, toallow for a broad participatory managerialorientation.

■ Lobby for natural gas supply to be extendedto rural areas so that the current depend-ence on fuel wood may be reduced by theavailability of an affordable alternative.Given the district’s rugged terrain and theattendant logistical limitations, otheroptions, such as the provision of liquefiedpetroleum gas (LPG), and the use of solarpower and wind energy, will also need to beexamined.

■ Use advocacy to target agroforestry, farmforestry and nursery raising interventions,so that increasing fuel wood supply isincluded in their efforts. Plant trees on mar-ginal lands, particularly in areas categorisedas cultivable waste, to mitigate the pressureon forest resources.

■ Liberalise timber imports and support thismove with oversight capacity, to increasethe supply of wood at competitive prices.

■ Take measures to close regeneration areasto grazing, with the cooperation of the forestdepartment and the involvement of adjoin-ing communities. Grazing rights should bedetermined according to the capacity ofeach area so that damage to soil and youngseedlings is minimised.

■ Lobby for the rights of local communities,focusing on protected forests which are yetto be demarcated, in order to pre-empt liti-gation and prevent encroachment or clear-ing for cultivation.

LLOONNGG TTEERRMM

■ Create an enabling environment for thediversification of sources of wood supply.This will take the form of incentives to pur-sue farm forestry, agroforestry, nursery rais-ing and community forestry, and includemeasures to cushion the mounting pressureon forest resources.

■ Continue efforts to formalise entitlementsand ensure continuity, with the aim of protecting community interests. Pursuestatutory cover for such efforts so that the

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reprehensible treatment accorded to localcommunities and the severe neglect offorests—and that too in the name of devel-opment and conservation—can never againbe repeated.

■ Ensure that various components of the sector are addressed in an integrated man-ner. For this to occur, the forest departmentmust shed its policing mindset and all stake-holders must be included in a main-streamed participatory managerial orienta-tion. The interventions here will includemeasures to consolidate the participatoryumbrella, not least by providing transparentadministrative mechanisms, building capac-ity, advocacy and education, indicator track-ing, rewards and/or punitive measures related to achieving targets and, last but notleast, bridging the gulf that exists betweenthe forest department and local communi-ties over issues such as participatory management, rights and obligations.

■ Explicate entitlement rights and ensure thatthey are backed by statutory cover, derivedthrough consensus, to ensure continuityand leave no room for ambiguity.

■ Devise a master plan integrating communi-ties and the forest department, with specialemphasis on women. The central thrust willbe to consolidate and build on efforts toensure the continued sustainability of theresource, but in a manner that addressesthe financial needs of local communitiesand the principles of equity and grassrootsmanagement. The crux of this approachshould be to deal with forest managementthrough the symbiotic and mutually support-ive perspective of (i) meeting the needs ofcommunities for firewood and timber beforeharvesting for commercial or other purposesis carried out and (ii) managing forests toaddress biodiversity, ecological and tourismconcerns.

■ Build on the nexus between the forestdepartment, local communities, NGOs andother stakeholders to improve the workingof the department, so that a participatoryorientation eventually becomes embeddedin the managerial orientation of all naturalresource management sectors.

■ Actively promote forest restoration andregeneration practices to ensure the long-term survival of the resource. At the sametime, initiate protective measures on a case-specific basis. Bring the 10,737 ha of non-designated forest cover under working planmanagement through a broad-based partic-ipatory process.

WATERSHEDS

Watershed programmes can serve as a meansto mitigate environmental damage, particularlysoil loss, which in Abbottabad amounts to 2.8million t annually. Of the seven sub-watershedsoccurring in Abbottabad district, only three aregoverned by regular watershed programmes.For the most part, initiatives in this sector havebeen arbitrarily determined.

Projects implemented in the district over thepast three decades have been poorly planned,focusing on afforestation at the expense ofrangeland issues. This tunnel vision is all themore dangerous today, given the wider plan todiversify the district’s economy by means ofdairy and livestock development, when fodderneeds have in some ways become more impor-tant than afforestation.

Besides the emphasis on afforestation, theeffectiveness of watershed programmes hasbeen marred by the use of poor planting tech-niques, the choice of inappropriate species, andthe onset of climatic extremes in the form ofdroughts and torrential rain. With insufficientattention to range rehabilitation and manage-ment issues, and cavalier inputs in areas suchas soil conservation, fruit cultivation and pastureimprovement, it is perhaps not surprising thatwatershed programmes have failed dismally.

Another reason for their failure is the fact that little attention has been paid to the needs oflocal communities. Biased land use concepts,attributable to the discretionary managerial con-trol of the forest department, have been used todetermine the focus of watershed management.This has resulted in the relentless pursuit of

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converting grazing lands to forest plantationswithout proper needs assessments of localfarmers or livestock, and has reinforced thecommon perception that such interventions arefutile.

Watershed management efforts have also failedto recognise the benefits of participatory interac-tion with local communities. This has alienatedarea residents who, feeling exploited and mis-treated, remain wary of the entire process. Theelement of trust, a key precondition for participa-tory management to succeed, has been dam-aged over the years with the result that water-shed projects have failed to motivate communi-ties or generate grassroots mobilisation. For anymanagement plan to succeed in the future, thismajor stumbling block will need to be overcome.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Undertake an integrated, cross-sectoral andparticipatory audit of the orientation anddirection of watershed initiatives, ostensiblythrough the forest department but with defacto leadership provided by the district gov-ernment. Seek the participation of the agri-culture department, the livestock and dairydevelopment (L&DD) department, and localcommunities as well as civil society organi-sations. The aim will be to address environ-mental issues in tandem with economic andsocial concerns.

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Of the seven sub-watersheds occurring in Abbottabad district, only three are governed by management programmes.

■ Quantify and prioritise key issues to opti-mise the role of watersheds in the diversifi-cation of the economy. This will involve dia-logue, networking and informal channels ofinfluence, and will be formalised in partner-ship with the forest department. As a pre-liminary step, the Daur watershed will betargeted to ensure that a balance isachieved between agriculture, afforestation,soil erosion and fodder promotion.

■ Target the problem of longstanding distrustbetween local communities and the forestdepartment. Provide credibility and legitima-cy to the process with the aid of the districtgovernment, union nazims and notables.Raise awareness by explaining to stake-holders the role of these initiatives in allevi-ating poverty, protecting the environmentand ultimately achieving sustainable devel-opment.

■ Pursue and motivate the forest departmentto develop working plans for the four sub-watersheds that are not yet covered.

■ Through knowledge sharing and communityinsights, develop contingency plans to dealwith unforeseen events such as droughts ortorrential rains.

MMEEDDIIUUMM TTEERRMM

■ Examine issues arising out of the sectoraudits conducted in the short term and raisethese issues with the forest department.

■ Use advocacy as well as informal channelsto reorient departmental priorities in linewith diversification plans.

■ Move forward with rangeland rehabilitationand management, soil conservation inter-ventions, pasture improvement, and fruittree plantation.

LLOONNGG TTEERRMM

■ Work to instil a culture of consultative, cross-sectoral management in handling watershedissues so that ownership and commitmentare created, and continuity and efficacy are ensured. Since a certain degree of eco-nomic diversification is expected to havetaken place by this stage, a participatory orientation will serve to incorporate theneeds local communities into the develop-ment priorities of the district. It will also allowadministrative authorities to benefit fromindigenous knowledge.

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33Abbottabad Strategy for Sustainable Development

Poultry

In a region where subsistence-level agriculture isprevalent, livestock rearing and poultry farmingbecome a crucial part of economic life, serving as a

means to supplement household income. Both small-scale domestic and large commercial producers oper-ate in Abbottabad, but few administrative, technical,marketing or financial incentives have been providedfor this sector.

Neglect has resulted in chronic feed shortages, poor breed improve-ment and little or no knowledge of modern techniques. Road condi-tions in rural areas, the high cost of transport and volatile demand hin-der expansion in the sector and lead to artificially depressed prices inthe market. In the absence of participatory planning, support servicesfor livestock and dairy production are far from satisfactory, with ad hocor non-existent marketing facilities, capacity shortfalls in extensionservices and only nominally improved credit facilities.

LIVESTOCK

While the district’s livestock population has grown, little effort hasbeen made to address the rising demand for animal feed and other

Livestock and

husbandry inputs. Estimates regarding the scaleof feed shortages vary, especially since sector-specific data is not available. Haphazard foddercrop output and the impact of nomadic herds onfood supply make such calculations all the moredifficult. Nevertheless, there is no doubt thatsevere feed shortages plague the sector andthat the district’s present output falls far short ofcurrent needs.

The quality of livestock extension services ispoor overall and barely functional in remoteareas, with an estimated coverage of merely14% of all ruminant animals in the district. Runby the L&DD department and staffed largely byveterinarians, extension activities focus onbreed improvement and health at the expenseof improved production techniques. This veteri-nary orientation fails to address wider livestock-related issues, focusing narrowly on head counts.

Even in fields where theL&DD department doesprovide services, cover-age and quality is poor.Breed improvementthrough artificial insemi-nation is limited to threecentres, with the resultthat coverage for cattleand buffalo is barely 2%,while locally producedsemen has a conceptionrate of just 50%.Livestock drugs areexpensive and not easily available. Supply fromveterinary research institutes is intermittent andinefficient, owing to the department’s cumber-some procedural requirements. In Abbottabadas well as the province as a whole livestock hus-bandry suffers because established breeds ofcattle and buffalo are not available locally, andmust be imported from the Punjab.

Although women spend an estimated 20% oftheir working day on livestock-related activities,their access to new knowledge and the latesttechniques in husbandry is severely limited. As inthe case of agriculture, livestock extension serv-ices too are provided by males and social norms

in the district restrict women’s interaction withthem. The coverage of extension services is thinon the ground as a result of the inhospitable ter-rain, population dispersal and resource shortfalls.

Community involvement in husbandry is mini-mal, while public-sector services are sporadicand perfunctory, characterised by a top-downapproach. As a result, knowledge of improvedtechniques and new technologies rarely filtersdown to the field level.

Boosted by recent government support for pover-ty alleviation through microfinance, credit avail-ability is improving. But capacity limitations con-tinue to exist and little has been done to simplifythe process of credit acquisition. Administrativecomplexities are particularly hard on those mostin need—small-scale rural milk producers.

As is the case with many areas, livestock issues cut across sectors. Watershed projectsand rangeland management initiatives directlyimpact the functioning of the livestock sector,but programmes in those fields have consistentlyignored this linkage.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Quantify the nature and extent of feed short-ages, based on optimal rather than subsis-

34 Abbottabad Strategy for Sustainable Development

5 Livestock and Poultry

While the district’s livestock populationhas grown, little effort has been madeto address the rising demand foranimal feed and other husbandryinputs. Today, severe feed shortagesplague the sector and livestockproduction falls far short of thedistrict’s needs.

tence needs. This analysis will serve as aprelude to developing cross-sectoral reme-dial measures. Establish indicators toaddress bottlenecks in the sector.

■ Determine the balance that needs to beestablished between rearing a larger num-ber of underfed animals and keeping com-paratively fewer, better-nourished animals.This exercise will serve as an input for futureplanning, where a more scientific orientationwill be promoted with greater stress onimproving quality rather than quantity alone.

■ Seek solutions to key husbandry issues,particularly the absence of indigenousestablished breeds, the inadequacy ofinsemination services and difficulties inacquiring medication.

■ Examine alternatives to public-sector serv-ice delivery, seeking supplementary inputthrough communities, NGOs and projects,as well as support from the private sector.

■ Develop remedial interventions to improvethe quality and scale of women’s contribu-tion to the livestock sector.

■ Comprehensively audit capacity shortfallsacross the board, covering governmentdepartments, local communities, producers,financial institutions and NGOs, with a viewto devising remedial interventions.

MMEEDDIIUUMM TTEERRMM

■ Examine the possibility of privatising breedimprovement, animal health and otheraspects of livestock extension. At the veryleast, seek greater non-governmentalinvolvement and private-sector investmentby providing financial and administrativeincentives.

■ Enhance the coverage of extension services, both in terms of area and the num-ber of animals, and make use of moderntechnology, particularly for storage, trans-port and nutrition.

■ Improve the efficacy of extension servicesby employing female extension workers.

■ Provide cross-sectoral, multi-functionaltechnical inputs to formulate a comprehen-sive marketing and production strategy sothat market volatility, overproduction and

dumping no longer threaten the interests ofproducers.

■ Through a participatory process, finalise astrategy to improve the working of the sec-tor and lay the groundwork for implementa-tion. Develop processes, systems and keyindicators for monitoring progress.Incorporate lessons learned from similar ini-tiatives undertaken elsewhere, such as thatJabba sheep farm in Mansehra, the SRSP’smarketing of milk and dairy products inHaripur, and the Pattoki project in thePunjab.

LLOONNGG TTEERRMM

■ Continue efforts to position the dairy indus-try as a central component of a diversifiedeconomy.

■ Monitor progress on indicators, address fod-der issues and redouble efforts to improvebreed quality, output and animal health.

■ Move towards a free-market orientation, lim-iting public-sector involvement to regulationand enforcement, and extend support tostakeholders.

■ Consolidate and promote the dairy industryand its auxiliary components, particularlyrangelands and fodder supply, as a meansto address employment and income gener-ation.

■ Pursue community involvement to transfergreater control and responsibility to stake-holders.

■ Employ and/or train women to disseminateinformation.

■ Introduce new technologies adapted to localconditions to bring about an eventualchange in administrative orientation.

■ Promote the export of milk and dairy prod-ucts to fuel expansion of the industry.Simultaneously address the need for qualitycontrol, packaging facilities, marketing, stor-age and transport, as part of a long-termmove towards promoting exports. In thisconnection, World Trade Organization andInternational Organization for Standardizationrequirements will need to be incorporated intolocal practice.

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POULTRY

Backyard poultry operations are part and parcelof the socio-economic fabric of the district, whilecommercial poultry operations are organised andrun on a quasi-corporate basis. Along withMansehra, Abbottabad is recognised as a natio-nal poultry centre and the two districts jointlyhouse more than 60 breeder farms, 200 broilerfarms and a large number of hatcheries.

With its favourable climate and proximity tomajor markets, Abbottabad is poised to becomea major poultry exporter. The work already car-ried out by projects and NGOs needs to be sup-plemented with capacity development and pub-lic-private integration to provide support andinputs such as breed improvement, feed supply,disease control, scientific demand forecasting,marketing support and the use of advancedtechnology. With proper management and dis-semination of technical expertise, this sectorcan revolutionise the district’s economy andserve to alleviate the poverty of backyard pro-ducers. Before this can become a reality, how-ever, a number of sector-specific issues willneed to be addressed.

The market for poultry is characterised byvolatility and substantial shifts in demand.Without modern tools for market analysis, pro-ducers are unable to devise appropriateresponses to market changes, resulting in sur-pluses and shortages. With increasing con-sumer demand for fresh poultry, developing anaccurate forecast and demand estimationmechanism is critical. While comparatively larger poultry concerns have devised their ownmarketing systems, marginal rural producersremain at the mercy of middlemen.

Although most poultry diseases have beenbrought under control, the Newcastle diseaseappears to be intractable. Meanwhile, the introduction of new breeds has brought leucosisto the indigenous poultry population. Diseasecontrol costs account for 10% of total outputvalue, making this area a key target for remedialmeasures.

The supply of poultry feed is also an issue. Feedmills in the district currently operate at 80%capacity but manage to fulfil just 10% of localpoultry feed requirements. The remainder isimported from the Punjab, substantially increas-ing operating costs.

The wider environmental impact of poultry oper-ations also needs to be considered. The locationof poultry farms in the middle of populated areasposes a serious threat to public health. No reg-ulatory mechanism has been introduced toaddress this problem.

Broad improvements are required in the indus-try as a whole, as well as in specific areas suchas quality control and disease prevention. Whilethe efforts of NGOs and projects such as theSRSP and NRCP are commendable, private-sector involvement in the industry is now needed. Community involvement is equallyimportant but this aspect has not yet beenaddressed.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Examine options to stabilise demand andcurb supply fluctuations so that a modicumof predictability may be introduced into thisvolatile sector.

■ Assess the scale of poultry feed shortagesas a preliminary step towards initiatingremedial interventions.

■ Examine key issues such as disease controland breed improvement. Evaluate optionsfor these services to be provided in tandemwith the private sector, development proj-ects, NGOs, local communities and com-mercial producers.

■ Perform a comprehensive audit to developstatutory guidelines on poultry farm loca-tion. This evaluation can be tied in to proposed initiatives for land use planningand zoning.

■ Improve the sector’s functioning by address-ing the issue of community involvement.

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5 Livestock and Poultry

■ Provide support to backyard poultry produc-ers, particularly women, focusing on mar-keting assistance and disease control.

■ Analyse the current system, characterisedby the absence of coordination between linedepartments, NGOs, commercial privateproducers, projects and local communities,so that a coordinative mechanism can bedeveloped.

MMEEDDIIUUMM TTEERRMM

■ Provide extensive technical input for the for-mulation of a modern production and mar-keting plan, in order to mitigate volatileswings in demand and supply. Besides spe-cialist input, all stakeholders need to beinvolved in the process. Build on the work ofNGOs and projects, and provide capacityassistance.

■ Improve credit availability and provide finan-cial incentives for feed mills to fully utilisetheir production capacity.

■ Introduce legislative cover to prevent inap-propriate siting and relocate poultry opera-tions that have been set up in unsuitablelocations.

■ Build the capacity of small-scale rural producers, particularly women, to improveefficiency in the sector.

LLOONNGG TTEERRMM

■ Fine-tune, monitor and evaluate the outcomes of integrated marketing and pro-duction plans, particularly through the useof indicators.

■ Enhance transparency, implement aggres-sive accountability and streamline imple-mentation mechanisms.

■ Continue to encourage and promote cross-sectoral coordination between the publicand private sectors.

■ Seek to maximise private-sector participa-tion and limit public-sector administrativeinput to regulatory, enforcement and sup-port functions, particularly in the area oftechnical expertise.

■ Support cooperative marketing and capacity building at the village level so thatsmall-scale rural producers are not over-looked in the effort to boost large-scalecommercial operations.

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39Abbottabad Strategy for Sustainable Development

Fodder Reserves

Grazing land management is in large part amulti-disciplinary challenge. Issues affectingthis sector are complex and carry far-reaching

implications for a number of other areas. Despite itsimportance, the sector has been handled in a cavaliermanner. No scientific studies have been carried out toassess the current status of the sector, while man-agement has been handed back and forth betweenvarious government departments. Particularly inareas such as Abbottabad, where fertile land isscarce and under heavy pressure, this indifferenceserves as a scathing indictment of the public sector’stechnical capacity and managerial orientation.

The provincial forest department exercises control over most mattersrelated to rangelands. At the same time, certain responsibilities lie withthe agriculture department as well as the L&DD department. This lackof clear jurisdiction is a serious hurdle, particularly when coordinatedefforts are required between departments. The fact that partialresponsibility rests with a number of departments also means thatrangelands do not receive priority attention from any single depart-

Grazing Land and

ment or entity. Not surprisingly, the district’srangeland cover, potential, stocking and carry-ing capacity, as well as the extent of degrada-tion, remain unknown. Nor is any informationavailable regarding natural meadows (grass-lands), pasture lands (intensively managedgrazing lands) and rangelands because theseland use categories are not reported. Statisticsfor grazing capacity, forage production and cropresidues are also inadequate.

Within the concerned departments, fodder pro-duction has always received low priority. Theforest department focuses on afforestation whilethe agriculture department is primarily con-cerned with increasing the area under cultiva-tion. This tendency is vividly illustrated by theexperience of completed phases of watershedprogrammes, where fodder took a back seat toafforestation and land clearing. As a result, fod-der production stands at a nominal 9,616 t, lead-ing to chronic feed shortages, with a massive75% shortfall for livestock alone.

The simplest technical and community issuesrelated to rangelands have not been properlyaddressed, and options such as privatisation,leasing or community oversight were neverexplored. Most disturbing of all is the completelack of information on potential, capacity, currentstate and area. The sector has been so badlyneglected that the concerned departments havenot even been able to arrive at a consensual def-inition for areas to be classified as rangelands.With capacity shortfalls in range-specific expert-ise, it is not surprising that department personnellack credibility. At best, sporadic attention hasbeen given to rangeland rehabilitation as part ofongoing watershed programmes, illustrating thedeep-seated indifference to this sector.

This neglect is all the more shameful, consider-ing that the importance of rangelands was offi-cially recognised more than a decade ago in theNCS, which states that rangelands “need to bemanaged if optimum productivity is to be bothachieved and sustained” (GoP and IUCN 1992:179). The current state of rangelands in the dis-trict demonstrates the utter failure of concerneddepartments to live up to this commitment.

If government agencies have failed to make animpact, local communities have also been apathetic. This lack of concern, aggravated bywidespread poverty, has served to quicken thepace of rangeland depletion. The involvement ofwomen in rangeland management is only inci-dental, while private-sector input has neverbeen treated as a serious option.

A few NGOs and projects initiated work toimprove fodder production by planting high-yield, nutritious fodder varieties. These effortswere not sustained, with the result that farmerscontinue to rely on traditional fodder crops.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Evolve explicit coordination mechanisms tostreamline management of rangelands anddelineate jurisdiction.

■ Vigorously pursue local jurisdiction overrangelands by initiating a dialogue with the concerned departments. Rangelandmanagement should be delegated to thedistrict, particularly since the proposeddiversification of the economy gravitatesaround the livestock and dairy industry,which in turn depends on rangeland fodderresources.

■ Reorient current approaches to develop acomprehensive planning framework backedby indicators, to address acute feed andfodder shortages.

■ Increase fodder production through explicitinterventions. All planning should empha-sise community participation and seekinputs from projects and NGOs alreadyworking in the sector.

■ Undertake innovative planning to mitigatethe pressure on natural resources. Theunderlying philosophy of all short-term plan-ning inputs should be to pursue every pos-sible alternative and option.

■ Use research findings to improve practiceson the ground, introducing new crop vari-eties with high fodder value, increasing land

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utilisation for fodder crops, practising rota-tional grazing and cultivating fodder trees.

■ Improve vegetation cover by introducingcontrolled grazing, borrowing from tech-niques developed under the MalakandSocial Forestry Project. Include the Tanawalarea, one of three natural climatic divisionsin the district, in immediate plans to developlivestock and fodder.

■ Ensure that all work on plans, indicators andtargets is undertaken with the aid of inte-grated inputs, and carried out in a participa-tory fashion. Involve the entire spectrum ofstakeholders so that consensus can beachieved on proposed interventions. Thefundamental criteria underlying all decisionsshould be to improve the welfare of the ruralpopulation while ensuring the sustainabilityof rangeland and fodder resources.

■ Assign exclusive use of common grazinglands to local communities and make thecommunities themselves responsible forensuring the ecological stability of suchareas.

■ Protect rightsholders and build on traditionalresource-sharing arrangements betweenrightsholders and landowners.

■ Seek the input of CBOs, women’s organisa-tions and other stakeholders on all plannedinterventions and remedial measures.

MMEEDDIIUUMM TTEERRMM

■ Lobby for the devolution of rangeland management.

■ Continue the twin effort of consolidating dis-trict-level administrative control over range-lands and approaching dairy, livestock,

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6Grazing Land and Fodder Reserves

At best, only sporadic attention has been paid to the rehabilitation of rangelands in the district.

poultry, rangeland and fodder developmentfrom an integrated perspective.

■ In addition to tenurial, technical and man-agement matters, address auxiliary issuessuch as livestock support pricing, market-ing imperfections and compensation forproducers who are required to make stocksacrifices in the interest of rehabilitatingdegraded rangelands. The potential forincome generation here can help buildmotivation to protect rangelands.

■ Establish linkages with SPCS initiatives inthis sector, especially with regard to“preparing and implementing a project forthe promotion of fodder and forages inNWFP agriculture” (GoNWFP and IUCN1996: 146).

■ Build the capacity of both public- and private-sector stakeholders. Concerned line depart-ments must acquire competence in participa-tory techniques, ecol-ogy, livestock hus-bandry, agriculturaleconomics, market-ing, and feed and fod-der development. Thecore thrust should beto view dairy produc-tion and livestock asan industry with thepotential to serve as acatalyst in the diversi-fication of the econo-my, rather than suc-cumbing to the turf orientation that resultsfrom departmental thinking and administrativemyopia.

■ Continue to emphasise and monitor the con-tribution of the Tarbela-Mangla WatershedManagement Project, particularly Phase II(2001–06). Evaluate its stated commitmentto range and pasture activities, since 50% ofits budget is earmarked for grasses andgrazing lands.

■ Address land use biases that have pre-vailed in the past and create synergies byestablishing linkages with rangeland reha-bilitation activities undertaken by the NRCPin the Galliyat area.

■ Critically examine the successes and fail-

ures of previous efforts, particularly theBADP, and establish processes and mecha-nisms, supported by indicators, to promoteaccountability and mitigate the tendency tomake perfunctory and cavalier interventionsat substantial cost.

LLOONNGG TTEERRMM

■ Pursue capacity inputs through communityand private-sector initiatives to improve feedsupply, maintain a grazing balance andfacilitate the move to increased stall-feed-ing, as part of the effort to emphasise quali-ty rather than quantity alone.

■ Consolidate participatory managementpractices, and address the contingentcapacity needs of both public- and private-sector players to support this newapproach.

■ Evaluate the impact of past initiatives todetermine what was achieved, where fail-ures occurred and what bottlenecks persist.Incorporate this learning into an annualevaluation exercise once the initial ground-work has been laid.

■ Launch pilot projects in areas where signifi-cant change is required urgently, and applylessons from these initiatives to future workin the sector.

■ Undertake advocacy to highlight the impor-tance of grazing lands in poverty alleviation.Mobilise local communities to understandthis relationship and find ways to incorpo-rate that understanding into their daily prac-tice.

42 Abbottabad Strategy for Sustainable Development

6 Grazing Land and Fodder Reserves

If government agencies have failed tomake an impact on rangelandrehabilitation, local communities havealso been apathetic. This lack ofconcern, aggravated by widespreadpoverty, has served to quicken thepace of grazing land depletion.

■ Enforce existing land reform laws in areaswhere absentee landlords hold large tracts ofrangeland, impeding effective management.

■ Develop and undertake community-basedrevenue settlement for rangelands that lie intribal-dominated areas, examining suchissues as user rights and concessions.

■ Consider the possibility of issuing rangelandmanagement licenses to local communities.Cement this effort by forming livestockassociations under existing laws or byenacting new legislation.

43Abbottabad Strategy for Sustainable Development

6Grazing Land and Fodder Reserves

45Abbottabad Strategy for Sustainable Development

and Protected Areas

BIODIVERSITY

Unlike any other natural resource, biodiversity isthe very essence of life. It is defined under the1992 United Nations Convention on Biological

Diversity as the “variability among living organismsfrom all sources”, and includes ecosystems as well asthe ecological complexes of which they are a part(Article 2). Issues confronting this sector must beviewed in the larger context of our own survival.

In the wider effort to preserve this valuable resource, one step thatmay be taken is to designate protected areas. The Convention advo-cates the creation of a network of such areas in order to enable in situconservation (Article 8). At the same time, it recognises the impor-tance of achieving a balance between conservation priorities and theneeds of communities living around protected areas.

In Abbottabad, biodiversity is threatened by the cumulative impact ofover exploitation, habitat destruction from deforestation, land use conversion, soil erosion and excessive grazing. This threat, largely aproduct of mismanagement, is aggravated by a poor understanding of

Biodiversity, Parks

the importance of biological diversity and its profound impact on all aspects of life.

Demographic trends and socio-economic con-ditions in the district have far-reaching conse-quences for the ecosystem. Population growthand poverty exert heavy pressure on naturalresources. In the absence of land use planning,unregulated construction has been allowed toencroach on forests and habitats, even whenthey are located within the boundaries of pro-tected areas. Traditional practices such as set-ting hillside catchments ablaze to facilitategrass growth also pose a serious threat to bio-diversity, while recent droughts have made theland more susceptible to accidental fires.

Interventions in the past have failed to take intoaccount their own impact on biodiversity. Exoticspecies such as the eucalyptus have been intro-duced to the area in order to accelerate short-term gains, without any serious analysis of theimpact on native species in the long run.

Development activities in a number of sectorsalso pose a threat to biodiversity. The district’sextensive roads network, constructed withoutrecourse to EIAs, and the blasting and breakingup of wastelands on steep slopes, have led to soilerosion and the associated loss of biodiversity.Mining activities, spread over 4.8% of the totalland area of the district, are conducted in a non-scientific manner and without oversight regardingtheir environmental impact. This has contributedto habitat loss and species displacement.

The poor performance of municipal authorities,whether through resource shortfalls or sheernegligence, also have a part to play in biodiver-sity depletion. In Abbottabad, inadequatesewage and solid waste disposal, and the prac-tice of burning waste out in the open, have sig-nificant pollution impacts on the ecosystem.

Biodiversity conservation is hampered by thegeneral lack of coordination between the con-cerned departments and agencies, and theabsence of integrated interventions. The EIAregime has rarely, if ever, been enforced andthis trend is likely to persist in the absence of a

custodial agency for biodiversity protection. Usebase limits for key wild species have not beendetermined and no applied research has beencarried out. The threat to biodiversity is exacer-bated by the fact that inter-provincial trans-boundary reserves have not been set up.

With only nominal advocacy support, the keyrole of biodiversity has not been properly com-municated. As a result, biodiversity is oftenviewed as an exotic and arcane issue with littleor no practical implication. Despite its centralrole in conservation and ecological stability, andits vulnerability to negative impacts from activi-ties in a diverse range of sectors, biodiversityhas been addressed primarily as an adjunct tonatural resource management and conserva-tion. No formal plan for biodiversity protectionhas been developed.

This neglect has also mean that the district’sbiodiversity has never been systematicallyaudited or analysed. Consequently, little infor-mation is available on fauna, flora, habitats andspecies diversity in the region. Abbottabad ishome to three of the 12 habitats identified in theNWFP (Roberts 1977), none of which has beensystemically investigated. Similarly, scant infor-mation is available regarding endangeredspecies and few research inputs have beenforthcoming. Given the lack of information, it isnot surprising that knowledge about the sector ispoor. The absence of data and lack of knowl-edge seriously impede realistic planning.

Biodiversity issues need to be viewed in thelong term. Isolated interventions can onlyaddress surface symptoms rather than rootcauses. This understanding needs to be incor-porated into all planned interventions. In thisconnection, awareness raising on a massivescale will be required to enlighten stakeholders,the concerned agencies and local communities.On the administrative level, it will be necessaryto ensure continuity in policy and long-term insti-tutional support at all levels. At the same time,cross-sectoral partnerships and communityinvolvement will need to be developed. Theseefforts will have to be backed by biodiversity-specific legislation and widespread reform.

46 Abbottabad Strategy for Sustainable Development

7 Biodiversity, Parks and Protected Areas

The complexity of the task is daunting. As theSwiss Agency for Development andCooperation has learnt through its own experi-ence, what is needed besides macro frameworkreform to create a functional policy and imple-mentation milieu is to synchronise changes inorder to bring management options and currentpolitical and decision-making processes into

compatibility (SDC 2000). Communication,training and information dissemination on anongoing basis; institutional building; and inte-grated and participatory interventions are alsoimportant.

The management of biodiversity in the district isfar from satisfactory. Measures taken so farhave either violated or failed to address the keycauses of biodiversity loss, as explicated in theConvention on Biological Diversity: (i) inequity inownership, management, and flow of benefitsfrom use and conservation of biologicalresources; (ii) deficiencies in knowledge and itsapplication; and (iii) legal and institutional sys-tems that promote unsustainable exploitation ofbiological resources.

PARKS AND PROTECTEDAREASThe NWFP Wildlife (Protection, Preservation,Conservation and Management) Act 1975 pro-vides for the creation of various categories ofprotected areas. In Abbottabad, two such areas

have been declared: the Ayubia National Parkand the Qalandarabad game reserve. As aresult, some 6% of the district’s total land area isprotected, at least on paper. In addition to noti-fied protected areas, forest covering 127,449acres is also provided protection and manage-ment. The problem is that management plansfocus on ecosystem diversity, with only a smallcomponent devoted to species diversity protec-tion and completely ignoring genetic diversitywithin species. Moreover, all ecosystems, habi-tats, species and landscapes are not coveredunder the existing system.

The SPCS notes that protected areas in theNWFP do not actually protect wildlife or habi-tats, nor do they serve any other significant pur-

47Abbottabad Strategy for Sustainable Development

7Biodiversity, Parks and Protected Areas

Demographic trends and socio-economic conditions have far-reaching consequences for the ecosystem.

pose. This is equally true for Abbottabad, whereno management or enforcement mechanismsexist and the impact of scientific research andeducation programmes is negligible. The poorcapacities of the concerned custodial depart-ments exacerbates the situation.

In general, parks and reserves have been han-dled in perfunctory manner, using a ‘conserva-tion-in-isolation’ approach. Protected areashave been declared arbitrarily through adminis-trative fiat rather than in consultation with localcommunities who depend on such areas fortheir survival. Nor have matters such as benefitsharing and decentralised control over manage-ment ever been seriously considered. This hasserved to alienate local communities, whoseinput and participation is vital to promote con-servation. No attempt has been made to com-pensate communities affected by the declara-tion of protected areas or to provide them withalternative sources of fuel. Without compensa-tion, it is difficult to see how local communitieswill support changes in the land use regime.

Instead of working together with local communi-ties, protected areas management has beencharacterised by a policing approach. Pooradministrative oversight, and the absence of landuse planning, are problems that affect all sectorsincluding protected areas. Unchecked construc-tion of houses and hotels is under way in thevicinity of the Ayubia National Park, negating thevery purpose for which the area was designated.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Carry out a comprehensive audit and com-pile an inventory of genetic, species andecosystem diversity, building on workalready undertaken by various agencies.

■ Conduct a comprehensive review of themanner in which threats to biodiversity canbe addressed, principally from the point ofview of the large number of departmentsdirectly or indirectly involved with this subject.

■ Formulate an explicit coordinative mecha-nism, ensuring the participation of NGOsand local communities, to establish‘SMART’ (specific, measurable, attainable,reliable, time-bound) indicators to help setgoals and achieve targets for the sector.

■ Use capacity building, advocacy and com-munications to raise awareness about biodi-versity and improve understanding amongstakeholders.

■ Ensure continuity in policy and institutionalsupport at all levels, and work to increasecross-sectoral partnerships as well as com-munity involvement.

■ Evaluate statutory support, biodiversity-specific legislation and measures to reformthe macro framework.

■ Create a conducive milieu for dependentrural communities to participate in biodiver-sity conservation. Ensure the sustainedpolitical will and commitment of implement-ing authorities.

■ Enforce the EIA regime, making it manda-tory for all development projects to undergoan assessment prior to implementation.Mass awareness campaigns and communi-cation exercises are suggested as immedi-ate steps in this context.

■ Address aquatic diversity, particularly inview of the economic potential of develop-ing fisheries.

■ Undertake a comprehensive survey of parksand reserves already created to assessshortcomings with regard to communitymanagement and compensation.

■ Ensure that land use planning and zoninglegislation is enacted. Examine the trade-offs that will be required to check encroach-ment in areas like the Ayubia National Parkand the Qalandarabad game reserve aswell as the ecologically rich Galliyat area.

■ Establish linkages with the federal govern-ment’s proposed Biodiversity Action Planand the SPCS’s NWFP Biodiversity andProtected Areas Action Plan, as well as relevant academic and technical researchagencies.

■ Fully utilise local resources while seekingtop-up funds from donors, including theGlobal Environment Facility and the United

48 Abbottabad Strategy for Sustainable Development

7 Biodiversity, Parks and Protected Areas

Nations Development Programme.Abbottabad’s unique biodiversity wealth iswell known and resource availability shouldnot be a major hurdle.

MMEEDDIIUUMM TTEERRMM

■ Finalise an inventory of the district’s floraand fauna, developing definitions, conceptsand methodology through consensus.

■ Complete an inventory of species types,diversity and habitats, including the conser-vation status of all species.

■ Comprehensively document indigenous andtraditional ecological practices related tobiodiversity and natural resource manage-ment.

■ Develop a master plan for biodiversity,ensuring input from the widest possiblerange of sources including local communi-ties, line departments, academia, researchorganisations, NGOs, women, donors,external specialists, elected representa-tives, higher tiers of government and similarinterventions in other districts.

■ Establish baseline indicators and set targetsfor biodiversity protection. Assign clear imple-mentation roles to key players, backed bymonitoring and accountability mechanisms.

■ Address in an integrated, cross-functional,multi-sectoral manner the indirect threats tobiodiversity which are common to all naturalresource management activities. Theseinclude overfishing, excessive hunting,habitat destruction, deforestation, land con-version, soil erosion, overgrazing, unregu-lated mining, indiscriminate siting of poultryoperations, large-scale infrastructure proj-ects and indiscriminate construction.

■ Identify specific capacity-building needs andtechnical input requirements. Set targetsand examine possibilities for interventions.This exercise should cover all stakeholdersand implementing components.

■ Examine the long-term efficacy of in situprotection based on the experience of man-aging the Ayubia National Park andQalandarabad game reserve. This assess-

ment should include a critical examinationof protected areas legislation to assess itsadequacy and effectiveness, particularlywith regard to formal management plans,enforcement, and the protection of wildlifeand habitats.

■ Promote an understanding that biodiversityand protected areas are vital economic enti-ties that can directly and indirectly enablepoverty alleviation. Large-scale advocacy,public consultations and debate can beemployed as catalysts in this context.

■ In conjunction with an in situ approach,evaluate possibilities of ex situ conservationthrough measures such as establishingseed and gene banks, maintaining pure-bred livestock varieties and the captivebreeding of wild species.

■ Provide training inputs through internationaland local resources to increase knowledgeand expertise in the sector. The gainsachieved here should ultimately filter downto the community level to ensure optimalbenefits.

LLOONNGG TTEERRMM

■ Evaluate technical and capacity-buildingneeds, and pursue the necessary interven-tions on an ongoing basis.

■ Critically examine the success or failure ofcross-sectoral coordination and integratedmanagement. If the existing mechanismsand processes are found lacking, considerthe option of establishing a custodialagency for biodiversity conservation andprotected areas.

■ Pursue the active involvement of NGOs,projects and line departments, and continuelobbying to enhance the management ofbiodiversity and protected areas.

■ Extend the boundaries of existing protectedareas and demarcate new areas so that thewidest possible range of ecosystems, habi-tats, species and landscapes is providedstatutory cover. In line with SPCS commit-ments, extend the protected areas networkto 10% of the district’s total area.

49Abbottabad Strategy for Sustainable Development

7Biodiversity, Parks and Protected Areas

51Abbottabad Strategy for Sustainable Development

An estimated 117 km of rivers and streams runthrough Abbottabad district. In terms of man-agement, the focus has been on drinking water

concerns rather than aquatic resource development.As a result, the potential of these water bodies to sus-tain fisheries has yet to be systematically explored.Current output in the sector is minimal.

Habitat protection has not been addressed, enrichment is not a priorityand indifference to the fisheries sector is pervasive. Little has been doneto check the discharge of dangerous effluents and untreated waste intowater sources, which not only undermines water quality but also threat-ens the very existence of fish species. Similarly, the absence of land useplanning, coupled with accelerated urbanisation and population growth,have transformed some streams into virtual municipal sewers.

It is not just on the administrative level that fisheries have been neg-lected. In the absence of advocacy and promotion, community involve-ment in management is poor, accompanied by a widespread lack ofawareness regarding the value and sustainable use of this resource.

Developments in other sectors have also impacted fisheries in the dis-trict. Water shortages aggravated by droughts and the excessive focus

Fisheries

on expanding drinking water coverage throw intodoubt the capacity of the district’s freshwaterresources to sustain pisciculture. Meanwhile,legislative protection for the sector exists only onpaper.

It is ironic that while fish is a popular food itemlocally, the industry is so poorly developed thatlocal demand must be met with imports. The dis-trict’s fisheries and aquatic potential needs to besystematically studied, with a view to developingthese resources as components of a diversifiedeconomy.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Carry out a comprehensive audit of the dis-trict’s fisheries resources with a view toassessing the potential for future develop-ment. Perform limnological analyses of allwater bodies to determine the current statusof aquatic resources and facilitate medium-term habitat rehabilitation interventions.Extend to the provincial wildlife, forest andfisheries department the requisite capacityto undertake this exercise.

■ Address the overwhelming pressure of pol-lution and its impact on aquatic resourcedeterioration and biodiversity loss.

■ Abolish cruel anddestructive fishingmethods such as theuse of poison andexplosives.

■ Review fish andaquatic resourcesfrom the twin view-point of economicsand conservation. Create a managementplan that will cater to both aspects simulta-neously.

■ Protect aquatic resources from encroach-ment and pollution, and ensure that har-vesting is carried out sustainably.

■ Ensure that community awareness and par-ticipation permeates all inputs in the sector.

■ Pursue private-sector involvement in thesector and examine the feasibility of estab-lishing commercial fish farms.

MMEEDDIIUUMM TTEERRMM

■ Use limnological analyses as baselineinputs to develop a management plan forfisheries. This data will serve as the basicstructure on which indicators as well as spe-cific interventions can be based.

■ Enrich aquatic resources on a site-specificbasis through species introduction, habitatrehabilitation and protection. Such meas-ures should be taken in a participatory man-ner and local communities should beallowed to share in the economic benefits.

■ Provide institutional strengthening inputs tothe fisheries department to cover technicalknowledge, policy support, procedures andmechanisms conducive to sustainabledevelopment.

■ Seek technical and resource inputs fromNGOs, development projects and donors toconserve fisheries resources and aquaticbiodiversity.

■ Promote the income-generation potential ofthe sector.

■ Ensure that area-specific interventions are guided by the natural capacity andpotential of individual water bodies. Forinstance, conditions in high-elevation waterbodies favour trout culture while semi-cold

waters are better suited to carp, particularlyspecies like the masheer. Trout development should be concentrated in fish farms, given the fact that this species is unusually amenable to thriving in con-trolled conditions. The existence of numer-ous small streams originating from springs provides an opportunity to adopt a

52 Abbottabad Strategy for Sustainable Development

8 Fisheries

It is ironic that while fish is a popularfood item in Abbottabad, the industryis so poorly developed that localdemand must be met with imports.

microenterprise approach to developing thesector.

LLOONNGG TTEERRMM

■ Review progress in the implementation ofvarious interventions. This exercise shouldinclude measuring progress against estab-lished indicators, and examining the efficacyof legislative support as well as existingprocesses and mechanisms.

■ Encourage community involvement in avariety of areas ranging from oversight tomanagement and ownership, providinginstitutional support, marketing assistanceand financial incentives.

■ Re-negotiate the terms of the 1894 agree-ment under which the district is bound tosupply 280,000 g of water daily to Murree.This arrangement must be revised to miti-

gate widespread local resentment and pro-vide additional water resources that can beused for fisheries development. This is apolicy matter that will require prolonged lob-bying and negotiations with higher tiers,involving two provinces as well as the fed-eral government.

■ Intensify efforts to tap the potential for pisci-culture in an integrated manner, supple-mented by capacity-building inputs andmodern technology.

■ Motivate donors and projects already activein various natural resource managementactivities to enter the fisheries sector.

■ Provide support for habitat rehabilitation andenhancement using the latest technologyand research findings.

■ Address the contribution of the fisheriessector to activities in areas such as tourismand explore cross-sectoral synergies.

53Abbottabad Strategy for Sustainable Development

8Fisheries

Brown SectorsPART III

57Abbottabad Strategy for Sustainable Development

Mineral development is awarded low prioritythroughout the NWFP. As such, it is not sur-prising that Abbottabad’s achievements in the

sector are unimpressive. Despite the district’s abun-dant mineral reserves, total output in 1999–2000stood at 106,701 t of which soapstone and limestoneaccounted for 84%.

Initiating district-level mining interventions is complicated by the factthat responsibility for the sector remains under the jurisdiction of theprovincial government. The SPCS committed to evolving and imple-menting a detailed strategy for mineral development across theprovince (GoNWFP and IUCN 1996: 149–51, 154) but little progresshas been made in this direction.

The fact that minerals are a non-renewable resource means that min-ing is ultimately an unsustainable activity (GoP and IUCN 1992: 205).This aspect alone makes it incumbent on those responsible for man-aging the sector to ensure careful use, which in turn depends to someextent on the quality of information and planning. To date, the non-renewable aspect of this resource has not been acknowledged, withthe result that issues such as minimising wastage and optimisingrecovery have not been addressed.

Mining

Although some legislation exists to regulateactivity in the sector, implementation andenforcement mechanisms are lacking. Mining isin many respects one of the most hazardousindustrial occupations, posing a threat to bothhuman health and the environment. Yet the sec-tor operates largely without regulation. Open pitand underground mining practices in the districthave a devastating effect on the ecosystem aswell as on the lives of communities that are dis-placed. Extraction methods currently in use,such as blasting and drilling, are crude and noattention is paid to selecting appropriate sites orrehabilitating these areas once mining has beencompleted. Perhaps most important of all, theEIA regime is not enforced, resulting in long-term irreversible damage to the environment.

Workers’ health and safety is another major con-cern. Technically the responsibility of theInspectorate of Mines, Directorate General ofMinerals and Mines, oversight mechanismsexist merely on paper. Scant attention has beenpaid to serious issues concerning the sectorsuch as training and orientation; safe workingconditions and protective gear for workers;proper handling of hazardous materials; expo-sure to toxic gasses, dust and debris; and emer-gency measures. Also excluded from the ambitof regulation is the cumulative effect of variousharmful chemicals, and human exposure to haz-ardous materials in excess of acceptable limits.Meanwhile, legislation applying to mining licens-es is rarely enforced and the economic interestsof leaseholders dictate most decisions.

The devolved system of local government doesnot provide for an environmental administrativecomponent. Without the regulatory presence ofan EPA office in the district, the pollution andenvironmental impacts of mining cannot be mon-itored or evaluated. Indeed, it seems that little canbe done to regulate mining at the district level.

Given the district’s mineral wealth, mining hasthe potential to serve as a key component in adiversified economy. But the trade-off betweeneconomic benefits and environmental damagewill need to be carefully examined. In the currentclimate, this is likely to be difficult: developing the

legal and institutional frameworks required topromote more responsible mining practices liesbeyond the district’s resources and jurisdiction;expensive but comparatively safe exploratorytechniques are not a district-level input; technicaltraining, on-site inspection and enforcement ofexisting legislation are resource-intensive chall-enges; and coordination with provincial andexternal experts has proven difficult.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Audit the district’s mineral resources. Thearray of tools available for this purposeinclude exploratory drilling, seismic logging,structural mapping and satellite imagery.

■ Negotiate some degree of power in favourof the district government, particularly withregard to oversight, compliance and rev-enue sharing.

■ Use data gathered from the audit to beginpreparation of a district master plan for mining.

■ Address critical issues including health haz-ards, workers’ welfare, training and enforce-ment of the EIA regime, as well as adher-ence to responsible mining practices.

■ Establish a district-level EPA office to monitorand evaluate pollution impacts such as watercontamination, dangerous emissions, noiseand dust, as well as habitat destruction.

■ Consider immediate steps to use the licens-ing mechanism as a stopgap measure tomitigate the more severe adverse impactsof mining activities. The conversion ofprospecting licenses to developmental andmining licenses must be undertaken strictlyin line with established procedure.

■ Upgrade the oversight powers of theinspectorate of mines with respect to themonitoring and implementation of safetyregulations under the Mines Act 1923.

MMEEDDIIUUMM TTEERRMM

■ Develop a policy for efficient resourceextraction to curb wastage, stem the whole-

58 Abbottabad Strategy for Sustainable Development

9 Mining

sale destruction of mined areas, maximiserecovery and minimise harmful impacts.

■ Pursue alternative scheduling to addresseventual resource exhaustion.

■ Establish annual indicators to check wildfluctuations in output and enable productionsequencing. For this purpose, seek the participation of all stakeholders includingthe Sarhad Development Authority for theclosed Kakul phosphate mine and theLagarband–Tarnwai phosphate deposits,the Pakistan Industrial DevelopmentCorporation for magnesite at Kumhar, pri-vate concessionaries for soapstone andlimestone, and other parties in smaller mineral types.

■ Make the EIA a mandatory requirement forall new licenses as well as license renewal.For large-scale projects, strategic environ-mental assessments (SEAs) should be con-sidered on a case-by-case basis. Providelegislative cover for these measures andaddress enforcement issues.

■ Formulate indicators to establish baselineand target standards for activities such asefficient extraction, safe transport, pre-scribed closure and safe disposal of wasteproducts so that the adverse impacts ofmining activities may be minimised.

■ Develop safety indicators and baselinestandards in areas such as handling haz-ardous materials, protective gear and work-er safety. This should be supplemented byrequisite training, facilitated by institutionssuch as the International LabourOrganization, to provide some degree ofprotection to mine workers.

■ Encourage private-sector involvement tobring abandoned mining projects backonline.

■ Pursue options to develop local manufactur-ing based on indigenously produced rawmaterials. The greater the value addition,the more significant the economic benefitsthat will accrue to the district.

LLOONNGG TTEERRMM

■ Pursue the devolution of authority and controlover mining. Joint control in areas such asoversight, master plan implementation,accountability via indicators, EIAs, and adher-ence to environmental, safety and health reg-ulations should remain a workable option.

■ Lobby and negotiate with principal stake-holders to optimise output, particularly in thecase of minerals with known deposits suchas phosphate and magnesite.

■ Evaluate the establishment of downstreamactivities, such as industrial units based onindigenous mineral resources, to alleviatepoverty and generate employment.

■ Continue geological and exploratory studiesto identify the district’s mineral potential.Planning to maximise extraction should be part of an updated master plan for thedistrict.

■ Pursue linkages with the SPCS commitmentto formulate and implement detailed strate-gies for mining to create synergies andenable informed decision making. Also pur-sue linkages with the NCS, particularly itsrecent MTR, to benefit from the expertiseand insights afforded by this broader vision.

■ Aim for a gradual shift towards sustainableprinciples so that better mining systems andprocesses can be developed. In the longrun, community participation and public-pri-vate partnerships should become dominantfeatures of activities in this sector.

59Abbottabad Strategy for Sustainable Development

9Mining

61Abbottabad Strategy for Sustainable Development

Wood is the primary source of cooking fuel inthe district, used largely in rural areas wherenatural gas is not supplied in sufficient quan-

tities. This intensifies pressure on forest resources,stepping up the pace of denudation and damagingregenerative capacity. Although Abbottabad importsfuel wood to meet current demands, this arrangementis poorly managed. Meanwhile, theft and illegal fellingare widespread, partly owing to poverty.

Electricity from the national grid is said to cover 75% of the district, butestimating rural supply is difficult in the absence of uniform reportingsystems. Compounding the problem here is the fact that power lossesattributed to theft are as high as 22.2%. With respect to hydroelectricity,exploratory work by the Sarhad Hydel Development Organization(SHYDO) has been patchy, while development efforts are marred bythe absence of coordination between SHYDO, WAPDA, and thePakistan Council for Renewable Energy and Technology.

Alternative fuel sources are scarce and expensive. LPG and keroseneare available but costly, putting them out of the reach of the rural poor.Solar power, wind energy and biogas technologies, meanwhile, havenot been properly explored.

Energy

Nor have advocacy efforts been made to promoteefficient use, with the result that there is little or nopublic awareness about fuel conservation meas-ures, such as building energy-efficient structuresor using fuel-efficient cooking devices. Successin achieving fuel efficiency, introducing new tech-nologies and changing fuel use habits depends inlarge part on convincing women of the long-termramifications of adopting these innovations.

Situated at the crossroads of major highways,the district witnesses substantial transit traffic.Meanwhile, diesel use is on the rise, aggravat-ing pollution. Attempts to mitigate some of thisnegative fallout by encouraging transporters toconvert to compressed natural gas (CNG) aregaining momentum, although availability inremote areas remains a limiting factor.

The country’s energy dilemma is best summedup in the NCS which states that “Pakistan hasthe worst of both worlds: it is energy-poor andenergy profligate” (GoP and IUCN 1992: 207).In the case of Abbottabad district, the problem isexacerbated by the area’s dependence on thenational grid, the absence of indigenous gener-ation capacity, poor coverage of gas pipelinesand the high price of cleaner fuels.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Initiate a comprehensive, multi-sectoral,participatory effort to devise a district-levelplan for the energy sector. The focus shouldbe on pursuing alternative fuel sources,increasing indigenous capacity to cater tolocal fuel demand and undertaking advocacyefforts to increase civil society awarenessabout efficient fuel use.

■ Encourage fuel conservation, promote theuse of fuel-efficient heating and cookingdevices, and ensure that fuel-efficient build-ings are constructed.

■ Liaise with the Pakistan Council forAppropriate Technologies, research institu-tions, academia, donors, NGOs, line depart-

ments and the private sector to pursuehydroelectricity development. One such ini-tiative undertaken by SHYDO in collabora-tion with Deutsche Gesellachaft furTechnische Zusammenardeit (GermanAgency for Technical Assistance), on a 150kW microhydel power plant at Haro Nullahwas abruptly terminated.

■ Pursue the use of alternative technologiessuch as solar energy and wind power. Biogasproduction can be developed by plantingfast-growing tree species in wastelands,although this move will need to be balancedwith the district’s fodder requirements.

■ Promote the use of LPG and address thetwin factors of cost and availability.

■ Initiate systematic, long-term lobbying toincrease the supply of natural gas to ruralareas which currently rely heavily on fuel wood.

■ Initiate a mass awareness and oversighteffort, in partnership with the PeshawarElectricity Supply Corporation, NGOs, civilsociety and elected officials at all levels, to curb power theft and illegal electricityconnections.

■ Explicitly address the use of processed fuel,especially in light of the increasing use ofdiesel. Improve CNG availability and initiatea mass awareness and advocacy campaignto promote conversion to CNG.

■ Address the issue of transit traffic pollution byevaluating various remedial measures includ-ing the imposition of an environmental levy onthe ‘polluter pays’ principle. In this context, ini-tiate ambient air monitoring, starting withurban centres of the district, to develop aninventory for noise, carbon dioxide, sulphuroxide and nitrous oxide emissions. Promotethe use of punitive measures to check viola-tions of the National Environmental QualityStandards in consultation with the EPA.

■ Examine the use of coal, particularly brac-ket coal by the army, in a participatory effortaimed at finding more acceptable trade-offs.

MMEEDDIIUUMM TTEERRMM

■ Reduce rural dependence on wood by mak-ing economical alternatives available and

62 Abbottabad Strategy for Sustainable Development

10 Energy

improving coverage of pipeline gas supplyin these areas.

■ Increase the off-forest supply of fuel woodby promoting farm forestry, social forestryand nursery raising; planting multiple pur-pose trees and fast-growing species inwastelands; and providing afforestationinputs. In this context, strengthen partner-ships with rural communities, NGOs alreadyin the field, CBOs, research institutions,projects, donors and the private sector.

■ Eliminate wastage by ‘greening’ construc-tion and promoting fuel-efficient cookingdevices.

■ Incorporate a energy code for buildings inland use planning and zoning interventions.

■ Explore the use of solar cookers and solargeysers.

■ Seek the involvement of rural women whoare the principal collectors and users of fuelwood.

LLOONNGG TTEERRMM

■ Assess progress on key initiatives taken inthe short and medium term, including

expanding the supply of non-forest fuelwood; developing alternative fuel woodsources; and promoting fuel conservation,particularly in relation to fuel-efficient cook-ing and heating devices.

■ Extend piped gas coverage, particularly inrural areas.

■ Tap local energy sources by setting upmicrohydel power plants, developing solarenergy, establishing biogas plants, employ-ing wind power and building water mills.

■ Promote the construction of fuel-efficientstructures and introduce building codes toenforce compliance.

■ Build the capacity of stakeholders, particu-larly in relation to expertise in alternativefuel technologies.

■ Determine the extent to which LPG and gascylinder use has increased, to identify bot-tlenecks.

■ Assess the impact of transit traffic on pollu-tion, particularly in urban areas. Gauge theefficacy of punitive measures introduced inorder to identify gaps and launch additionalinterventions.

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10Energy

Dependence on fuel wood intensifies pressure on forest resources, stepping up the pace of denudation and damaging regenerative capacity.

65Abbottabad Strategy for Sustainable Development

Solid Waste Management

It goes without saying that waste management isimperative for public health and is also a key indica-tor of quality of life. Proper waste management

impacts other sectors as well, most notably tourism.Although district- and town-specific statistics are notavailable, sanitation coverage is poor on a nationalbasis, extending to barely 30% of the total population(WB 2000: 287). Across the board, municipal authori-ties are cash-strapped, and chronically short on man-power and equipment. In Abbottabad, nearly 90% ofthe funds of the Abbottabad and Havelian town author-ities is used to pay salaries, leaving close to nothing forother operational expenses. Financial constraints, coupled with inadequate capacity, lack of oversight andthe apathy of local communities, allow for little hoperegarding tangible improvements in the near future.

Ironically, the impact of tourism on waste management is also becom-ing a problem. While on the one hand the area is less attractive totourists because of poor sanitation, tourists themselves add to the prob-lem by increasing pressure on the already fragile municipal services.

Waste Water and

In terms of administration, difficulties are boundto arise with the devolution of local governmentcurrently under implementation. Arriving at aconsensus about planned initiatives will be com-plicated by the presence of three embryonictown authorities with more or less exclusivejurisdiction in their respective areas.

Ultimately, solutions to waste managementissues are only possible over the long term,involving considerable investment, technicalexpertise, manpower and information manage-ment, as well as behavioural change in domes-tic and institutional practices.

WASTE WATER

The SPCS notes that in the NWFP, “proper sew-erage networks, drainage systems, and wastewaster treatment facilities are completely lack-ing in the cities” (GoNWFP and IUCN 1996:116). Rural areas are even more poorlyequipped to deal with waste water disposal,although the negative impact here is mitigatedto some extent by a dispersed population resid-ing in scattered habitations. In Abbottabad’surban areas, however, the problem is critical.Households discharge waste directly (as sul-lage) or indirectly (as settled sewage) into nul-lahs (open drains) that run through residentialareas, posing serious health risks to inhabitants.Similar practices are adopted by hospitals,hotels, restaurants and small business inAbbottabad, Havelian and even Nathiagali.Illegal townships that have sprung up as a resultof increasing urbanisation put additional pres-sure on already fragile municipal services.

The waste disposal infrastructure is no longerable to cope with this pressure. In many areassewage is allowed to collect in open ponds, pos-ing a grave danger both to human health and theenvironment. Leakage is a common problem withsewage lines, unlined drains and septic tanks,allowing waste water to percolate into the soil andcontaminate shallow aquifers which serve as theprincipal source of drinking water for the localpopulation. Beyond the immediate healthimpacts, the current system of handling waste

water disturbs aquatic ecosystems, depletesaquatic resources, affects the agricultural use ofsurface water and pollutes the natural drainagesystem (GoNWFP and IUCN 1996: 116).

Even where dedicated facilities exist for wastewater treatment, these are either insufficient interms of capacity or lying disused. Bypassing itsown treatment plant, the Ayub Medical Collegeand Hospital Complex (AMC) discharges 18,000g/hr of untreated water into the Daur river, whichis used by communities further downstream forirrigation and drinking. The Jougni treatmentplant in Nawanshehr is not in operation.

What is perhaps most disturbing of all is the factthat in urban areas this heavy pollution arisesmainly from domestic users, and establishmentssuch as hospitals, hotels and businesses. Withno significant industrial activity to speak of,Abbottabad’s waste water disposal system isalready close to collapse. If industry were to bedeveloped in the district, it is difficult to see howthe existing system would be able to cope withthe additional pressure.

According to the World Health Organization, anestimated 25–30% of all gastrointestinal diseasesand 60% of infant deaths are attributable to waterborne infections and parasites (cited in GoP andIUCN 1992: 179). The cross-sectoral impact ofpoor public health is spelled out in this study,which shows that illness causes massive lossesto the economies of developing countries. InPakistan, the situation is expected to be similar, ifnot worse. For a district such as Abbottabad,where economic development is the priority, loss-es caused by preventable disease are likely to bea major stumbling block to future progress.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Examine key issues related to the dischargeof effluent, and assess their impact on waterbodies and drinking water supply systemsas well as public health. This is a crucial first

66 Abbottabad Strategy for Sustainable Development

11 Waste Water and Solid Waste Management

step towards devising a wide-ranging dis-trict-level waste management plan in coor-dination with the three townships that carrystatutory responsibility for dealing with thisissue.

■ Provide leadership, coordination and inte-gration to devise remedial plans by arrivingat a consensus with the three town authori-ties. Elected representatives from both tiers,under the leadership of the district govern-ment, should examine alternative mecha-nisms to enable remedial interventions inthe medium and long term.

■ Identify core issues that need attention andpursue these matters with the concernedtown authorities, focusing on areas that fallwithin the district’s jurisdiction. This integra-tive effort should address (i) the extent ofpollution, particularly in the case of waterused for drinking and irrigation; (ii) contami-nation through seepage during conveyance;and (iii) sources of pollution. The identification of pollution sources will be aprincipal input for developing more focusedinterventions.

■ Examine key health impacts such as theincidence of water-borne disease and para-sitic infection as a result of water contami-nation.

■ Assess existing capacity to handle wastewater, including sanitation and seweragefacilities, staff, budget, oversight mecha-nisms, user costs and treatment, particular-ly in the case of hospital waster water.

MMEEDDIIUUMM TTEERRMM

■ Coordinate interaction between the districtgovernment and town administrations todevise a comprehensive strategy to tacklethe issue of waste water, based on anassessment of the sources and types ofwaste water, existing capacity andresources, and costs of direct and indirectimpacts. Most inputs, particularly indicators,targets, implementation and oversightprocesses, and monitoring systems andmechanisms, will have to be devised at thetown level, with the district providing anoverarching umbrella presence as well as

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Even where dedicated facilities exist for water treatment, these are either disused or insufficient in terms of capacity.

capacity, expertise and assistance inresource procurement.

■ Help town authorities to assess needs,phase inputs, secure funds from donors andhigher-tier authorities, and garner the sup-port of local communities, NGOs and theprivate sector.

■ Examine available legislative and statutoryoptions to see where lacunas need to befilled through locally issued statutory cover.This effort can be tied to the proposed landuse planning and zoning interventions, mak-ing provisions for sanitation compulsory inall future water supply schemes, and fillingthe gaps in the legislation currently in force.

■ Seek the participation and cooperation oflocal communities to find long-term solu-tions to the problem of sewage and wastewater disposal, with the district governmentplaying a coordinating role.

■ Join forces with the three town administra-tions to undertake a comprehensive advo-cacy campaign, promoting awareness of theproblem and highlighting how individualhouseholds can make a difference. Take onboard NGOs, CBOs, opinion leaders andelected officials. This input should beintense and ongoing, since behaviouralchange for informed decision making can-not be brought about in the short term. It willtake time to inculcate a sense of civic con-sciousness, personal responsibility andownership in a populace long accustomedto indifference and apathy with regard toissues like sanitation and pollution.Breaking through this high indifferencethreshold will require a long-term concertedeffort.

■ Address the role of commercial establish-ments that add to the problem. Serve asfacilitator to allow the three towns to tacklewaste water generated by hotels, restau-rants and other commercial establishments.Oversight measures will be required, alongwith indicators for permissible levels of pol-lution, punitive measures on the ‘polluterpays’ principle and legislation to control dis-charges from institutions. Simultaneouslydeal with waste water discharged by hospi-tals, examining alternatives such as treat-

ment plants and anaerobic treatment. Bringthe AMC and Jougni plants back online andoperating at full capacity.

■ Encourage the use of untreated wastewater for irrigating crops that are notintended for human consumption.

■ Explore funding for infrastructure develop-ment, capacity building, technical inputs andawareness raising. Seek external financingto establish indicators and develop imple-mentation, oversight and punitive processesand mechanisms. A team effort under theleadership of the district would be an effec-tive way to approach this challenge.

■ Institutionalise inputs at the district level, ifonly for coordination and feedback ratherthan direct intervention, so that the basicintervention principles are followed and con-tinuity ensured.

■ Make community involvement an integralcomponent of planning, design and imple-mentation for all new programmes. Seeksimilar participation in the execution of pro-grammes already in implementation. Thiswill create public awareness, engenderwider support and community acceptance of proposed initiatives, and increase com-munity involvement in the operation andmaintenance of the assets created.

■ Consider the possibility of private-sectorinvolvement. Understandably an unpopularalternative, it is however realistic to keep inmind the resource crunch currently facingthe municipal authorities.

LLOONNGG TTEERRMM

■ Evaluate progress on remedial interventionsand examine achievements against estab-lished indicators. In a joint review exerciseconducted with the participation of lower-tierauthorities and stakeholders, audit the per-formance of processes and mechanismsestablished at the town level. Particularlyaddress areas where shortfalls persist, anddetermine additional inputs required to fillgaps in capacity, expertise, infrastructureand funding.

■ Promote community participation and continue with mass awareness campaigns

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11 Waste Water and Solid Waste Management

to elicit active cooperation from householdsand commercial establishments. Pursue addi-tional inputs and alternatives to strengthenparticipation, with active support from townadministrations and oversight personnel.

■ Ensure the full use of existing treatmentplants and expand these facilities whereverfeasible.

■ Examine progress in the use of punitivemeasures and strengthen the process. Asan adjunct to its mainly deterrent role, eval-uate the use of fines as a means to gener-ate resources for upgrading existing sanita-tion, sewerage and waste water handlingfacilities.

■ In partnership with town administrations,assess and ensure adherence to statutoryrequirements for sanitation schemes in allwater supply projects.

■ Pursue privatisation of waste water han-dling. In partnership with town administra-tions, examine incentives to promote private-sector involvement and assess the viabilityof permanent user charges to sustain private-sector interventions.

■ Pursue public-private partnerships in allnew schemes and promote communityinvolvement at all levels.

■ Examine the possibility of establishing a district-level institutional home for theseactivities.

■ Assess capacity development needs at thedistrict level, and at the town level in thecase of custodial agencies.

■ Continue to solicit donor and higher-tierresource inputs to improve waste watertreatment and sanitation services on a district-wide basis. Undertake joint lobbyingwith town administrations to improveprospects for resource generation.

SOLID WASTE

The generation of solid waste is intrinsic to theprocess of consumption, increasing both withpopulation growth and as a society becomesmore affluent. Inappropriate disposal poses agrave threat to human health and quality of life.While reliable figures are not available, conser-

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11Waste Water and Solid Waste Management

At the solid waste disposal site at Salhad, accumulated garbage is often burned in the open.

vative estimates put the amount of solid wastegenerated annually in the district at 20,000 t.

The lack of formal documentation is not just adistrict-level problem. According to the SPCS,statistics are hard to come by even at theprovincial level:

It is difficult to estimate the actual quantity of solid waste generated in vari-ous cities and settlements of theprovince, as the authorities involved haveno system to monitor the quantities, theseasonal and regional variations and thecomposition of the solid waste (GoNWFPand IUCN 1996: 111).

A 1992 survey carried out by the NWFP EPAreveals that the now-defunct municipal commit-tees of Havelian and Abbottabad, and theAbbottabad cantonment board, were generating10.9 t of solid waste daily, of which only 50%was collected while the remainder was allowedto accumulate in streets and open spaces, andin public drains (GoNWFP 1992). There is noreason to believe that the situation hasimproved since.

Compounding the waste disposal problem isbiomedical waste from health care institutions.Each day, the district’s four hospitals generate1.03 t of waste which is dumped in nearby openspaces. The AMC alone generates waste to thetune of 800 kg/day, which is handled by arecently installed incinerator. In the absence of asystem to sort and separate waste, however,biomedical waste is frequently mixed withmunicipal and household refuse.

The solid waste collection capacity of the formermunicipal committees was rudimentary. Theseresponsibilities are now borne by the town admin-istrations. In some places, bins and skips havebeen provided but their use is limited, and opendumping is the preferred practice. Even wheresuch facilities are in use, their ill-planned and ofteninconvenient location means that periodicremoval of collected garbage by municipal author-ities is difficult. Solid waste that is actually collected by the concerned agencies is dumped atSalhad, a site located alongside the Karakoram

Highway, where accumulated garbage is oftenburned in the open. While this practice has obvi-ous environmental and health impacts, it alsoundermines the aesthetic appeal of the district,particularly since many visitors to the area enterby means of the Karakoram Highway.

The state of solid waste disposal across thecountry is summarised in the NCS:

Overall, municipal garbage collection [...]is a fiasco and a failure. It is a fiasco inthat in spite of taking the largest singleshare of municipal expenditures the levelof service is abysmal. It is a failurebecause garbage still constitutes a healthhazard and an eye sore, blocking drains,exacerbating flooding, and providing abreeding ground for rats, flies, and dis-ease (GoP and IUCN 1992: 233).

The situation in Abbottabad district is no differ-ent. Proper sanitation facilities are available toonly 70% of urban residents and just 12% ofrural inhabitants. Given the widespread publicindifference regarding sanitation, implementingremedial measures and interventions is likely toprove difficult. A combination of financial inputs,expertise in scientific management and technicalknowledge to design an integrated managementsystem will be required, along with sustainablebehaviour change among all stakeholders.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Identify the sources and quantity of solidwaste generated in the district in variouscategories (municipal, hospital, toxic), underthe aegis of the three town administrations.

■ Develop procedures for the appropriate dis-posal of biomedical and toxic waste.Monitor compliance by maintaining on-siteinventories to tackle the very serious threatposed by the mixing of municipal and bio-medical waste.

■ Critically examine the existing practice ofopen dumping and explore suitable alterna-

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tives. In this context, immediate attentionwill be directed towards either finding analternative dumping site or transforming theexisting one into a landfill. The same will bedone for dumping practices in Havelian, andan audit will be undertaken to assess cur-rent practices in Nawanshehr and theGalliyat area.

MMEEDDIIUUMM TTEERRMM

■ As a precursor to identifying integratedmanagement options, finalise an exhaustiveaudit of the entire solid waste disposal sys-tem. This effort will be carried out under theumbrella leadership of the district govern-ment with the active involvement of thethree towns as well as the cantonmentboard and other stakeholders.

■ Once a database for all administrative tiershas been developed, chalk out an interven-tion plan with the town administrations andcantonment board playing a major role inoverseeing implementation. At a minimum,the intervention plan should take intoaccount the following areas:❑ The extent of existing coverage, avail-

ability of financial and technicalresources, and efficacy of existingimplementation, monitoring review andenforcement mechanisms;

❑ The extent of public involvement, civilsociety awareness and general under-

standing of the environmental and healthimpacts of indiscriminate dumping;

❑ The extent to which private-sectorinvolvement through user charges canbe pursued and gradually increased;

❑ The handling of biomedical waste andthe possibility of building incinerators atall hospitals in the district;

❑ Formulating basic indicators, settingannual targets and assigning responsi-bility for meeting targets;

❑ Examining support for the recyclingbusiness already flourishing inAbbottabad to ease the pressure onmunicipal services; and

❑ Pursuing capacity building on an ongoingbasis.

LLOONNGG TTEERRMM

■ Focus on coordination, technical and capacity support, and pursue alternativesources of funding.

■ Seek private-sector investment and providethe necessary support by enacting legisla-tion and lobbying with concerned stakehold-ers, including local communities and finan-cial institutions.

■ Limit government intervention and encour-age private-sector entry, employing market-based instruments and punitive measuresbased on the ‘polluter pays’ principle.

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73Abbottabad Strategy for Sustainable Development

and Zoning

Planning and zoning laws allow scarce landresources to be used wisely. In the absence ofsuch regulation, the increasing pressure of

population growth and urbanisation is likely to resultin haphazard development, carried out with no regardfor the long-term impact on quality of life or the environment.

Burgeoning poverty and rapid population growth have quickened thepace of urbanisation in Abbottabad, where cities and towns have inrecent years witnessed unplanned construction and the mushroomingof illegal settlements. In the absence of robust land use planning andzoning laws, no regulatory framework exists to manage this growth.As a result, the district’s urban environment is becoming severely congested, while green belts are increasingly being converted intoresidential areas. Municipal services such as water supply and wastedisposal are struggling to cope with the increased pressure.

Rapid urbanisation has also distorted the pattern of land use in thedistrict. With land prices escalating in the vicinity of urban areas, valu-able agricultural land on the outskirts of cities is being sold off for com-mercial development. Without strict enforcement of the EIA regime, little can be done to regulate this development or mitigate its adverse

Land Use Planning

impacts. Meanwhile, artificially high prices affectthe implementation of much-needed infrastruc-ture projects, particularly in the case of ameni-ties and services.

In a region known for its breathtaking landscapeand natural beauty, the district’s urban areas arenow being robbed of parks, playgrounds andopen spaces. Despite the serious nature of theproblem, land use planning and zoning has notbeen a priority for the local administration. Poorcommunication and advocacy efforts, and theabsence of both enlightened debate and stake-holder involvement, do not bode well for thefuture.

It is also important to recognise that land use andzoning is not simply an urban issue. While urban-isation and its attendant processes must be

brought under regulation, land use laws areequally relevant to the working of sectors such asmining and infrastructure development. Land usepatterns also impact sectors such as agriculture,forestry, tourism and biodiversity. These complexinterrelationships will need to be examined.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Develop specific zoning and building codesto address increasing urbanisation and hap-hazard urban development.

■ In conjunction with town administrations,initiate steps to stop radical changes in landuse.

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12 Land Use Planning and Zoning

Burgeoning poverty and rapid population growth have quickened the pace of urbanisation in Abbottabad, where cities and towns have inrecent years witnessed widespread encroachment as well as unplanned construction.

■ Carry out an in-depth analysis of currentland use laws and zoning regulations. A keyconsideration here should be to assesswhether existing regulations are able tohandle the current development needs ofthe district as well as the future require-ments of the three town administrations.The focus here should be on controllingunplanned growth and forecasting the needfor public facilities.

MMEEDDIIUUMM TTEERRMM

■ Provide an enabling framework for all threetown administrations to formulate generaland area-specific land use planning andzoning laws to supplement higher-tierprovincial plans on the same subject.

■ Support and strengthen designated protect-ed areas by providing strict oversight ofurban growth, tourist activity and construc-tion in the vicinity of such areas.

■ Ensure that land use laws cover Ayubia,Nathiagali, Thandiani and other tourist spots

to ensure that the unique natural capital ofsuch areas is preserved.

■ Address the interrelationships between landuse decisions, infrastructure and land useimpacts, as well as the linkages with biodi-versity, agriculture, forestry, pollution andpublic health.

LLOONNGG TTEERRMM

■ Once progress is made in higher-tier planningfor this sector, provide coordination, technicalsupport, capacity building, and assistance indeveloping oversight and enforcement mech-anisms at the district and town levels.

■ Promote advocacy, community awarenessand stakeholder motivation to bring aboutbehaviour change so that land use planninghas the support of civil society. Keep in mindthe fact that extreme poverty is a key con-tributor to urban migration.

■ Develop long-term processes, systems andmechanisms for implementation, oversight,enforcement and feedback.

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12Land Use Planning and Zoning

Socio-EconomicSectors

PART IV

79Abbottabad Strategy for Sustainable Development

Education plays a critical role in human develop-ment. By improving individual employmentprospects, thereby increasing household

income, education enables economic growth to takeplace. On the community level, it is a precondition forinformed decision making and serves as a catalyst forsocial change.

PUBLIC SECTOR

Despite substantial investment in the construction of new schools forboth male and female students, enrolment ratios have not risen. Thisvalidates the hypothesis that the shortage of school buildings is not inand of itself a dominant concern. In fact, issues of gender, access,transport, location and quality are equally important.

No performance benchmarks have been developed for various levelsof education. Vital indicators such as drop-out rates, repeat rates, pro-motion ratios, participation ratios and teacher-student ratios need tobe formulated, to enable an accurate assessment of performance andto allow for the development of accountability mechanisms.

Rural schools are characterised by irregular teacher attendance, thereluctance of staff to serve in remote areas and substandard accom-

Education

modation facilities for women instructors. Acrossthe district, the quality of teaching is poor, withmatriculation currently the only educationalqualification required for appointment. Teachermotivation is dampened by the absence of in-service training, coupled with low pay and fewprospects for advancement. For students andtheir families, the obsolete curriculum throwsinto doubt the necessity and relevance of edu-cation. The standard of middle, higher and inter-mediate schools is unsatisfactory, as reflected inthe failure rate in high and higher secondaryexaminations. Teaching methodologies are notdesigned to encourage independent thinking,teachers are inadequately trained and a reliableteachers’ examination system is lacking.

It goes without saying that primary education isthe cornerstone of sustainable growth, a crucialfirst step towards developing human capital.Indeed, at both the national and international

level, primary education is recognised as a driv-ing force for development. Under the UnitedNations Millennium Development Goals (UN-MDG), all Member States have pledged toachieve universal primary education by the year2015 (UN 2000). This commitment is endorsedin the NCS-MTR as well. On the ground, how-ever, the reality is that a host of factors preventsdistricts such as Abbottabad from attaining thistarget. Instead, enrolment ratios at the primarylevel in Abbottabad have witnessed a steadydecline over the past several years.

The middle level is a vital link in the chain of edu-cation. In the absence of reliable indicators, qual-ity and output at this level cannot be monitoredsystematically. This makes it all the more difficultto bring about meaningful change or introducetransparency and accountability in the existingsystem. Indicators for Secondary SchoolCertification and the intermediate level are

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13 Education

Awareness needs to be raised among children of school-going age as well as their parents about the realities of the job market and the importance of acquiring marketable skills and qualifications.

unsatisfactory, and improvements in the systemare difficult to achieve in the current climate ofadministrative overlaps and low investment.Access to tertiary education is restricted to urbanarea residents, effectively marginalising 80% ofthe district’s population. At the tertiary level,there is also a wide gap between the curriculumand the requirements of the job market.

Comprehensive indicators need to be devel-oped for all levels not only to assess progress orfailure but also to serve as a tool for initiatingremedial measures. Across the board, the cur-riculum needs to be broadened to include sub-jects such as health, nutrition and environmen-tal conservation. This process will be hinderedby the fact that curriculum matters are currentlyunder the jurisdiction of the federal government.

PRIVATE SECTOR

Across the country, private-sector education isflourishing and Abbottabad district is no excep-tion. The public sector is no longer seen as anefficient service delivery mechanism and peopleare willing to pay significantly higher fees to sendtheir children to private institutions in the hopethat this will provide greater payoffs in the longterm. In Abbottabad, the private sector is a majorplayer in education, accounting for close to 17%of total enrolment at the primary level alone.

The activities of the private sector have notbeen systematically documented. In fact, dataon private sector education is so scant that it isdifficult even to reliably determine the number ofinstitutions in operation. The absence of formaldata hinders comprehensive planning for thefuture. Oversight mechanisms are also lacking,with the result that private sector educationoperates virtually without any form of regulation.

Despite the absence of formal documentation, itis safe to assume that the majority of privateeducational institutions is located in urban areasthat are already relatively better served throughthe public sector. The inequity here is all themore alarming given the nexus between educa-tion, poverty and sustainable development—

and the fact that 80% of Abbottabad’s popula-tion resides in rural areas.

With the increasing popularity of private-sectoreducation, it is imperative for the government tobuild a vibrant partnership with private-sectorinstitutions, providing incentives to extend theirreach while regulating fees and developingoversight mechanisms. At the same time, thegovernment can draw on the success of the pri-vate sector to improve its own performance.

Masjid and maktab schools are an intrinsic partof the country’s history and culture. By educat-ing the poorest segments of society, theseschools serve to bridge the gap created byexisting socio-economic conditions.Adjustments will be needed to expand andupdate the syllabus of such schools, allowingthem to contribute to mainstream learning.These adjustments should be made in a con-sensual and participatory manner.

TECHNICAL AND VOCATIONAL EDUCATIONThe concept of employment and economic via-bility is strongly tied with social status and jobsecurity. Government service and professionssuch as law, engineering, medicine and busi-ness administration are the employment optionsfavoured by the residents of the district. Thisbias is passed down from generation to genera-tion despite the fact that employment opportuni-ties in these fields, limited to begin with, are nowsaturated and further squeezed by continualdownsizing.

In this scenario, greater attention must be paid tothe promotion of entrepreneurship and self-employment. There is also a need to diversify theeconomy, moving away from traditional, stereo-typical ideas of employment. Strengthening thecapacity and quality of technical and vocationalskills training is one way to initiate this transition.

Given the limited employment prospects in tra-ditional sectors and the increasing lack of inter-est in education generally, partly because of its

81Abbottabad Strategy for Sustainable Development

13Education

perceived irrelevance to practical life, technicaland vocational training must be included as akey component of all future programmes aimedat improvements in the education sector. At themoment, the state of technical/vocational insti-tutes is abysmal. Marginalised in terms ofresource allocation and crippled by decrepitinfrastructure, antiquated syllabi and poor quality instruction, the potential of such institu-tions in both the public and private sector is lessthan optimal.

In a fast-changing world where job opportunitiesare few and far between, skills acquisition is oneway in which to break the cycle of poverty. It isunrealistic for young people to attend school inthe hope that they will all eventually find work aslawyers, engineers or civil servants. Awarenessneeds to be raised among children of school-going age as well as their parents about the

realities of the job market and the importance ofacquiring marketable skills. After all, in the sus-tainable development paradigm, the goal ofeducation is to improve employment prospects,thereby serving as a means to mitigate poverty.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Build a comprehensive database for all lev-els of schooling and establish baseline indi-cators. Data must be disaggregated by gen-der and urban/rural area for each of the fol-lowing: enrolment rates; participation rates;drop-out rates; failure rates; repeat rates;average class size; teacher-student ratio;performance in examinations, particularly

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Private educational institutions are for the most part located in urban areas that are already better served through the public sector.

external, by means of pass ratios in variousdivisions; child reading skills (Class V); andadult literacy.

■ Collect statistics on institutions operating inthe sector, including: the total number ofinstitutions at various levels; the private-sector component; total investment and theproportion of investment in various levels;and informal education, including masjidschools, maktabs, home schooling, femalehome schooling, NGOs and projects.

■ Assess gaps to decide where new schoolsand colleges need to be established.Special consideration should be given to (i)improving female enrolment ratios and (ii)eliminating political interference from theprocess of identifying locations for newschools. Decisions regarding the location ofnew schools will be based on needs, acces-sibility issues and population.

■ Examine key issues such as political inter-ference in teacher transfers; teachers’refusal to serve in remote areas; theabsence of accommodation, particularly forfemale teachers in rural areas; and the inad-equacy of equipment and facilities.

■ Devise measures to bring about depolarisa-tion, transparency and accountability as animmediate input to improve the long-termsustainability of all interventions in the sector.

■ Conduct a comprehensive survey of private-sector educational institutions to determinethe scale of private-sector presence, its rel-ative efficiency and the possible role it canplay in lessening the burden on the publicsector. Assess the performance of private-sector institutions on major indicators suchas return on investment, cost per capita,student-teacher ratios, the average numberof students per institution and performance,particularly in external examinations. Devisemechanisms to enhance its presence.

■ Review the trend of declining enrolment inmasjid and maktab schools. Pursue themainstreaming of such institutions byexpanding the curriculum and encouragingthe use of modern technology.

■ Ensure that the Government of Pakistan’scommitment to the UN-MDG is built into allfuture planning and interventions in the edu-

cation sector. This will be done in partner-ship with the federal and provincial govern-ments and, where required, with the assis-tance of international donors.

■ Pursue options other than reliance on theprofit-driven private sector to improve literacyand participation rates, particularly in remoterural areas with scattered communitieswhere the large-scale construction ofschools is not viable. Seek greater partici-pation of NGOs already active in the sectorand promote home schooling or hometuition, to be provided by specially trainedmobile units using an intensive teachingregime for a few months each year.

■ Discard the top-down, arbitrary, ‘turf-protection’ orientation that has characterisedmanagement of the education sector. Formparent-teacher associations (PTAs) andencourage the participation of CBOs toaddress issues such as drop-out rates, non-functioning schools, teacher shortages, andfailures of accountability and transparency.

■ Motivate both parents and civil society tovalue education and to encourage childrento remain in school. At the same time,efforts should be made to improve publicperception regarding the benefits of educa-tion, including its role in improving jobprospects and socio-economic mobility.Launch a comprehensive advocacy cam-paign in this context.

■ Evaluate the potential of adult education,particularly the nexus between adult educa-tion and poverty alleviation. This shouldenable a policy decision to direct greaterinvestment towards adult literacy and basiceducation as a means to ensure a moreimmediate, pro-poor focus.

■ Incorporate environmental education intothe curriculum at all levels. The principle aimbehind this move is to instil an ethic of con-servation among young people and famil-iarise them with the importance of the sus-tainable use of natural resources.

MMEEDDIIUUMM TTEERRMM

■ Finalise disaggregated baseline indicatorsand establish annual targets. For each indi-

83Abbottabad Strategy for Sustainable Development

13Education

cator, assign responsibility to specific education department functionaries.

■ Establish a formal evaluation and promotionpolicy, at least for institution heads, basedon performance in relation to progress onindicators.

■ Develop an implementation, oversight andreview mechanism, preferably housed out-side the education department. A watchdogentity comprising civil society, stakeholders,technical experts and elected representa-tives will be required to monitor progressand evaluate policy guidelines.

■ Establish PTAs in all schools, assigningresponsibility for this task to each institutionhead. PTAs can supplement work on indica-tor targets, and provide grassroots supervi-sion of teacher attendance, teaching qualityand the general functioning of individualschools. PTAs should also be made anintrinsic component of advocacy efforts,particularly in rural areas, to encourage par-ents to value education and improve reten-tion rates, particularly for girls.

■ Prohibit the current practice of political-cum-influence-based transfers and promotions inorder to ensure effectiveness in the imple-mentation process for indicators. Mid-yeartransfers negate the entire concept ofexamining performance. Establish a mini-mum period of tenure. As a rule of thumb,no transfers should be allowed before theconclusion of a three-year posting.

■ Seek the assistance of donors and technicalexperts to establish an oversight process.Facilitate measures that will allow interven-tions in the education sector to operateindependently and remain sustainable.

■ Introduce a system of shifts to maximise theefficient use of existing resources. This stepshould also allow other key issues to beaddressed, such as lowering drop-out rates(children are often forced to quit schoolbecause their household responsibilitiesmake morning attendance impossible) andexpanding the reach of female education(using boys’ school buildings to educategirls in different shifts and, where necessary, at different levels). The detailswill need to be fine-tuned through consulta-

tions with local communities, the educationdepartment, PTAs and NGOs. Replicablemodels from other parts of the country aswell as other countries should be examined,and donors may be approached for assistance.

■ Encourage the private sector to expand itspresence, particularly at the tertiary level.

■ Fully audit the private sector, which alreadyaccounts for two-digit enrolment, to intro-duce formal oversight, check abuses andcurb unnecessary expenditure.

■ Provide incentives such as loans and taxbreaks to increase private-sector involve-ment in rural areas, female education, andtertiary and specialised education, includingcomputer and vocational/technical skillstraining.

■ Examine replicable models of NGO involve-ment in setting up community-basedschools to broaden the base of serviceproviders. Strengthen current NGO involve-ment in running literacy centres and inviteNGOs to participate in informal educationfor girls, particularly in rural areas.

■ Carry out capacity development to improvethe management skills of education person-nel, particularly heads of institutions. Thisaspect of education receives little attentioneven though effective management andadministration are crucial if other interven-tions are to have any realistic chance ofsuccess.

■ Use technical and vocational education as atool to directly address employment andpoverty alleviation. Implement interventionsto improve access, particularly for girls; mod-ernise the curriculum; provide equipmentand facilities; and promote information tech-nology (IT) training. Ensure the provision ofcompetent faculty and adequate oversight.

■ Encourage private-sector involvement intechnical education. Take advantage of thefederal government’s current emphasis onIT training to seek resource inputs for thedistrict.

■ Pursue outside sources of funding such asuser charges, donor contributions and phil-anthropic donations to cushion the resourcecrunch facing the sector as a whole.

84 Abbottabad Strategy for Sustainable Development

13 Education

LLOONNGG TTEERRMM

■ Introduce local-level curriculum changeswherever possible, since an extensive over-haul of the curriculum at all levels is cur-rently under the administrative authority ofthe provincial government. Introduce envi-ronmental issues into the curriculum,expand vocational/technical training andstrengthen the examination system to elimi-nate widespread cheating. At the sametime, pursue innovative options to fill thegaps at all levels in the education system.

■ Continue to prioritise private-sector partici-pation and examine partial privatisation ofgovernment schools.

■ Strengthen regulation of the private sector,not in a punitive fashion but rather in a man-ner that ensures transparency and preventsunnecessary expenditure.

■ Address the concentration of private-sectorinstitutions in urban areas, providing incen-tives for education providers to expandoperations to rural areas.

■ Make the establishment of PTAs mandatoryat all levels and pursue their increasedinvolvement in school management. In thiscontext, undertake capacity developmentand facilitate access to information.Formulate a long-term reporting and evalu-ation system to incorporate the findings ofPTAs into future planning.

■ In partnership with parents, local communi-ties, NGOs and CBOs, undertake informaleducation activities, particularly for femalesin remote rural areas.

■ Introduce mobile tutoring on an experimentalbasis and extend coverage of this system,based on feedback from pilot interventions.

■ Pursue adult literacy programmes to pro-vide basic education and marketable skills.The ultimate aim is to alleviate poverty,make a positive impact on demographicindicators, improve public health, increasecivic awareness and promote respect forthe law.

■ Continue to focus on teacher training andthe quality of education. This is a long-termeffort primarily because, like curriculummatters, this area is not entirely within thediscretionary power of the district govern-ment. The district should lobby higher tiersto bring about changes in the current sys-tem, while improvising local capacity-building interventions by pursuing opportu-nities for international exposure, nationaltraining courses and regional workshops.

■ Undertake initiatives to address inadequa-cies in English language teaching and thesciences in partnership with NGOs, projects, donors and other entities.

■ Increase the minimum academic require-ments for primary school teachers and train-ing instructors. Make minimum qualificationsmandatory for all higher-level instructors.

■ Continue to support masjid and maktabschools. Pursue the progressive mainstream-ing of such institutions by adding to their cur-riculum and improving teaching technologies.

■ Seek funding alternatives and innovativemechanisms to increase the salary of teach-ers. Although service structure issues areoutside the district’s domain, it is possible tofind solutions at the local level.

■ Strengthen technical/vocational training andreorient IT education to focus on employ-ment opportunities, economic diversificationand poverty alleviation.

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13Education

87Abbottabad Strategy for Sustainable Development

Welfare

Ahealthy population is better placed to pursueeconomic growth and sustainable develop-ment. Good health allows for an improved qual-

ity of life and increased economic participation, whilelowering the cost to employers of work days lost dueto illness. Public health standards are universallyaccepted as key indicators of development and invest-ment in human resources. Population welfare is anissue of critical importance as well, particularly in thedeveloping world. Fertility rates, maternal and infantmortality rates, and traditional practices such as earlymarriage directly influence population growth and crit-ically impact development and quality of life.

HEALTH

On paper, Abbottabad’s heath sector seems to be performing well.Statistics show that the district ranks high in comparison with otherparts of the province. With 108 health facilities of various types oper-ating in Abbottabad with more than 1,500 medical personnel, in addi-

Health and Population

tion to the AMC, indicators for this sector areindeed positive. But when coverage and accessconsiderations are factored into the equation, anumber of serious issues arise with regard tothe overall performance of the sector.

Indicators such as population per nurse, popu-lation per bed, population per medical institutionand population per doctor need to be disaggre-gated to show the massive disparities that existbetween urban and rural coverage. Most hospi-tals in the district are located in and aroundmajor urban centres with the result that ruralcommunities, particularly those in remote areas,are left without access to proper medical facili-ties. Besides the concentration of health carefacilities in urban and semi-urban areas, a num-ber of other issues need to be addressedurgently. These include the substandard serviceprovided by rural health centres, basic healthunits and rural dispensaries, which are cashstrapped and lack even the most rudimentaryhealth intervention capacities. It is critical as wellto focus on primary and preventive health carein rural areas, with emphasis on clean drinkingwater, improved sanitation and householdhygiene.

The construction of large-scale projects such asthe AMC would be better justified if their contri-bution to district-based service provision wasunambiguous. The opportunity cost of buildingmore small hospitals with fewer beds but withadequate primary and diagnostic care capaci-ties, and used to full capacity, rather than mega-projects must be critically examined in order todetermine the future strategy required to cateroptimally to the health care needs of the dis-trict’s population.

Non-development expenditure, primarilysalaries, consumes the bulk of the health budg-ets of various institutions, leaving insufficientfunds even for basic needs such as repairs andmaintenance, bedding, medicines and equip-ment. Recent cuts in developmental and non-developmental allocations have aggravated theresource crunch, with the greatest impact on therural poor residing in remote areas. Politicalinterference, a hierarchical approach, the short-

age of trained and qualified personnel, inade-quate operational funds, the lack of coordinationwith NGOs, and the absence of private-sectorinvolvement exacerbate problems confrontingthe sector.

It is clear that Abbottabad’s urban residents arefairly well covered by a diverse health care deliv-ery system in the public sector, supplemented bya significant private-sector presence. The oppo-site is true for the vast majority of rural residentswhose health care needs are intensified by con-taminated drinking water, poor sanitation, theabsence of family planning, ignorance aboutnutrition and overwhelming poverty. It is criticalthat rural/urban disaggregated health indicatorsare formulated to plan more effectively for thefuture. These indicators should be used to devel-op a district-specific health sector policy that isnot centred on large projects that are heavilyskewed in favour of urban residents.

Under the UN-MDG, the Government ofPakistan has pledged to reduce by two thirdsthe mortality rate among children under five andreduce by three quarters the maternal mortalityratio by the year 2015 (UN 2000). Given thesecommitments, and the cross-sectoral impact ofhealth, action in this sector is all the moreimportant.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Develop indicators and benchmarks for thesector, disaggregated for rural/urban areas,to reveal the inequitable distribution of healthcare facilities. Indicators should cover a widerange of performance areas including: popu-lation per bed, population per health institu-tion, population per nurse, population perdoctor, health expenditure per capita, mater-nal mortality, child mortality, malnutrition,water sources and sanitation.

■ Establish guidelines to limit political interfer-ence and fix the duration of postings to pro-mote transparency. These guidelines should

88 Abbottabad Strategy for Sustainable Development

14 Health and Population Welfare

be in the form of indicators, covering thenumber of patients seen, revenues generat-ed, savings, access to diagnostic facilities(x-rays, laboratories) and staff attendance.

■ Examine the functioning of rural health cen-tres and basic health units. Develop indica-tors related to the performance of suchfacilities; their contribution to improvinghealth care; and the compulsory, rotationalposting of all medical personnel to ruralareas. Communities and elected represen-tatives must be actively involved in deter-mining the broad parameters for these indi-cators.

■ Examine options to shift the basic orienta-tion of health policy, based at the very mini-mum on the following components:❑ Refurbishing and improving existing

basic health units and rural health cen-

tres, especially considering that a com-plete package of health facilities cannotrealistically be delivered to the doorstepof all rural residents because the popu-lation in such areas is widely dispersed.

❑ Establishing smaller hospitals withstrong primary and preventative capaci-ties, as well as improved diagnostic andtreatment facilities, to improve coveragemore cost-effectively than by the con-struction of mega-projects with greaterpublic relations value.

❑ Emphasising primary and preventativehealth care with particular focus onnutrition, clean drinking water, sanita-tion, waste management and personalhygiene. This should serve as the starting point for all future health inter-ventions.

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14Health and Population Welfare

The construction of large-scale projects, such as the Ayub Medical College and Hospital Complex, would be better justified if their contribution to district-based services was unambiguous.

■ Address primary health care issues byincreasing resources allocated to such facil-ities operating in district and town hospitals.

■ Evaluate the establishment of mobileteams, particularly for paediatric and repro-ductive medicine, to cater to remote andinaccessible areas until such time that fullcoverage is made available. This is criticalto lower maternal and infant mortality, whichis also part of the federal government’scommitment under the UN-MDG.

■ Strengthen preventive health care with par-ticular focus on principal disease sources:contaminated drinking water, improperwaste management, malnutrition, poor per-sonal hygiene and self-medication.

■ Formulate a communications and advocacypackage involving NGOs, elected represen-tatives, CBOs and opinion leaders. Creatinga nexus between environmental and humanhealth should form the core of this package.

■ Pursue increased public-private partnershipin the health sector. Extend financial incen-tives to promote the establishment of auxiliaryfacilities such as laboratories and x-ray units.At the same time, devise comprehensive regulatory mechanisms to mitigate abuseswitnessed in private-sector institutions.

■ Address serious problems that plague thesector, such as unqualified doctors, sub-standard drugs and the availability of med-ication without prescriptions. These areenforcement issues, directly related to gov-ernance.

■ Develop oversight and regulatory mecha-nisms to govern both the private and publicsector.

■ Extend the public-private partnership inhealth care to include NGOs, a number ofwhich are already active in the field.

MMEEDDIIUUMM TTEERRMM

■ Finalise short-term planning issues and indi-cators to develop an integrated master planfor promoting sustainability in the sector.This master plan must be prepared in a par-ticipatory manner and operationalisedthrough the health department. Oversightand evaluation mechanisms at the level of

basic health units and rural health centresshould be developed.

■ Ensure that all new facilities, particularlybasic and rural health centres, are estab-lished on the basis of need and in consulta-tion with stakeholders. Increasing coveragewill be the principal aim of all such interven-tions. Community involvement in manage-ment and operation will form an integralcomponent of interventions, along with equi-table user charges based on the ability topay. The long-term goal is for all such unitsto attain a degree of self-sufficiency so thatgovernment funds can be channelled todevelopment and expansion.

■ Ensure that health facility managementincludes community oversight, in a mannerakin to PTAs, to check rampant malpracticesuch as the black market sale of medicinesand supplies, and routine doctor and staffabsenteeism. Develop a district-level over-sight mechanism backed by legislative cover.

■ Tackle preventive health care, particularly inrural areas, through the informal sector.Involve the community as a whole and seeksupport from the vast network of CBOs andvillage organisations already operating inthe district under the aegis of projects andNGOs.

■ Explore the option of community involve-ment in the selection and recruitment ofhealth workers, perhaps through a systemof quotas, making the communities them-selves responsible for oversight, review andfeedback.

■ Liaise with the concerned governmentdepartments to raise awareness about pre-ventative medicine. Involve municipal andtown authorities to promote the supply ofsafe drinking water and the proper handlingof waste; to address issues of air, noise andwater pollution; and to deal with the healthrisks posed by the operation of certain com-mercial entities such as poultry farms.

■ Persuade the education department toinclude subjects like nutrition, sanitation andpersonal hygiene into the existing curricu-lum, and create awareness about these topics among parents and civil society ingeneral.

90 Abbottabad Strategy for Sustainable Development

14 Health and Population Welfare

■ Put in place a mechanism to oversee theworking of the private sector. A few pilot privatisation exercises should also beundertaken and subjected to an intenseanalytic exercise to evaluate the pros andcons of extending the system to other areasand at various levels of service delivery.

■ Extend incentives and provide investmentsecurity in tandem with oversight and regu-latory mechanisms to ensure a smooth tran-sition of ownership and simultaneouslyblock avenues of exploitation and misuse.

■ Provide statutory cover for the compulsoryposting of government doctors to ruralareas for a minimum three-year period andensure that this requirement is strictlyenforced.

■ Develop a more attractive remunerationpackage for medical technicians andaddress their capacity shortfalls by provid-ing training, to increase staff retention andoptimise the use of expensive diagnosticequipment.

■ Build incinerators at all major health facili-ties to ensure that medical waste is dis-posed of properly. Increase the capacity ofthe existing incinerator at the AMC andupgrade its treatment plant. Such measuresmust be mandatory for all hospitals. In addi-tion, health personnel should be trained toseparate, bag and transport biomedicalwaste to prevent the mixing of municipaland biomedical waste.

LLOONNGG TTEERRMM

■ Examine critical bottlenecks and stumblingblocks. Assess performance against indica-tors to determine the success or failure ofvarious innovations and to introduce newprocesses and mechanisms to strengthentransparency and accountability.

■ Assess progress on coverage, capacitydevelopment, funds generation throughuser charges, and the training and retentionof technicians and nurses.

■ Evaluate progress in attaining the UN-MDGand measure the success of attempts toestablish linkages between concerneddepartments.

■ Make privatisation of the sector a priority forall new interventions. Stringent governmentoversight should be part of this agenda,along with the provision of public-sectorservices in cases where private-sectorinvolvement is not viable.

■ Enhance the share of health in the districtbudget, and allocate resources for theacquisition and use of the latest technology,equipment and medical practice.

■ Continue to provide mobile clinic services toremote areas and incorporate new tech-nologies to further improve service delivery.

■ Address public health issues such as theadoption of healthy living practices.

POPULATION WELFARE

Unchecked population growth is a major stum-bling block in the path of sustainable develop-ment, increasing the pressure on land and natu-ral resources, and leading to urbanisation andhigh-density habitations. Successive adminis-trations have failed to break through socio-reli-gious taboos with regard to family planning,adding to the problems of poor public health anddeepening poverty.

Rural population welfare coverage is poor, withgenerally ineffective implementation of familyplanning and reproductive health programmesacross the district. No visible impact has beenmade in reducing fertility or maternal mortality.Abbottabad’s failure in this regard is clear fromthe population profile of the district which is pre-dominantly youthful with 40% of the populationunder the age of 15 years. In the short term, thedistrict must cater to the nutrition, education andhealth needs of this burgeoning population. Butin the medium and long term, housing andemployment requirements will also add to thepressure on an already constrained local admin-istration. At the same time, the dependency ratiocontinues to rise, along with congestion, povertyand unemployment. Early marriage and high-riskreproductive behaviour in ever-married womencontinue unchecked, further demonstrating theadministrative failure in controlling demographicvariables.

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14Health and Population Welfare

Even with relatively low growth, the populationof the district is expected to double in 45 years.This poses a serious threat to developmentprospects for the future since population density in the district is already high at 446 persons/km2, around twice that of the provinceas a whole. The expected rise in urbanisation,poverty and public health issues will need to beaddressed in an integrated manner.

As with all the sectors discussed in this strategy,issues affecting one sector have a direct impacton a number of other sectors. Similarly,progress in one sector is likely to have far-reaching positive impacts in other areas. Forinstance, research has shown that in urbanareas strong linkages exist between low fertility,post-primary education and formal-sectoremployment. In rural areas, lower fertility islinked more strongly with women’s autonomyand paid employment outside the home. Ineither case, reducing fertility will require a majordeparture from the existing gender imbalance ineducation as well as employment.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Examine density, urbanisation and the pop-ulation growth trends to evolve appropriateinterventions. In this context, the followingindicators will be established, both at abaseline level and at the level of targets tobe achieved over the period covered by thestrategy: population growth, disaggregatedon an urban/rural and male/female basis;household size; infant mortality; crude birthrate; total fertility; maternal mortality andmorbidity; high-risk reproductive behaviouramong ever-married women; mean age atmarriage; population age profile; contracep-tive prevalence; and immunisation.

■ Develop a communications and advocacypackage aimed at behavioural change,since the success of family planning relieson community motivation and response.

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14 Health and Population Welfare

Since family planning requires overcoming age-old biases grounded in tradition, advocacy efforts will need to target men who have greaterdecision-making power in such matters.

This is by its very nature a long-termprocess. In addition to targeting women,advocacy will also address men who oftenhave greater decision-making power in suchmatters. A number of studies and policydocuments address these issues, andinsights from their approach should beincluded in district-level interventions.

MMEEDDIIUUMM TTEERRMM

■ Undertake a cross-sectoral planning exer-cise and formalise a population control planfor the district. The plan should cover mechanisms and processes needed to operationalise and monitor progress on indicators, and will delegate responsibility to line personnel in order to promoteaccountability.

■ Tackle demographic issues and their far-reaching impact on all facets of life byintroducing these topics into the curriculumstarting from the secondary level. Provideteachers with capacity support to enablethem to spread the message.

■ Encourage private-sector involvement, particularly in areas such as advertising andreproductive health training.

■ Liaise with the population welfare depart-ment to make greater inroads in the area ofcontrolling population growth. Since thisinvolves overcoming age-old biasesgrounded in socio-religious tradition, inno-vative approaches will be needed and advo-cacy efforts will have to be made involvingprominent members of the community aswell as religious leaders.

■ Undertake population welfare and reproduc-tive health interventions, particularly data-base development and the establishmentand monitoring of indicators, assigning

responsibility for overall coordination.Strengthen these interventions throughextensive capacity development. The insti-tutional home of this initiative will be locatedin the health department with sub-offices ineach town in the district.

■ Devise multiple-project proposals to attractresources from international donors as wellas the federal and provincial governments.Address funding issues through public-private partnerships.

LLOONNGG TTEERRMM

■ Ensure that annual, ongoing evaluation andmonitoring are incorporated into planning. Inthe long term, this will provide invaluabledata on progress achieved in key areassuch as fertility, marriage age, contraceptiveuse, household size, population growth anddensity trends. This information will be com-pared to baseline figures established in theshort term, and achievements will be meas-ured against targets related to higher-tierplans and international commitments.

■ Progressively increase private-sectorinvolvement in the sector and promotegreater community participation to capitaliseon the outreach capabilities of CBOs.

■ Aim to lower fertility rates by addressing thedeeper issues involved such as gendermainstreaming, women’s empowermentand improved prospects for income genera-tion. These issues will be addressedthrough cross-sectoral inputs from the edu-cation and health authorities, through advo-cacy and by increasing employment oppor-tunities for women.

■ Address resource needs by examining newfunding options, keeping in mind the recom-mendations of the PRSP and donors.

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14Health and Population Welfare

95Abbottabad Strategy for Sustainable Development

and Communications

From the perspective of sustainability, infrastruc-ture development is a double-edged sword.While increasing mobility and serving as a cata-

lyst for economic activity, infrastructure projectswreak havoc on natural resources, and generatenoise and air pollution. Infrastructure developmentdecisions must be taken with the aim of finding a balance between these contradictory tendencies.

The adverse impacts of infrastructure development can to someextent be mitigated with careful planning, vigilant monitoring andaggressive regulation. This in turn requires strict enforcement of landuse planning and zoning laws, as well as the EIA/SEA regime.

In Abbottabad, infrastructure development has been allowed to pro-ceed without recourse to EIAs/SEAs or land use zoning. Regulatoryoversight for the sector is further complicated by the involvement ofseveral players including the National Highway Authority, FrontierHighway Authority, works and services department (replacing thenow-defunct communication and works department), and town munic-ipal administrations (TMAs). Meanwhile, centralised planning andcompartmentalised decision making leave little room for communityinvolvement. This prevents local ownership of the assets created, with

Infrastructure: Roads

the result that communities have no incentive toprotect and maintain such assets.

In this capital-intensive sector, maintenancefunds are constantly required. Infrastructuredevelopment is chronically under-funded, ham-pered by a lengthy approval and funding process,and subject to constant political interference.Private-sector involvement and NGO participa-tion are notably absent, while public-sector actorsand agencies involved in infrastructure develop-ment lack capacity at various levels.

The focus of future projects needs to be exam-ined, keeping in mind the requirements of localcommunities. To address the needs of farmers,significant attention needs to be given to provid-ing easier access to markets. To reduce the con-gestion generated by transit traffic in and aroundAbbottabad town, the Abbottabad bypass pro-posal needs immediate attention.

In terms of improving rural access, a number ofinitiatives have been undertaken to expand theroads network in mountainous areas. In theabsence of formal documentation, however, it isdifficult to realistically appraise the success ofsuch projects. Similarly, the impact of infrastruc-ture development on pollution, health, tourismand biodiversity has never been studied toassess the trade-offs with sustainable develop-ment objectives.

While economic diversification depends on reli-able communications networks, infrastructuredevelopment must be viewed in terms of thetrade-offs between environmental managementand quality of life considerations. Abbottabadmust preserve its natural beauty and biodiversity to attract tourism, which is also akey component of diversification.

By its very nature, this sector requires integrated,cross-sectoral oversight. This administrativeaspect is important because of the challenges itposes in terms of coordination. At the sametime, opportunities are available for revenuegeneration through user charges such as tolls,tourist taxes, pollution charges and transit fees.These options will need to be explored to pro-

vide for operation and maintenance as well as tofund new development.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Ensure that key environmental considera-tions are incorporated into all future infra-structure development plans.

■ Make EIA/SEA inputs compulsory prior tothe construction of roads and communica-tions networks.

■ Ensure compliance with proposed land useand zoning laws so that new projects opti-mise the use of scarce land and avoidunnecessary loss of land, particularly inecologically valuable areas.

■ Quantify the impact of transit traffic in termsof congestion, air pollution, noise pollution,deforestation, biodiversity loss and soil ero-sion. These are social costs that cannot besubsidised by the district. Pursue otheravenues to meet these costs to make up forthe losses.

■ Analyse available financing options for infra-structure development as well as operationand maintenance costs. Given the marginal-isation of operation and maintenancerequirements and poor attention to roadmanagement, there is also a need to explorealternative options such as community initia-tives of the kind that have already beenlaunched by some NGOs in the district.

■ Examine the question of farm-to-marketroads to address the needs of rural resi-dents who require an efficient distributionnetwork for their largely perishable agricul-tural products. Funds should be made avail-able through the district budget, the Tameer-e-Sarhad Programme and federal initia-tives. Efforts should also be made to link thedistrict’s needs with the PRSP recommen-dations, since roads are a key component ofeconomic diversification.

■ Develop the capacity of the works and serv-ices department and TMAs in modern roadconstruction technologies. Encourage a

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15 Infrastructure: Roads and Communications

participatory orientation in the managementof infrastructure.

■ Analyse prospects for greater district controlin the sector and explore opportunitiesoffered by the ongoing devolution process.Seek alternative avenues for revenue gen-eration through user charges such as tolls,tourist taxes, pollution charges and transitfees to provide for operation and mainte-nance as well as to fund new development.Pursue revenues generated through the col-lection of National Highway Authority tolltaxes to achieve financial stability.

■ Establish a coordinative mechanism toensure that road repair and maintenance, orsewerage, water and gas pipeline work is notundertaken in isolation, and that such projectsare executed cost-effectively, creating mini-mum inconvenience to local communities.

■ Evaluate the impact of NGO activity insmall-scale projects, primarily to promote

rural access. Consider adopting theseapproaches in the public sector.

■ Eliminate political interference from theprocesses of project identification, awardingcontracts and implementation. Ensure trans-parency and local-level decision making.

■ Ensure that community participation isincorporated in all phases of future develop-ment work.

MMEEDDIIUUMM TTEERRMM

■ Finalise and operationalise a coordinativemechanism that ensures integrated oversight by the four major players in thesector. Create an institutional entity operating under the aegis of the district gov-ernment, with the necessary statutory cover to carry out cross-sectoral integrationwhile adhering to sustainable developmentobjectives.

97Abbottabad Strategy for Sustainable Development

15Infrastructure: Roads and Communications

Infrastructure development in Abbottabad has been allowed to proceed without recourse to environmental impact assessments or land use zoning.

■ Develop indicators to examine progress inmajor arrears such as enforcement of theEIA/SEA regime, generation of fundsthrough user charges, sharing toll revenues,taxes on transit traffic, pollution control andcoverage of farm-to-market roads. Where itis within the district’s mandate, assignresponsibility for progress on indicators tothe concerned officials in a bid to promoteaccountability and good governance.

■ Prioritise capacity building, with mandatorytraining for contractors as well as for techni-cal and general staff of the concerned gov-ernment departments. Appropriate trainingbecomes all the more important given theadditional demands imposed on actors inthis sector by consid-erations such asEIAs, communitysensitivity, cross-sec-toral coordination,revenue generation,punitive measuresand accountabilitythrough indicators.

■ Pursue private-sec-tor investment andp a r t i c i p a t i o n .Encourage theestablishment of pilotprojects and provide incentives to increaseprivate-sector presence, supplemented withdialogue and administrative backing.Promote public-private partnerships, partic-ularly in operation and maintenance.

■ Assess all future roads development proj-ects from the perspective of their potentialcontribution to sustainable development.This will include considerations such aspoverty alleviation in rural areas, promotingthe livestock industry, catering to tourismneeds, mitigating pollution and congestion,reducing negative environmental impacts,and ensuring that the aesthetic appeal ofthe district is not compromised. In this con-text, construction of the proposedAbbottabad bypass should be given highpriority and advocacy measures must beundertaken to garner the support of theprovincial and national legislatures.

LLOONNGG TTEERRMM

■ Undertake a synthesis of annual progresson indicators. Examine alternative meas-ures in areas where considerable shortfallspersist or where district-level interventionshave been insufficient.

■ Pursue increased revenue generationthrough user charges, along with punitivemeasures to attain a degree of self-suffi-ciency in road construction and upkeep.Examine new alternatives to facilitate rev-enue generation and collection, with theinvolvement of local communities and theprivate sector.

■ Ensure compliance with the EIA/SEAregime and apply stringent punitive meas-ures in cases where the rules are violated.Incorporate community oversight and auditsto optimise progress in this area.

■ Continue capacity building to introducemodern technology and managerial prac-tices in road management and mainte-nance. Develop implementation schedulesto eliminate delays that are currently a matter of routine. Indicators for completiondates and quality can serve as auxiliaryinputs, and will form part of the accountabil-ity exercise conducted to assess the work ofdesignated implementers.

■ Evaluate infrastructural inputs needed tosupport tourism, particularly in the contextof Thandiani. An EIA should help in under-standing the trade-offs involved, and a decision should be taken from the point of

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15 Infrastructure: Roads and Communications

A number of initiatives have beenundertaken to expand the roadsnetwork in mountainous areas. In theabsence of formal documentation,however, it is difficult to realisticallyappraise the success of projects aimedat improving rural access.

view of economic impact and poverty allevi-ation.

■ Strengthen partnerships, and design com-munication and advocacy packages toaddress issues such as road safety, protec-tion of infrastructure assets and the ration-ale for user charges.

■ Operationalise indicators for emissions con-trol, particularly in the case of transit traffic.Impose punitive measures to mitigateextreme variances.

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15Infrastructure: Roads and Communications

101Abbottabad Strategy for Sustainable Development

The availability of potable water is a critical qualityof life indicator with far-reaching impact on anumber of other sectors. The provision of clean

drinking water is an intrinsic part of the implementationmechanisms outlined in the PRSP and NCS-MTR. It isalso one of the Government of Pakistan’s commit-ments under the UN-MDG to “reduce by half the pro-portion of people without sustainable access to safedrinking water” by the year 2015 (UN 2000). In keepingwith these commitments and objectives, the provisionof clean water is a key goal for the district government.

Only 53% of the country’s population has access to safe water: 79%in urban areas and a mere 40% of rural residents (GoP and IUCN1992: 76). For Abbottabad, available records show that coverage ofwater supply schemes is comparatively good, extending to 85% ofrural areas and 90% of the urban population. But coverage figuresprovide no information about the quality of water supplied or the reli-ability of coverage. For a more realistic assessment, it is necessary toconsider factors such water sources and quantities available. Forinstance, just 33% of households in the district receive water from anin-house source. In rural areas, 70% of the distribution network, nowthe responsibility of the works and services department, depends on

Drinking Water

community standposts with a maximum capacityof five gallons per capita per day, falling grosslyshort of actual demand. Supply in urban areas ispatchy and intermittent, ranging from 15 minutesto one hour a day.

Obsolete and inefficient supply systems are ren-dered even less effective when unauthorisedwater connections are taken, upsetting thehydraulic balance so that communities furtherdown the supply line are faced with water pres-sure problems. Added to this is the fact that con-servative estimates put water losses due to mis-use and leakage at 30% in rural areas and asmuch as 50% in urban schemes.

With a burgeoning population and growing pres-sure from seasonal and permanent migration, thecity of Abbottabad confronts acute water short-ages. Although 75 tube wells have been installed,a significant number of these have ceased tofunction because of groundwater depletion.

As with so many sectors, water supply issuesare cross-sectoral by nature. Poor managementin other sectors impacts water quality, so that aconcerted effort will be required to address awide range issues such as waste management,the pollution of river bodies, and the absence ofoversight and civic consciousness, before waterquality issues can be tackled effectively. Forinstance, the absence of adequate sanitationand sewage disposal facilities, a serious prob-lem in and of itself, has also led to dangerouslyhigh levels of drinking water contamination.Untreated waste water is discharged into drink-ing water sources, with no system in place tomonitor the effects on water quality. As such, itis not surprising that the incidence of water-borne disease has not been reduced despitenumerous interventions in the health sector.

In the race to extend coverage, quality consid-erations have received low priority. According toa study conducted by the SUNGI DevelopmentFoundation, with technical input from theNational Institute of Health, both urban and ruraltap water was found to be unfit for human con-sumption, with urban samples categorised ashigh risk (SUNGI 2000). The lack of oversight

and quality control, in favour of greater cover-age, demonstrates the myopia of successiveadministrative bodies and the conflicting agen-das pursued by various players.

Besides the obvious health implications for thedistrict’s residents, water supply and qualityissues also affect the tourist industry. TheGalliyat area faces a serious drinking water sup-ply problem, which in turn deters tourists. Inaddition, considerable resentment and anguishexists among local residents regarding an 1894agreement under which the district is bound tosupply 280,000 g of water daily to Murree. Thiscontentious issue needs to be resolved onceand for all to improve supply to the Galliyat area.

Water supply and sanitation require majorresource inputs which the district is not likely tobe able to provide single-handedly. Even so,potential avenues for resource generation havebeen ignored. The district continues to levy a flatrate for water use while supply from community-based systems is free of charge. In the past, rev-enues collected have covered barely 16% ofmaintenance costs. As a result, the concerneddepartments have faced a massive resourcegap, in some cases as high as 79%, requiringheavy subsidies. Meanwhile, community involve-ment has been negligible, with many local resi-dents reluctant to pay for the maintenance ofschemes handed over to them after completion.

Given the acute resource crunch, all availablefunding sources need to be tapped and fullyutilised. The Khushhal Pakistan Programme hasearmarked 30% of its outlays for water channelremodelling and it is up to the district govern-ment to utilise this grant in an integrated man-ner. Such efforts can receive vital support andassistance from NGOs as well as the privatesector, with contributions in the form of commu-nity mobilisation and technical expertise.

As far as administration is concerned, politicalinterference, centralised planning and cumber-some sanctioning and disbursement proceduresare prevalent here as in so many other sectors.Gaps in the technical capacity of concerned per-sonnel, coupled with lack of awareness about

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16 Drinking Water

efficient use of this scarce resource, only add tothe problems plaguing the sector. On the enforce-ment level, statutory cover provided by theprovincial Water Act 1985, which aims to controlthe illegal use of drinking water, is not enforced.The concerned departments lack the legal andinstitutional capacity to check illegal use.

Despite significant resource allocations sincethe 1980s, aimed at improving piped water sup-ply and providing adequate sewage disposalservices, today Abbottabad’s drinking water dis-tribution system is close to collapse. The contri-bution of past efforts is in any case hard toassess in the absence of reliable data.

Rapid population growth and increasing urbani-sation are expected to magnify problems withboth supply and water quality, particularly withthe mushrooming of unauthorised settlementsthat lack basic amenities. The district govern-

ment will need to undertake a comprehensivesurvey of the existing situation. It must alsoresolve issues of jurisdiction arising out ofdevolution and the subsequent creation of threenew town administrations, since drinking wateris now essentially a municipal function.

Although a number of development projects andNGOs have carried out work in the sector, suchactivities have been characterised by an isola-tionist approach, the lack of coordination andthe absence of community participation.Community participation was addressed in 1995through a unified policy on rural area water sup-ply, but the policy itself was developed withoutinput from local communities, thus negatingtheir ownership of the process.

Water is often taken for granted as a gift ofnature rather than a valuable and scarceresource which must be conserved and used

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16Drinking Water

Obsolete and inefficient supply systems are rendered even less effective when unauthorised water connections are taken, upsetting the hydraulicbalance so that communities further down the supply line are faced with water pressure problems.

wisely. This attitude promotes waste and indif-ference. If water supply issues are to be tackledat the grassroots level, such ideas must change.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Develop indicators that are more meaning-ful than coverage figures to assessprogress in areas such as reasonableaccess to improved water sources.(‘Reasonable access’ is defined as a supplyof at least 20 litres per person per day froma source within 1 km from the user’sdwelling, while ‘improved sources’ includehousehold connections, public standposts,protected springs and rainwater collection.)

■ Eliminate political interference and patronage,and instead ensure that supply schemes areimplementing purely on the basis of needs.This issue is all the more urgent in view of theincreased number of elected representativesholding office at various levels following devo-lution. Support community involvement anddialogue to assess needs.

■ Modify the current system of rural area usercharges, which is based on an obsolete andanachronistic flat rate system that is uneco-nomical and promotes wasteful use.Introduce use-based charges, install metersand devise a multi-tier tariff structure to sub-sidise poorer households.

■ Develop monitoring and enforcement mechanisms for urban areas to check illegaluse, leakage and misuse which account forlosses as high as 50%. Examine alternativeprocesses and systems to be implementedin conjunction with the three town adminis-trations.

■ Improve the planning and execution ofschemes by adopting a cross-sectoralapproach, taking into account factors such aspopulation growth, urbanisation and environ-mental degradation as well as the adverseimpacts of activities in other sectors.

■ Make it mandatory for all new drinking waterschemes to include a sanitation component

and enforce this requirement across the dis-trict. Examine loopholes in the Water Act1985 and provide legislative cover for dis-trict and town control over sanitation, watertreatment and pollution.

■ Make community participation mandatoryfor all new policy initiatives and explore pos-sibilities for private-sector participation.

■ Explore the use of springs and alternativewater sources, and encourage the adoptionof gravity-based systems that are cheaperto operate and maintain.

■ Provide advocacy and communicationsinputs so that issues such as water conser-vation and economical use can be incorpo-rated into the school curriculum at all levels.

MMEEDDIIUUMM TTEERRMM

■ Develop explicit indicators to assessprogress on the government’s UN-MDGcommitment to halve by 2015 the proportionof people without sustainable access to safedrinking water.

■ Introduce fines and other punitive measuresto tackle the pollution of drinking water,dealing severely with persistent violators.

■ Improve sewerage and sanitation facilities,and pursue the construction of water treat-ment plants with funds generated throughuser charges and fines.

■ Implement and strengthen a multi-tier tariffsregime based on the ability to pay, relying oncommunity feedback and cooperation.Abolishing the existing flat rate system isbound to be an explosive issue. A participatoryapproach will need to be adopted and consen-sus will be pursued by increasing publicawareness about the severity of the problem.

■ Link land use planning and zoning to watersupply issues by ensuring that the proposedlegislation contains provisions requiringbasic amenities including water, sanitationand waste disposal to be provided in allschemes. By addressing sewerage andsanitation concerns as part of this linkage,the quality of existing water supply will beaddressed as well.

■ Use the experience of NGOs working in thesector to develop replicable approaches,

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16 Drinking Water

particularly in relation to community sharingof operation and maintenance expenses.

■ Include drinking water issues in the schoolcurriculum at all levels. Seek parental par-ticipation and make sure that adult literacycentres and informal institutions are includ-ed in this awareness-raising effort.

■ Continue with communications, advocacyand awareness raising, and explore newalternatives to break through the barrier ofpublic indifference. The involvement of theulema, elected representatives and opinionleaders can be a valuable tool in this regard,along with CBOs.

■ Strengthen capacity building and develop-ment efforts so that all actors are equippedto handle the technical aspects relating toschemes, as well as a whole range of newideas and approaches that will be intro-duced as part of the ASSD framework,including corporate-oriented management,the formulation of indicators, establishingindicator-related targets, revenue collection,participatory approaches, and communityinvolvement in project identification andmanagement. Attitudinal changes will beinculcated in line personnel unaccustomedto a cross-sectoral, participatory approach.

LLOONNGG TTEERRMM

■ Gauge progress on the development of indi-cators, and assess their relevance and effi-cacy.

■ Examine trends in revenue generation topursue new options that might becomeavailable. With the consolidation of devolu-tion, it is possible that local charges will no longer be fiercely resisted since theirpositive trickle-down effects will have contributed to gradual improvements in living conductions. In addition to internally-generated funds, Annual DevelopmentProgramme allocations, donors and projectsupport will be tapped.

■ Align investment in water supply with poverty alleviation initiatives to make fulluse of the synergies that exist betweenpoverty reduction, nutrition and disease prevention programmes.

■ Explore alternative technologies such asjack pumps and solar pumps to minimisethe use of electricity. Extend electricity supply to schemes where no other source ofpower can be utilised cost-effectively.

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107Abbottabad Strategy for Sustainable Development

The concept of ecotourism is based on the ideaof promoting nature-based activities with mini-mal negative social and environmental impacts.

Particularly in areas of outstanding natural beauty,ecotourism can serve as a crucial component of thelocal economy. By creating employment as well asother avenues for income generation, ecotourismdirectly addresses poverty alleviation while also pro-viding other benefits for local communities.Conservation efforts aimed at promoting ecotourism,for instance, will serve as well to promote the long-term interests of the area and its residents. Similarly,roads and communications infrastructure developedto boost the travel industry will also facilitate trade,commerce and labour mobility. If undertaken with aneye to promoting and developing the district’s naturalresources, ecotourism can have a positive impact ona host of other areas.

Despite the area’s natural beauty, tourism has not flourished in the dis-trict. Going by hotel occupancy figures for Abbottabad and Nathiagali,

Ecotourism

the number of visitors to the district fell 60%between 1991 and 1999. Instead, Abbottabadhas emerged as a point of transit, with the num-ber of day visitors to the district estimated at1,000–8,000 during the peak June–August period. No worthwhile economic benefits accrueto Abbottabad as a result of this influx, whichonly adds to traffic, pollution and congestion.

Administration of the tourism sector is in ashambles. The Pakistan Tourism DevelopmentCorporation (PTDC), Sarhad TourismCorporation (STC) and GDA are all involved insome degree of tourism development. In theabsence of even rudimentary coordinationbetween these players, and the lack of laws,policies or plans pertaining to tourism, no mean-ingful interventions have been made to developor promote Abbottabad’s tourist sector. Previousadministrative arrangements did not fare muchbetter. The activities of the now-defunct HazaraHill Tract Improvement Trust, charged withdeveloping abandoned cantonments as touristdestinations, were erratic and short-sighted. Itsonly noteworthy contribution was an ambitiousplan to build a ski resort in Ayubia. The schemeeventually faltered and the project was aban-doned after the construction of a chairlift. Itssuccessor, the GDA, is mired in an administra-tive morass that makes it a poor catalyst forimprovements in the sector.

In the absence of effective oversight, supportactivities for the sector are restricted to the indis-criminate construction of down-market hotels withpoor service, inadequate facilities and abysmalhygiene. This is compounded by an erratic andunreliable local transport system that operateswithout regulation.

Few efforts have been made to develop the eco-tourism potential of the area and promote placesof tourist interest. While the Ayubia NationalPark has the potential to attract nature lovers,nothing has been done to build on this appeal toattract hikers, trekkers and bird watchers. TheAyubia facility has not been upgraded to a full-scale ski resort, which would have resulted inthe critical shift from summer tourism to year-round activity.

As far as employment in the tourist industry isconcerned, local residents are engaged inunskilled work with the better-paying jobs going tooutsiders. This drastically reduces the trickle-down economic benefits accruing from tourism,making only a nominal impact on poverty allevia-tion in the district. Revenues generated by tourismare not retained since essential commodities andsupplies need to be imported. No attention hasbeen directed towards generating additional rev-enue through indigenous products and handi-crafts. Greater employment of local residents inthe tourist industry, community participation, skillstraining and capacity building need to beaddressed as part of a pro-poor tourism concept.

Area-specific problems need to be tackled aswell, including the acute water shortages thatpersist in Abbottabad town and Nathiagali. Moregenerally, attention must also be paid to thedegradation of the district’s environment, poorwaste management, unplanned constructionand increasing pollution, as part of the effort topromote tourism. Tourist-friendly practicesshould be encouraged and specific measuresrelated to the tourist trade will be required.These include regulating the quality and pricingof facilities, providing better information to travellers and developing an integrated touristpolicy for the area.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Undertake a widespread, participatory ana-lytic exercise to formulate a rudimentaryintegrated plan for the district in whichtourism, ecotourism and pro-poor tourismoccupy a pivotal role. With the involvementof stakeholders and local communities, thisexercise will begin with the collection of datain a number of areas:❑ current tourist activity including the

number of visitors, disaggregated bylocation; the duration of their stay; pre-ferred accommodation; and trends overthe last five years;

108 Abbottabad Strategy for Sustainable Development

17 Ecotourism

❑ quantity, quality and type of accommo-dation available, disaggregated by loca-tion; occupancy ratios; and trends overthe last five years;

❑ approximate economic benefits accru-ing to the district;

❑ cost, quality and impact of varioustourist services currently available,based on comparative figures and theactual level of tourist activity;

❑ ‘strengths, weaknesses, opportunities,threats’ (SWOT) analysis of existingtourist facilities, aimed at uncoveringgaps that can be addressed in the nextstage of planning. This aspect of theexercise should cover individual touristspots, including Abbottabad town,Ayubia, Dongagali, Nathiagali andThandiani, and should also addresstourist-related needs such as pricing,services, accessibility, information,

safety, quality, hospitality and recre-ational activities; and

❑ SWOT exercise for major players in thefield including the PTDC, STC, canton-ment boards, TMAs and GDA, as wellas smaller players such as hoteliers andtransporters.

■ Critically examine haphazard constructionand development work undertaken in thename of promoting tourism. Bring these activ-ities under the statutory cover of land useplanning and zoning legislation.

■ Examine options to develop year-roundtourism in Abbottabad to ensure the long-term vitality of the sector. Building year-round facilities centred on a ski resort atAyubia should be a priority. Expanding andenlarging the chairlift facility also needs tobe evaluated, along with the provision ofaccommodation and related facilities toattract tourists and improve retention.

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While the Ayubia National Park has the potential to attract ecotourism, little has been done to build on this appeal by providing facilities for hikers, trekkers and birdwatchers.

■ Launch ecotourism activities with initialinputs geared towards the Ayubia NationalPark. Examine the incremental extension ofsuch activities to the Birangali, Chhatri andPhalkot reserve forests. Provide hiking andwalking tracks, camping grounds, benchesand toilets, as well as travel maps, touristguides, and information on the flora andfauna of the area.

■ Develop a comprehensive marketing pack-age to sell the district as a unique traveldestination. To turn tourism into an industryfirmly grounded in modern business prac-tices, the concerned agencies must rely onpromotional inputs on the lines of corporateproduct advertising to create regional,national and international interest inAbbottabad. Given the popularity of areassuch as Gilgit, the Kaghan valley, Murreeand Swat, visitors will have to be enticedaway from these destinations by the prom-ise of something better.

MMEEDDIIUUMM TTEERRMM

■ Undertake participatory interventions topopularise ecotourism and make it a vibrantindustry. Strengthen the information base;extend camping facilities; improve security;develop adventure trekking routes; providesouvenirs, maps and rest areas; and train acadre of guides and guards recruited fromlocal communities. Additional inputs shouldinclude guided tours, slide shows, displaysof indigenous flora and fauna, and specialtourist packages.

■ Create a custodial body to oversee the sec-tor. This body will evolve processes, mech-anisms and systems to implement and mon-itor the numerous interventions necessaryto take tourism out of its current moribundstate. This will be a cross-sectoral entity,since waste management, drinking water,security, information and accommodation,to name but a few of the necessary inputs,require efforts to be made in a number ofsectors. The success of this venture willalso depend on forging dynamic partner-ships with all stakeholders, particularly hotelowners, transporters, traders, local commu-

nities, NGOs and line departments.Legislative cover must be extended to suchan entity, enabling it to effectively monitorand control fares, pricing, service quality,accommodation and community involve-ment, and to ensure that the benefits accru-ing from tourism are shared equitably.

■ Explore strong punitive measures to put anend to encroachment, unauthorised con-struction and other activities that causedamage to natural capital.

■ Build the capacity of local residents, in linewith the pro-poor focus of sustainabletourism, so that they are able to gain higher-paid skilled employment in the sector. Thisinitiative will cover all tourist industry workers and stakeholders including touroperators, hotel owners, service personnel,transporters, traders and local communities.

■ Establish baseline indicators to assess theperformance of critical components such asservice quality, pricing, and hygiene.Develop codes of conduct for industry per-sonnel, covering matters such as salestechniques and hospitality.

■ Work to make tourism a year-round activityby exploring the possibility of developing aski resort at Ayubia. Options include invitingprivate-sector investment and seekingdonor support. Expand the existing chairliftfacility and find ways to extend the touristseason.

■ Launch ecotourism activities along with acomprehensive advocacy and promotionalpackage targeting a diverse audience. Themove from traditional commercial tourism tonature-based outdoor activities requiresbehavioural and perceptual changes whichare possible only in the long run throughsustained awareness efforts and consistentpositive reinforcement. The involvement ofthe private sector will be evaluated forinputs in this area.

■ Develop facilities at Thandiani to capitaliseon its tremendous potential. This effort mustinclude environmental concerns as well asthe needs of local communities, but trade-offs will also be necessary.

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LLOONNGG TTEERRMM

■ Evaluate the progress of key initiativeslaunched in the short and medium term,including:❑ database development and information

dissemination, particularly related totourist numbers, destinations and trends;

❑ community/public-sector partnershipsand trends in revenue sharing with localcommunities;

❑ the creation of an institutional home orcustodial entity to oversee tourismdevelopment and provide an integrativemechanism for various interventions;

❑ private-sector participation and incen-tives to increase its presence, includinginvestment in tourist facilities and anassessment of the public sector’sadherence to indicators and standards;

❑ cross-sectoral interventions to mitigatethe adverse impacts of waste, pollutionand noise;

❑ compliance with land use and zoninglaws, security, and the provision ofbasic amenities;

❑ marketing and promotion aimed at sell-ing the district as a unique tourist haven;

❑ capacity building, particularly for per-sonnel directly involved in tourist-relat-ed activities and principal stakeholderssuch as the PTDC, STC, line depart-ments and hoteliers.

■ Focus greater attention on turning tourisminto a year-round activity. With the movefrom patchy tourist activities to increasinglyprofessional operations, promoting growthof the sector through retention and repeatvisitors will require the provision of addition-al incentives and facilities.

■ Formalise interventions to enhance eco-tourism, possibly with the involvement ofdonors or private-sector actors. Such inter-ventions will include building a ski resort,expanding the chairlift facility, extendingprotected areas and designating new protected areas.

■ Upgrade facilities at Thandiani and providea greater number of recreational opportuni-ties at tourist hot-spots to maintain viabilityin what is expected to become an increas-ingly competitive market.

■ Quantify the economic benefits accruing tothe district and assess the filter-downeffects to the grassroots level. This willinvolve a closer examination of (i) povertyalleviation and employment indicators, and(ii) return on investment to private sectorentities, local communities and principalstakeholders.

■ As tourism assumes the form of an industry,increasing resource needs will need to bemet by improving governance and ensuringthe economic viability of interventions.Private-sector support will also be necessary.

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113Abbottabad Strategy for Sustainable Development

Development

An explicit recognition of the nexus betweenpoverty and conservation lies at the heart ofthe sustainable development concept.

Microenterprise plays an important role in this para-digm because of its potential to alleviate poverty andupgrade human capital.

In the context of Abbottabad, enterprise development is particularlyimportant since few alternatives exist to increase employment andgenerate income. With no manufacturing or other industry to speak of,the prevalence of subsistence-level agriculture, and the lack of tech-nical and vocational facilities, the district suffers from widespreadpoverty. Other demographic trends, such as population growth, urban-isation and the youthful age profile of the population, point to the factthat poverty alleviation is likely to be an even more serious concern inthe years to come.

In the absence of integrated long-term planning, government inter-ventions undertaken to promote microenterprise have proved to be adismal failure. NGOs, projects and the private sector have not hadmuch success in this area. The Export Promotion Bureau has madenominal headway in promoting exports, while projects and NGOshave undertaken interventions to promote credit extension.

Enterprise

Nevertheless, employment opportunities havenot grown significantly. The BADP, workingthrough the SRSP, created a network of CBOsand provided credit to small enterprises. But thiseffort was overstretched, and marred by poorfollow-up and the unproductive use of borrowedfunds.

Access to credit is critical for the rural poor andcredit availability has in recent years improvedto some extent, largely through the interventionof NGOs. Financial institutions too have becomemore amenable to the idea of microfinance butcapacity to optimally utilise credit is still lackingamong many communities. At the same time,credit facilities have for the most part focused onmore traditional activities such as livestock rear-ing, commercial establishments (mainly shopsand public call offices) and agriculture. No efforthas been made to identify innovative projects.With high interest rates, poor returns and afocus on already saturated sectors, microcreditextension has been unable to make a significantimpact on poverty alleviation.

Tradition crafts and products, particularly thosemade by women, have not received sufficientattention. Even where funds have been avail-able, as in the case of the Khushhal PakistanProgramme which earmarked 10% of its alloca-tion for gender development, this money couldnot be properly utilised. As with many other sec-tors, the sidelining of women in microenterpriseinitiatives has proved detrimental to the sectoras a whole.

The absence of systematic marketing support isan added impediment to microenterprise, alongwith poor technical skills and inadequate sup-port in promoting value-added products.Development activities in the sector have beenhampered by a number of additional factorsincluding the lack of coordination between con-cerned players and the absence of a clarity ofpurpose. Private-sector involvement has notbeen sought, nor have NGOs and projects beenapproached for guidance. Given the apathy ofthe concerned departments, it is perhaps notsurprising that community involvement inmicroenterprise has also been lacklustre.

INTERVENTIONS AND INITIATIVES

SSHHOORRTT TTEERRMM

■ Improve statistics on unemployment, poverty, the formal and informal sector,existing avenues of employment and theextent to which they are being exploited.Collect authentic and comprehensive dataon women’s employment, examining cate-gories such as formal employment, unpaidwork, domestic help, and participation in theinformal economy. Assess employmentopportunities available to women.

■ Examine current efforts and initiatives thatdirectly or indirectly address poverty allevia-tion through microenterprise developmentand access to credit.

■ Establish indicators for credit extension,credit utilisation, the proportion of financialinstitutions’ portfolios devoted to microcredit,capacity identification and development,cross-sectoral coordination and oversight,accountability and transparency, and systems and process as well as baselinepoverty indicators disaggregated formale/female and rural/urban areas.

■ Interact with financial institutions to changetheir policy towards microenterprise, and toinfluence their decision making in areassuch as interest rates, credit extension pro-cedures and disbursement.

■ Examine the capacity shortfalls of stakehold-ers as well as credit providers in cases wherecredit and opportunities do exist. This effortwill cover loan acquisition, investment choic-es, managerial inputs, marketing, pricing andquality. Inputs from NGOs already active inthe field will be sought to facilitate planning.

■ Create a master plan for microenterprisedevelopment. This exercise will requireinputs from the entire spectrum of stake-holders and players, and will start by buildingon human and natural capital. Enterprisesrevolving around floriculture, off-season veg-etables, dairy production, poultry, woodworkand handicrafts should be promoted alongwith innovative ventures. Issues such as

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18 Enterprise Development

institutional support, oversight and capacitybuilding must also be addressed.

■ Upgrade and modernise technical and voca-tional institutions to increase opportunitiesfor individuals seeking to set up businesses.

MMEEDDIIUUMM TTEERRMM

■ Establish coordination between projects,programmes and donors working in thefield. The direct involvement of key playerssuch as financial institutions and NGOs willbe critical.

■ Design and implement a multi-prongedcapacity-building effort, ranging from basicknowledge and skills to marketing and pro-motion, in order to maximise returns oninvestment.

■ Identify indigenous activities that are likelyto benefit from microenterprise develop-ment interventions, such as bee keeping,fish farming, floriculture, off-season veg-etable cultivation, traditional handicrafts andagricultural production.

■ Develop the capacity of the district’s humanresources. This is especially important for

women and for the residents of ruralareas where income from subsis-tence farming cannot keep pace withinflation, growing needs and increas-ing household size.■ Examine prospects for promot-ing microenterprise as well as smalland medium enterprise, working inclose liaison with the SmallIndustries Development Board,Small and Medium EnterpriseDevelopment Authority, KhushhaliBank, Export Promotion Bureau andprivate sector.

LLOONNGG TTEERRMM

■ Review the efficacy of the sys-tems, processes and mechanismsestablished for integrated planning,especially in relation to cross-

sectoral cooperation. Provide managerialand technical inputs where gaps persist.

■ Create an institutional home for microenter-prise development activities, with specialemphasis on bringing about a reorientationin thinking.

■ Induct female personnel in the extensioncomponents of various departments, suchas livestock and agriculture, so that womenare able to benefit freely from these services. Provide legislative cover for thismeasure, perhaps by operationalising theemployment quota commitments of theprovincial government.

■ Pursue resources to strengthen microenter-prise development by seeking donor inter-vention and support from projects, and byimproving the utilisation of existing outlays.Financial institutions will be pursued tomake interest rates more competitive, andto extend support in project identificationand credit utilisation.

■ Encourage private-sector entry into the fieldby providing incentives and creating afavourable investment climate.

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Small enterprise development is particularly important in a district such as Abbottabadwhere few alternatives exist to increase employment and generate income.

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Traditional cultural norms, particularly the influ-ence of tribal affiliations, continue to governmany facets of life in the district. The positive

aspects of these traditions should be harnessed topromote sustainable development. Cultural heritageand local arts and crafts, for instance, can serve topromote tourism. While the advent of the informationage is bound to transform cultural values, efforts willbe undertaken to preserve those traditions that com-pliment the sustainable development agenda of thedistrict.

Culture

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Women have a crucial role to play in virtuallyevery sector of the economy. Mainstreamingtheir contribution to society is therefore

essential. Education, capacity building and incomegeneration opportunities will accelerate the pace ofgender mainstreaming, coupled with specifically tar-geted measures such as the strict enforcement ofwomen’s quotas in government jobs.

The concept of gender is often taken to mean biological difference, amisconception that clouds the actual issues at stake. In fact, the termgender refers to social differences created by the influence of upbring-ing, conditioning, and socio-cultural norms and expectations. Once thisidea is understood, gender issues no longer appear marginal to thewider concerns of society as a whole. One of the aims of sustainabledevelopment interventions must be to influence socially constructed dif-ferences and introduce equity in all aspects of female life. This involvesmainstreaming women’s role in society and enhancing their potential tocontribute to development.

Gender concerns must be addressed as part and parcel of the issuesconfronting other sectors. Economic development and prosperity can-not be achieved if half the population is underprivileged and margin-alised. Gender-sensitive initiatives are therefore crucial to economic

Gender

progress. For instance, access to microcredit isessential if women are to attain some degree offinancial autonomy. Here, current regulationsrequiring male guarantors for loans severelyrestrict women’s economic opportunities.

Similarly, women are key players in naturalresource management activities, particularlyfuel wood collection, livestock rearing, dairy pro-duction and backyard poultry operations. Yetsocial norms prevent them from acquiringcapacity development inputs, such as up-to-date information to improve production, sinceagricultural and livestock extension services areprovided exclusively by men.

Women’s participation in economic life is furtherrestricted by social attitudes towards femaleeducation. Participation at all levels is loweramong females, partly owing to the inconvenientlocation of schools. But social perceptions alsoplay an important part in keeping girls out ofschool or preventing them from pursuing highereducation. When the role of women is perceivedto be confined to marriage, domestic work andchild-rearing, skills acquisition and educationare considered superfluous.This is borne out by the factthat between primary schooland higher levels, the con-traction in female enrolmentis as high as 46%. Theshortage of intermediateschools in rural areas andunequal access to degreecolleges restricts women’sparticipation in higher edu-cation, which in turn limitstheir employment prospects.

Women’s role in povertyalleviation is still notacknowledged or fullyunderstood. As such, theyare at a significant disadvan-tage in terms of employ-ment. Arriving at an accurateassessment of the situationis complicated by the 1998census, where the participa-

tion rate excludes domestic workers while unem-ployment figures includes this category of work.

Environmental health and natural resource con-servation is another area where the role ofwomen has been sidelined. Developing effec-tive management strategies requires a solidunderstanding of women’s relationship to natu-ral resources as well as their rights and role inresource planning and management. Women’sperspective on environmental matters must beincorporated into planning, along with an under-standing of the gender-specific impacts of envi-ronmental degradation and unsustainable use.

Following the Fourth World Conference onWomen (1995) in Beijing, both the federal andprovincial governments committed to providingfixed quotas for women’s employment in thepublic sector. Despite the establishment of threemajor commissions and the promulgation of theNational Commission on the Status of WomenOrdinance 2000—moves aimed at increasingthe number of women in the judiciary and rais-ing to 25% their presence in all public, semi-autonomous and government institutions—the

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Developing effective management strategies requires a solid understanding of women»s relationship to natural resources.

impact of these gestures remains to be felt onthe ground (ADB 2002).

Under the United Nations Convention on theElimination of All Forms of Discrimination againstWomen (1979), the federal government commit-ted to a 5% quota for women in governmentservice, which the NWFP government reducedto 2%. Nothing was done to achieve even theselow targets, and women continue to be under-represented in law enforcement, the judiciaryand extension services. Under the devolution oflocal government, reserved seats have beencreated for women in all levels of government.But with the traditional dominance of men in thepolitical arena and social mores that restrict theparticipation of underprivileged women in politi-cal activity, even this move has amounted to lit-tle more than a cosmetic measure.

So severe is the administrative myopia regard-ing gender issues that the Khushhal PakistanProgramme allocation for gender developmentcreated a dilemma for district administratorswho could not find ways to utilise these fundsbeyond the establishment of a few handicraftcentres.

Clearly, gender issues are poorly understoodand rarely given serious attention. Efforts in thisarea have for the most part been restricted toerratic and cavalier announcements aimed atgaining political capital or rousing popular senti-ment, followed by nothing in the way of imple-mentation. Women’s contribution to the eco-nomic life of the district is stifled by patriarchalviews, traditional norms and social prejudice.Even in Abbottabad, which is thought to be a rel-atively enlightened district, women are placed ina subordinate role.

The WSSD draft declaration makes a commit-ment to:

promote women’s equal access to, andfull participation, on the basis of equalitywith men, in decision making at all levels,mainstreaming gender perspectives in allpolicies and strategies, eliminating allforms of violence and discriminationagainst women, and improving the status,

health and economic welfare of womenand girls through full and equal access toeconomic opportunity, land, credit, educa-tion and health care services (UN 2002).

The ASSD endorses this commitment, with theunderstanding that sustainable developmentcannot be achieved while half the population isexcluded from active involvement in economicaland public life. The critical importance of empow-ering women through increased self-reliance andeconomic independence cannot be over-empha-sised. It is incumbent on the district governmentto promote the economic participation of womenand create avenues for employment.

Social equity is fundamentally linked to genderequity. No society can thrive unless all its mem-bers are allowed to live in dignity. Prejudice anddiscrimination against any social group, whetheron the grounds of faith, political opinion, socio-economic status or sexual orientation, are clearindicators of social inequity. As part of the larg-er, complex fabric of society, gender issues canbe meaningfully addressed only after attitudinaland cultural inhibitions are addressed. Theprocess will require patience and persistence.

INTERVENTIONS AND INITIATIVESSSHHOORRTT TTEERRMM

■ Begin by directly addressing those issuesthat are amenable to improvement withinthe existing non-supportive, socio-culturalmilieu.

■ Address gender issues in the spirit of theWSSD draft declaration.

■ Take advantage of funds available throughfederal and provincial development pro-grammes, and international donors to pro-mote microenterprise activities amongwomen. This effort will not be confined tocosmetic interventions or to run-off-the-millsolutions, such as setting up sewing centres,but will seek innovative, long-term, sustain-able ventures. Agro-based enterprise,kitchen gardening, off-season vegetable cul-

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tivation, poultry, livestock and orchards aresome sectors that can be explored.

■ Improve population welfare activitiesthrough integrated inputs involving health,education and population welfare workers tochange negative perceptions about familyplanning. Men will be the target audience,particularly in rural areas, since the successof reproductive health interventionsdepends on changing their obsolete cogni-tive paradigms. In this context, advocacyand communication to promote smaller fam-ilies and overcome religious and socio-cul-tural barriers to birth control will be analysedand tentatively developed in a broad-based,participatory process that involves all stake-holders.

■ Establish performance indicators, promoteservice delivery mechanisms and evaluate

the entire spectrum of possible alternatives,including NGOs, CBOs, the health depart-ment, lady health visitors, the private sector,projects and donors.

■ Promote the economic participation ofwomen and create opportunities for greaterincome generation.

■ Provide institutional inputs and design inter-ventions to facilitate credit acquisition,improve mobility, and provide access tomodern skills and techniques in livestock,dairy, floriculture, poultry and bee keeping.Use the NGO platform of village organisa-tions and CBOs as a springboard to dissem-inate information and skills related to loanutilisation, credit, savings and expenditure.Provide distribution, storage and marketingsupport.

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As primary users of resources such as fuel wood, women play an important part in popularising the use of cleaner and more energy-efficienttechnologies, including solar cookers.

■ Examine the option of establishing a coordinative, institutional home for gender-specific interventions. The 33% presence ofwomen in local councils should be used tolobby for this measure.

■ Establish oversight, monitoring and evalua-tion mechanisms to ensure continuity ingender interventions.

MMEEDDIIUUMM TTEERRMM

■ Ensure progress in enrolment at all levels ofeducation by providing the necessary facili-ties, as outlined in the vision for the educa-tion sector. Develop indicators to allow foraccurate assessment and the introductionof remedial measures, as well as to estab-lish accountability.

■ Promote capacity building, particularly inrelation to credit utilisation, to developmicroenterprise run by women. Establishindicators for credit access, technical andmanagerial assistance, and the setting up ofmicroenterprise.

■ Examine and consolidate advocacy inputsand find innovative ways to target maleaudiences in order to address behaviouraland attitudinal changes that stand in theway of gender mainstreaming.

■ Promote greater female employment in thepublic sector to allow women to participatein decision-making and policy development.Progress on implementation of the 2%women’s quota should be assessed, and itsapplication to overall employment in gov-ernment organisations, rather than to newrecruitment alone, must be sought.Legislative cover and statutory support willbe needed to ensure implementation andcontinuity.

■ Review progress on technical and vocation-al skills for women, and examine loopholesin institutional support to improve perform-ance.

■ Pursue broad-based partnerships with NGOs,CBOs, village organisations, projects, finan-cial institutions, women’s representativesand the private sector to ensure continuity inefforts to promote gender equity. These part-nerships should be used as platforms toaddress gender issues ranging from health,nutrition, education and fertility to employ-ment and capacity development.

LLOONNGG TTEERRMM

■ Undertake a comprehensive audit ofprogress in areas critical to gender issues,and assess results achieved in the contextof the UN-MDG, and in terms of povertyalleviation and population welfare.Individual indicators will be criticallyanalysed and significant shortfalls will beaddressed through specifically targetedinterventions.

■ Examine progress in economic interven-tions and microenterprise developmentefforts, and assess their impact on the economic empowerment of women to iden-tify key areas that require further attention.

■ Expand advocacy and communicationsinputs to change behaviours and attitudesthat are a barrier to gender mainstreaming.The target audience will continue to be men,and the support of community and religiousleaders is vital.

■ Examine the option of increasing women’squotas in public-sector employment.Explore the possibility of adopting both thefederal government’s commitment of 25%representation for women in all public-sector organisations as well as its 5% quotacommitment under the Convention on theElimination of all forms of DiscriminationAgainst Women. Eventually, 30% of allemployees in public-sector organisationsshould be women.

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Towards SustainableDevelopment

PART V

127Abbottabad Strategy for Sustainable Development

Development Priorities

Many of the inputs necessary for sustainabledevelopment to take root are complex, exten-sive and time-consuming, requiring major

changes in the macro-structural environment of thedistrict as well as the attitudes of its people. Some ofthese measures have already been addressed in thesector-specific strategic initiatives proposed in previ-ous chapters. A crucial first step towards implementa-tion is to understand the deeper issues at stake.

Abbottabad’s economy depends overwhelmingly on subsistence agri-culture, with activity in livestock and poultry patchy at best. The pub-lic sector is the district’s major employer, with variations in income wit-nessed as a result of small-scale seasonal tourism. From the stand-point of sustainability and long-term viability, this state of affairs is nottenable for a number of interrelated reasons.

To begin with, the district’s agriculture sector is close to saturation.With irrigation made increasing difficult owing to persistent watershortages, no significant gains in productivity can be achieved. Norcan this situation be radically transformed. Some gains are possiblethrough the application of improved farming techniques but choices

Sustainable

and prospects are limited, particularly in theshort term. Establishing even rudimentary irriga-tion networks is a capital-intensive undertaking.Add to this the fact that the majority of landhold-ings is small, and goals such as increasingyields or bringing more land under cultivationbegin to lose their appeal.

While the livestock and poultry sectors are anintegral part of the local economy, activity hereis sporadic. Growth is hampered by chronic fod-der and feed shortages as well as the absenceof proper markets and extension support servic-es. As a result, the livestock and poultry indus-tries are not sufficiently developed to constitutea significant component of the economy.

Income-generation opportunities are few and farbetween, while employment prospects in boththe public and private sectors are limited. In theabsence of large-scale manufacturing, com-merce and trade, it is unrealistic to expect a rad-ical metamorphosis of the employment land-scape in the foreseeable future.

Tourism has not been developed to fill the gap inemployment and income generation. Attemptsto promote the tourist industry have been errat-ic and half-hearted, perhaps because the sectorhas not traditionally been viewed as a means topromote development.

The people rely heavily on forest resources tomeet immediate needs but this dependence isnot sustainable. Forests have suffered heavilyas a result of indiscriminate use and today standdangerously depleted.

DIVERSIFYING THE ECONOMYAbbottabad’s future prospects for sustainabledevelopment depend on diversifying economicactivity and improving institutional efficacy. Keystakeholders, the administrative machinery,public representatives, NGOs and civil societyat large must be involved in this process. A num-ber of areas will need to be targeted simultane-ously, if diversification is to be achieved.

AAGGRRIICCUULLTTUURREE

Given the district’s overwhelming dependenceon subsistence agriculture, inputs such as seed,fertiliser and crop rotation techniques will needto be improved to optimise output within existingconstraints. In addition, sericulture, floricultureand off-season vegetable production must beevaluated for further development, along withthe cultivation of high-value crops such as cher-ries and tea. More efficient use of existingresources will be required.

RRAANNGGEELLAANNDDSS

Critical natural resource management playerssuch as the agriculture, forest and livestockauthorities will need to coordinate their efforts.This coordination is vital for the development ofsectors such as rangelands and livestock, vari-ous aspects of which fall under the administrativeambit of all three departments. The problem hereis that the forest department, which is technicallyresponsible for rangeland management, hasfocused its efforts on timber, largely throughpolicing and afforestation. Similarly the agricul-ture department, responsible for fodder, is prima-rily concerned with increasing cereal crop pro-duction and bringing land under cultivation. Evenwatershed projects implemented in the districthave ignored rangeland development, insteadfavouring afforestation and agriculture. Specificattention and support for rangelands, as part ofan effort to boost the livestock industry, is a viableobjective and needs immediate attention.

PPOOUULLTTRRYY

This is another sector that should be targetedfor development, particularly since extensiveactivities in poultry rearing are already beingundertaken, although without the benefit of long-term integrated planning.

FFIISSHHEERRIIEESS

The district provides ideal conditions for thedevelopment of fisheries. The area’s aquaticresources could be developed as an industry,albeit on a relatively small scale. Prospects for

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trout farming should be explored, and technicaland research support should be extended toconcerned stakeholders and departments.

MMIICCRROOEENNTTEERRPPRRIISSEE

Given the current climate where microenterprisedevelopment through credit extension hasbecome increasingly popular, the district shouldexplore ways in which this orientation can bechannelled to support small businesses.Building on local handicraft manufacture, andproviding support to livestock, poultry, horticul-ture and floriculture activities, can be vital com-ponents of such an intervention.

TTEECCHHNNIICCAALL AANNDD VVOOCCAATTIIOONNAALL TTRRAAIINNIINNGG

Credit will not serve to alleviate poverty if bor-rowers lack the capacity to utilise loans effec-

tively. Similarly, enterprise development will failto bring about significant change in the socio-economic climate if new jobs are created butworkers lack the skills to avail of these employ-ment opportunities. For this reason, it is criticalto provide up-to-date technical and vocationalskills training that is relevant to local conditionsand market needs.

EECCOOTTOOUURRIISSMM

The rudimentary inputs made in the tourism sec-tor are for the most part restricted to the indis-criminate construction of low-quality hotels andthe auctioning of plots for commercial develop-ment. The true benefits that could accrue fromecotourism have yet to be explored. Tourist num-bers have steadily fallen over the years andAbbottabad now sees a substantial number ofday visitors who are based in Murree. The districtserves as a transit point for tourists travelling tothe Kaghan valley and the Northern Areas, rather

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Enterprise development will fail to bring about significant change in the economic landscape of the district if new jobs are created but workers lack the skills to avail of these employment opportunities.

than being a tourist destination in its own right.Whatever little tourist attention it does receive isseasonal and this trend needs to be reversed.

MMIINNIINNGG

The area is rich in mineral reserves which shouldbe developed systematically with particular focuson magnesite, phosphate and soapstonedeposits that have not received sufficient atten-tion. Mining-related industries such as manufac-turing and processing plants should be estab-lished locally so that the benefits of value addi-tion accrue to the district. At the same time, theEIA/SEA regime will need to be strictly enforcedand a regulatory mechanism developed to min-imise potential damage to the environment.Acceptable trade-offs will need to be consideredso that mining can be developed with minimaladverse impact on the surrounding area.

IINNDDUUSSTTRRYY AANNDD VVAALLUUEE AADDDDIITTIIOONN

It is not just in the case of mining that value-addition activities must be pursued. A number ofindustries based on such indigenous resourcesas wood, minerals and livestock products canbe developed to help diversify the economy.Furniture making, woodwork, handicrafts andcottage industry, maize products, and dairy pro-duction are all economically viable operations.

STANDARD OF LIVING

In addition to poverty alleviation and sustainabledevelopment, issues related to the standard ofliving must also be taken into consideration. Anintegrated analysis will be required before thetopic can be tackled effectively.

EEDDUUCCAATTIIOONN

A fundamental indicator of social development,education enhances individual social status andboosts the economic prospects of the population.Improvements are needed here with regard toquality, access, relevance and continuity. Despitesignificant investment in infrastructure for thesector, participation rates fall steadily for higher

levels of education while repeat and failure ratesare high. This suggests not only that quality is want-ing but also that students are poorly motivated topursue higher education. In rural areas, access toeducation for girls is restricted. Across the board,the quality of technical and vocation training is poor,reflected in the low market absorption of graduatesfrom such institutions.

Problems in the education sector need to beaddressed through a combination of traditionaland innovative mechanisms. Rather than simplybuilding more schools, which has been the con-ventional approach, existing facilities could beutilised more efficiently by introducing a shiftssystem, launching summer schooling and usingexisting facilities to conduct classes for differentlevels. Gender and rural/urban equity issues willalso need to be addressed in the planning andsanctioning process for new schools. The prior-ity here should be to achieve maximum benefitsfor recipient communities and to mitigate exist-ing imbalances.

Other inputs will be required including improvingthe syllabus, actively pursuing parental involve-ment in education, creating community oversightmechanisms to facilitate monitoring, improvingteacher quality, providing training and developinga more rational testing system. These are in largepart issues of governance and will need to beaddressed as such, but in a participatory mannerthat centres around PTAs and local communities.

HHEEAALLTTHH

The district’s health indicators seem impressiveon paper, surpassing provincial averages inmost categories. These figures are in large partdistorted by the existence of a mega-project, theAMC, confined to tertiary care and accessibleonly to the urban community. Rural health careis marred by erratic and inadequate coverageand poor funding. Overall, health care in the dis-trict is characterised by the absence of bothhealth equity and health security. Attention nowneeds to be given to improving rural facilitiesand to preventive measures such as the provi-sion of clean drinking water, proper sanitation,hygiene education, balanced nutrition and pollu-

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tion control. Given the district’s relatively exten-sive roads network, mobile facilities should beestablished to reach scattered rural populations.

PPOOPPUULLAATTIIOONN WWEELLFFAARREE

In tandem with activities to improve health care,population growth needs to be curbed.Excessive growth negates whatever little bene-fits have accrued from interventions in the pastand threatens the long-term prospects for sus-tainable development. High population growthalso distorts the demographic profile. This isalready the case in Abbottabad where a mas-sive 43% of the population is below the age of15 years. Besides increasing pressure on healthand education service providers in the shortterm, a youthful population will exert additional

pressure on a number of sectors in the mediumand long term, including employment and hous-ing. Once again an issue primarily of gover-nance, improvements here can be broughtabout through private-sector interventions aswell as community support for preventive healthcare and birth control.

DDRRIINNKKIINNGG WWAATTEERR

Government statistics claim that drinking watersupply schemes cover 85% of rural habitationsand 90% of the district’s urban areas. The qualityof the water supplied is not factored in to officialnumbers. The fact is that much of the water supply is contaminated, particularly in congestedurban areas where improper management ofwaste water and the indiscriminate dumping of

solid waste pollutes major rivers andstreams. These waters are also usedfor irrigation, creating risks of contami-nation in the food chain. Only recentlyhas explicit attention been directed tosanitation. But with the concerneddepartments facing severe resourceshortfalls, it has not always been pos-sible to implement more than the mostrudimentary schemes. This too is anissue of governance and needs to beaddressed as such both at the admin-istrative level and through communityparticipation. Conservation and ration-al use of this scarce resource can beachieved only through general andwidespread support for such an effort.Investment will be needed to upgradethe outdated supply network and toaddress issues of erratic supply.

WWAASSTTEE WWAATTEERR AANNDDSSOOLLIIDD WWAASSTTEE MMAANNAAGGEEMMEENNTT

Waste management in the district isinadequate, with a disquieting level ofadministrative and community-levelapathy regarding the issue. While theconcerned authorities fail to fulfil theirresponsibilities, civic sense is alsoabsent. The indiscriminate dumping of

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While farm-to-market roads boost the economy by providing growers with improved access towider markets, infrastructure development often comes at the cost of the natural environment.

solid waste in the immediate vicinity of homesdoes not seem to be a matter of public concern.Arrangements for waste water treatment are farfrom adequate, the municipal dumpsite atSalhad employs inefficient and harmful disposalmethods, and the need for sanitation schemeshas only recently been recognised. It goes with-out saying that this situation impacts a host ofother sectors including drinking water andhealth, not to mention the aesthetic appeal ofthe district. Essentially an issue of governance,strong community involvement as well as contin-uous advocacy and awareness raising are alsoneeded. Resource shortfalls need to be exam-ined as well. Imposing rational user charges isone way to generate funds for investment toimprove service delivery. Supplementary admin-istrative measure that would go a long way inmitigating the current crisis include imposingfines on polluters, establishing an oversight andmonitoring mechanism, and encouraging com-munity participation.

LLAANNDD UUSSEE PPLLAANNNNIINNGG AANNDD ZZOONNIINNGG

Development in the district is carried out withoutthe regulatory cover of land use planning andzoning laws, building codes or EIAs. This hasled in urban areas to the mushrooming of illegal townships lacking even basic amenitiessuch as water supply and sewerage systems.Under heavy pressure from unchecked develop-ment and unregulated construction, municipal services are stretched to the limit. Increasingurbanisation, largely the result of populationgrowth and rural poverty, will aggravate the situ-ation even further. Once again, this is a gover-nance problem and will require that solutionsare sought for key issues such as the inade-quacy of laws, poor implementation andenforcement, the lack of accountability and theinterference of influential vested interests.

RROOAADDSS

While Abbottabad’s roads network is impressive,the district’s location gives rise to a number ofproblems. Infrastructure development has beenundertaken without recourse to EIAs/SEAs—a

trend which cannot be allowed to persist in thefuture. Currently, transit traffic on the Karakoramhighway creates severe congestion and heavypollution in and around Abbottabad city, marringthe aesthetic appeal of the area. Construction ofthe proposed Abbottabad bypass should be pur-sued to redress this problem. At the same time,road user charges and pollution levies should beconsidered as options to generate resources formaintenance. To deal with increasing pollution,conversion to CNG should be encouraged. Farm-to-market roads and rural access in general needgreater attention. These are administrative andgovernance issues but it will be necessary as wellto ensure grassroots involvement in project identi-fication and implementation.

EENNEERRGGYY

Abbottabad’s energy dependency is already adrain on the local economy but the long-termimpact of this dependence will seriously hinderthe district’s efforts to pursue sustainable devel-opment. What is worse, no immediate optionsexist for self-reliance in this capital-intensivesector. As such, a two-pronged approach will berequired. The district will need to develop localenergy sources such as microhydel powerplants while simultaneously launching a mas-sive effort to promote energy conservationthrough the use of fuel-efficient cooking andheating devices and the construction of energy-efficient buildings. In the long term, other alter-natives such as solar energy and wind powershould be examined to diversify power produc-tion, reduce reliance on the national grid andachieve the maximum possible level of autarkyin power generation.

Natural gas supply to rural areas covers barely10% of the population, with the overwhelmingmajority of rural residents relying on wood forcooking and heating. Although much of thiswood is imported from outside the district, thishas not served to ease the pressure onAbbottabad’s forests. With widespread ruralpoverty, those unable to pay for firewood areforced to resort to illegal felling. As a result, for-est resources are rapidly nearing depletion.Increasing gas coverage is one way to tackle

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this problem. At the same time, localised effortsto promote alternative fuels and wise use will bebeneficial. This is not only a matter of gover-nance; equally important is the role of variousstakeholders including research organisationsand new technology providers. Local communi-ties can lend a hand in conservation, economicuse and theft prevention.

GGEENNDDEERR

Conscious long-term efforts need to be undertak-en for gender sensitisation, and to improve edu-cation and employment for women. Women’srole in natural resource management activitiesand their dependence on natural resourcesmakes them ideal partners in conservationefforts. Their income-generation activities suchas kitchen gardening, poultry rearing and animalhusbandry can make an important contribution topoverty alleviation. Women’s empowerment andgender mainstreaming involves attitudinalchanges as well as cultural transformation, but itis not too early to begin advocacy. Synergisticinput will be required from civil society, electedrepresentatives and opinion leaders.

IMPLEMENTATION:PARTNERSHIPS AND SYMBIOSIS

There is a long-standing tradition in developingcountries to look to the government for the deliv-ery of services in a wide range of areas. Perhapsas a result, the general trend in developmentinterventions has been to seek external funding,either through donors, the federal and provincialgovernments or NGOs. This system is not sus-tainable. It is, rather, as some have described it,a form of ‘fund addiction’—a subsidy-dependentmindset that will prove to be a serious handicapin the long run.

Pursuing external funding is, therefore, not thecentral thrust of implementing ASSD initiatives.The ASSD aims to chart a course towards sustainable development which by definitionmeans that interventions must in some way beself-sustaining. This requires the involvement ofa host of actors outside the public sector. Civilsociety, local communities, NGOs, CBOs, village organisations, external specialists andresource providers, banks, development financeinstitutions, opinion leaders and specialisedorganisations are all part of the ASSD vision.The hope is that this broad-based participatoryorientation will be spurred by the devolution oflocal government.

The onus for implementation of the proposalspresented in the ASSD lies with the people of thedistrict. The success or failure of the effort hingeson broad-based community involvement and civilsociety mobilisation. For implementation tobegin, what is required is commitment from thedistrict government, as well as concerned gov-ernment departments, elected representatives,the business community and stakeholders.

In terms of resources, the ASSD advocates sus-tainability and self-reliance while simultaneouslyseeking institutional, financial, technical andcapacity-building support so that the district isbetter positioned to implement the proposedstrategic initiatives. A great deal can beachieved simply by radically improving existingadministrative mechanisms, institutions andcapacity. The education, agriculture, livestock,and finance and planning departments are keyareas where such reform is vital.

In essence, external resource inflows will, in thelong run, be viewed as technical and tacticalinputs to realise the broad strategic initiatives pro-posed here. Meanwhile, capacity building throughinternational donors will enable the district to useits own resources to implement the ASSD.

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135Abbottabad Strategy for Sustainable Development

Framework

The pursuit of sustainable development is a formi-dable challenge. Progress is at best painfully slowand only incremental changes can be expected.

The hurdles that need to be overcome are not relatedexclusively to resource shortfalls and capacity con-straints. At every turn, intractable rigidity and colonialthinking block understanding and acceptance of sustain-able development concepts. On the level of governance,uncertainties persist both about the tenuous state ofdemocracy in the country and the continuity of the devo-lution process in lower tiers of government. Deep-seatedadministrative biases, such as the absence of a partici-patory orientation, weaken the efficacy of public-sectorinterventions. There is a marked tendency to favour personal aggrandisement, rather than working for thecollective good. As a result, accountability, transparencyand altruism are sorely lacking.

It is important to consider these issues at the very outset and to recognise existing limitations at all levels—human, administrative,

Implementation

structural and financial—so that the prescriptiveinterventions outlined in earlier chapters arefirmly grounded in reality. In committing to thevision developed in the ASSD, the district gov-ernment and zilla council must ensure that theseconstraints are taken into account in all routineplanning and development interventions.

Understanding the administrative context inwhich the ASSD is grounded also allows thisdocument to be viewed more realistically, partic-ularly in terms of the time frames required forimplementation. For those who might be tempt-ed to see the ASSD as a quick fix for all of thedistrict’s problems, it is also important to intro-duce an element of pragmatism. As such, it isworth repeating that the pace of change is slow,that the consolidation of processes and systemsis incremental, and that capacity gaps, particu-larly in the early stages of devolution, can some-times be disheartening.

For the ASSD vision to become a reality, supportfor the strategy will be needed across the board,regardless of ideological and political divides.This can only be achieved through debate,accommodation, consultation and trade-offs inthe spirit of the sustainable development para-digm. Strong political will is also required to rec-oncile the conflicting agendas of various interestgroups and stakeholders, whose commitmentand involvement remains critical to the successof ASSD implementation.

ISSUES IN IMPLEMENTATIONMajor concerns regarding implementation are ofcourse related to devolution and the administra-tive uncertainty that prevails as the structure oflocal government changes. The country’s tenu-ous return to democracy is also a factor to con-sider. Further afield, implementation issues areaffected by the radical shift in sustainable devel-opment thinking that is taking place at the inter-national level as well as the geopolitical realign-ments that have occurred in the wake of theevents of 11 September 2001.

DDEEVVOOLLUUTTIIOONN

The entire administrative framework across thecountry is in a state of flux following the promul-gation in 2001 of provincial LGOs which set theball rolling for the devolution of governance tolower tiers. Ambiguity regarding governanceprevails in Abbottabad district as well. Adding tothe uncertainty are the 2002 elections for thenational and provincial assemblies, which haveled to confusion regarding the responsibilities ofelected representatives at various tiers of gov-ernment. This problem has yet to be addressedby the National Reconstruction Bureau.

As the devolution plan unfolds, new and unex-pected problems are likely to arise. InAbbottabad, the creation in 2002 of three newtown councils is one such example, where onlyskeletal details have been provided regardingjurisdiction and coordination with higher tiers. Atpresent, overlaps in jurisdiction and responsibili-ties exist with elected representatives at highertiers, resulting in competition for turf. The divisionof responsibility for development interventionsbetween a number of different tiers adds to thegeneral uncertainty that prevails at the moment.

The ambiguity created by the decentralisation ofmandates from the province to the local levelleads to administrative inertia and in somecases a vacuum of authority. While lower-tiergovernments have been handed new responsi-bilities, they are at the same time undergoing aradical structural metamorphosis. The DistrictGovernment Abbottabad has been created byreforming line departments that were earlierunder the jurisdiction of the provincial govern-ment but the necessary fiscal and civil servicetransformations are still awaited. Below theprovincial and district hierarchy lies the third tierof this new set-up, which in Abbottabad consistsof 46 union administrations.

Across the board, the expanded mandate of var-ious tiers has not automatically resulted in anaccompanying enhancement of capacity. TheLGO commitment to formulate a sustainabledevelopment vision is also hampered by the lackof requisite knowledge and training. In the short

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term, the agenda for the district government is toconsolidate the changes introduced under thedevolution plan and attend to basic issues ofcapacity development and systemic evolution.This should not, however, suggest that the pic-ture for the immediate future is one filled withgloom. The process of change in itself offersmajor opportunities for the pursuit of human well-being and sustainable development.

DDEEPPAARRTTMMEENNTTAALL TTHHIINNKKIINNGG

Partly as a result of administrative necessity andpartly owing to an increasing need for functionalspecialisation, departments emerged with exclu-sive jurisdiction over their respective domains.With the evolution of thinking on developmentissues at the international and national level, it is

misleading to believe that this departmentalapproach will be able to promote sustainabledevelopment. On the contrary, the tunnel visionthis breeds, accentuated by departmental ratherthan collective interests, is a major barrier toachieving optimal returns on development inter-ventions. In the current scenario, concepts suchas holistic, integrative, cross-sectoral and cross-functional developmental planning are paid facilelip service, while the practical gains that suchideas are meant to achieve remain elusive.Compartmentalised thinking is today one of themost formidable challenges confronting sustain-able development.

On one level, it may be argued that the philoso-phy of devolution developed as a reaction to thisvery problem. The role that devolution is likely toplay in finding a solution, however, is unclear fora number of reasons. To begin with, devolutionis itself in an embryonic stage. Meanwhile, criti-cal departments such as forests have not beendevolved. In addition, the status of fiscal devolu-tion and revenue generation remains unclear.

IINNDDIICCAATTOORRSS

Fully aware of the structural and administrativedifficulties involved in implementation, the ASSDaims to address these issues in a more effica-cious manner. As a first step, it will be importantto highlight the exact nature of cross-sectorallinkages as well as their relationship to and

impact on sustainabledevelopment. This will bedone by developing indi-cators.

Indicators lie at the veryheart of the ASSDprocess, allowing itsstrategic interventions tobe operationalised,implemented and moni-tored. Without indicators,there is no accountability,no transparency and ulti-mately, no sustainabilityof interventions.

Area-specific indicatorswill be developed to establish baseline positionsand set annual targets. Responsibility for meetingthese targets will be assigned in an explicit cross-departmental manner and periodic progressreviews will be conducted. In light of thesereviews, the zilla council will institute changes,extending resources and adapting existingprocesses and mechanisms where necessary.

CCOOMMMMUUNNIICCAATTIIOONNSS AANNDDAADDVVOOCCAACCYY

The ASSD vision, its proposed interventions andthe formulation of indicators will be dissemi-

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As the devolution plan unfolds, newand unexpected problems are likely toarise. In Abbottabad, the creation ofthree town councils is one suchexample, where only skeletal detailshave been provided regardingjurisdiction and coordination withhigher tiers. This ambiguity leads toadministrative inertia and in somecases a vacuum of authority.

nated on an ongoing basis. The limited efficacyof mainstream media in Abbottabad necessi-tates the use of innovative channels of commu-nication, including opinion leaders, academiaand elected representatives, as well as formaland informal social and cultural institutions suchas the hujra, panchayat (body of local elders)and jirga. In addition, a condensed version ofthe ASSD will be produced in Urdu so that itsvision for sustainable development is accessibleto the widest possible audience.

PAST EXPERIENCE INIMPLEMENTATIONMuch experience has been accumulated overthe years from numerous development interven-tions undertaken in the district by a host of enti-ties including government agencies, develop-ment projects, donors, NGOs, the private sectorand individual communities. While the lack ofdevelopment in the district is a cause for wide-spread disaffection, there is also a high level ofdissatisfaction with the results of initiativesundertaken so far. Key lessons learned frompast experience are as follows:■ Governance issues are a recurring theme in

development planning and are manifestedin a number of ways: the lack of transpa-rency, accountability and timely response;the short life span of programmes and thehigh turnover of barely acclimatised person-nel, largely as a result of political interfer-ence; the absence of monitoring, oversightor assessment mechanisms; and capacitygaps that in some cases are critical.

■ Under the traditional administrative psyche,civil society, elected entities and specialistsare all viewed through the lens of adminis-trative fiat. There is no room in this kind ofthinking for the participation of local com-munities in decision making, project identifi-cation and implementation.

■ Even where adequate investment is madein the implementation of projects, operationand maintenance funds are lacking.

■ Project design invariably leaves much to be desired. The principal shortfall here isrelated to the absence of EIAs, with the

result that an already fragile ecosystem issubjected to further assault.

■ Development projects are conceived andmanaged in a compartmentalised fashion.This ignorance of intra- and inter-sectorallinkages has marred the success of manyinterventions.

■ Across the board, data gathering remainsinadequate. Where statistic have been com-piled, their veracity is in doubt. The absenceof reliable data is also the result of seriousshortcomings in the planning process.

■ Gender issues have never been properlyacknowledged, let alone addressed, as beingrelevant to every tier of government and tocivil society as a whole. This is all the moreshameful considering the unequivocal empirical evidence linking poverty alleviationto gender mainstreaming. Gender issueshave been the focus of cosmetic measures toappease donors and satisfy certain require-ments. Issues in this area remain poorlyunderstood.

■ The inextricable connection between theenvironment and development has not beenrecognised or understood, and thus no realheadway has been made in integrated management or in the assessment ofimpacts.

■ Across the country, rising poverty is a sign ofthe failure of development interventions.Abbottabad district is no exception, althoughexplicit indicators are yet to be developed.The government’s procrastination in estab-lishing poverty parameters, and ad hocmeasures taken under international pres-sure, further destabilise an already teeteringadministrative and planning component.There are of course political pitfalls inherentin the quantification of poverty but thisshould not mean that the exercise is neverundertaken simply for the sake of politicalexpediency.

■ Institutional development at the local levelhas been nominal and has always beenaccorded low priority. The resulting capacityshortfalls cripple the functioning of varioustiers.

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INSTITUTIONALFRAMEWORKThe ASSD will be implemented through theexisting institutional framework, keeping in mindthe changes that are emerging under devolu-tion. The existing framework comprises institu-tional arrangements and processes definedunder various legal instruments. The opera-tionalisation of the LGO created a representa-tive district government made up of an electedzilla council as well as a nazim and naib nazim,both of whom are indirectly elected. The naibnazim also acts as convener of the zilla council,which brings together union representatives andprovides special representation for selectedgroups, with 33% of its seats reserved forwomen. These offices are supported in routineimplementation and oversight by devolved linedepartments under the supervision of the districtcoordination office (DCO).

The district administration works under thenazim, assisted and advised by grouped func-tional offices. These groups of offices have beencreated in a manner that brings together relatedsectors. The National Reconstruction Bureau,

the institutional home of the devolution plan,envisages the creation of 11 groups of offices. InAbbottabad, the following offices are currently inoperation:

■ District coordination: coordination, humanresource management and civil defence;

■ Agriculture: agriculture (extension), livestock,on-farm water management, soil conserva-tion, soil fertility, fisheries and farm forestry;

■ Community development: communityorganisation, labour, social welfare, sportsand culture, cooperatives and registration ofcivil society organisations;

■ Education: literacy, boys’ schools, girls’schools, technical education, colleges(other than professional), sports educationand special education;

■ Finance and planning: finance and budget,planning and development, accounts, enter-prise and investment promotion;

■ Health: public health, basic and rural health,child and women’s health, population wel-fare, district and tehsil headquarters hospi-tals;

■ Revenue: land revenue and estates, exciseand taxation; and

■ Works and services: spatial planning anddevelopment, district roads and buildings,energy and transport.

These institutional arrangements are illustratedin Figure 5.

As things stand, certainkey issues and shortfallsin the institutional frame-work will need to be takeninto consideration. In itscurrent state of evolution,the system is staffed byarea-based personnelbelonging to provincialdepartments. These func-tionaries may be highlyexperienced, with deepfamiliarity of local issuesrelated to their sectors,but it is unlikely that theywill be able to apply theirexpertise in an independ-

ent, integrated manner. This should not be takenas an indictment but rather as an example of theserious capacity gaps that exist and that requireimmediate attention.

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The government’s procrastination inestablishing poverty parameters furtherdestabilises an already teeteringadministrative and planningcomponent. There are of coursepolitical pitfalls inherent in thequantification of poverty but thisshould not mean that the exercise isnever undertaken simply for the sakeof political expediency.

Where weaknesses in expertise existed prior todevolution, the situation now is all the more dif-ficult. Officials will be required to tackle the chal-lenge of working in new departments without thesupport of central offices and in an atmospherewhere transparency and the quantification ofperformance are crucial features.

Beyond the clustering of mandates into groups,the new offices are arranged as vertical hierar-chies with few horizontal linkages for cross-sec-

toral coordination and integration (Figure 6).Such linkages will need to evolve to prevent arepetition of the compartmentalised functioningthat characterised provincial departments. Thedistrict government itself provides an umbrellafor the integration of sectoral policies at the locallevel, an arrangement that did not exist in ameaningful way before the implementation ofdevolution. Nevertheless, requisite capacity willhave to be provided for local-level decision mak-ing in a cross-functional manner. Grouped office

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SSTTRRUUCCTTUURREE OOFF TTHHEE DDIISSTTRRIICCTT GGOOVVEERRNNMMEENNTTFFIIGGUURREE 55

Compiled by Khalid Saranjam Khan

UnionAdministrations (46)

Finance andPlanning

ZillaMuhtasib

DistrictNazim

Public SafetyCommission

IndustryWorks

andServices

Health InformationRevenueEducationCommunityDevelopment Agriculture

District PoliceOfficerDCO

ZillaCouncil

Linkage withMushaviratCommittee

Town MunicipalAdministration Linkages

through threeTown Councils

programmes will need to be integrated in amulti-sectoral approach. Data systems alsoneed to be integrated so that multi-sectoralissues can be highlighted.

The formulation of inter-sectoral coordinationmechanisms is another area that requires atten-tion. There is always the danger that the newgrouped offices may continue to function in a com-partmentalised fashion. Coordination between thethree tiers of government will also remain weak inthe absence of a credible mechanism.

Coordination mechanisms can be developed aspart of the ASSD implementation process, andmay take the form of inter-sectoral committees forpolicy and programme review and coordination.The offices of district coordination, and finance andplanning can take the lead in providing multi-sec-tor guidance in planning and policy formulation.

DISTRICT-LEVELMECHANISMS ANDPROCESSES

The devolution of local government has createda number of potential mechanisms that, if oper-ationalised, will lead to better outcomes for thesustainable development interventions pro-posed in the ASSD. These mechanisms andprocesses will only perform optimally if they areoperationalised in a systematic and consistentmanner. The mere inclusion of various mecha-nisms in the statute books will achieve nothingin the absence of commitment and genuine sup-port from all stakeholders.

DDIISSTTRRIICCTT MMUUSSHHAAVVIIRRAATT CCOOMMMMIITTTTEEEE

This Committee brings together the nazims of thethree town councils, the district nazim, naib nazimand DCO. The Committee is mandated to providea strategic vision for the pursuit of sustainabledevelopment in the district. After approval by thezilla council, the ASSD will be formally adoptedby the Committee, making the strategy a formalpolicy document. Subsequently, the Committeewill put in place a set of processes, mechanisms

and systems to oversee planning, implementa-tion and assessment. Periodic progress reviewswill be undertaken and, where necessary, theASSD vision will undergo reformulation. TheMushavirat Committee will also provide a plat-form for coordinating the policies and pro-grammes of various tiers of local government.

DDIISSTTRRIICCTT DDEEVVEELLOOPPMMEENNTTCCOOMMMMIITTTTEEEE

This is a technical body headed by the districtnazim, with the district planning officer serving assecretary. Its members include the DCO andexecutive district officer (EDO) for finance andplanning, as well as sectoral EDOs on a case-specific basis. The District DevelopmentCommittee is vested with the authority to give thetechnical green light to projects in various sectors.According to current rules and procedures, it mayapprove projects with a maximum cost or outlay ofRs 40 million. Beyond this limit, the project inquestion will need to be approved by the provin-cial planning and development department.

A serious anomaly exists in this system. Whileencouraging and permitting real decision mak-ing to take place at the local level, therebystrengthening the move towards substantivedecentralisation, the system operates under theassumption that adequate technical capacityalready exists at the district level to appraiseand approve projects. If this anomaly is notresolved, the District Development Committeewill eventually have no option but to rely on thetechnical guidelines and parameters set by theprovincial government, negating the entire pur-pose of district-level autonomy. District-specificcriteria need to be evolved to guide the processof approval at the district level, keeping in mindissues that are relevant to the local context.

CCIITTIIZZEENN CCOOMMMMUUNNIITTYY BBOOAARRDDSS

The LGO contains one unique component—anadministrative innovation that supports devolu-tion by providing opportunities for civil society toactively participate in decision making. The for-mation of citizen community boards will allowordinary citizens to access public-sector funds

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and implement development projects for theirown communities. The LGO provides an elabo-rate framework for this mechanism and stipu-lates that 25% of local government developmentbudgets will be exclusively earmarked for use bythese community organisations. It prescribesprocedures for the registration of citizen com-munity boards and rules to enable these boards

to interact with local governments and accessdevelopment funds.

PPRRIIVVAATTEE--SSEECCTTOORR PPAARRTTIICCIIPPAATTIIOONN

The private sector has not been extended suffi-cient recognition in the new system. A cause foroptimism in this context may be found in Part A

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IINNTTEERR--SSEECCTTOORRAALL LLIINNKKAAGGEESSFFIIGGUURREE 66

Compiled by Khalid Saranjam Khan

Coordination(District Coordination

Office and Nazim level)

Groups of offices (9)

Inter-sectorallinkages

(non-existent)

of the Second Schedule to the LGO, which pro-vides for future legislation for private-sector par-ticipation in local government service delivery.The nature of the mechanism established willdepend on the approach followed in the framingof these rules.

OOTTHHEERR LLEEGGAALL IINNSSTTRRUUMMEENNTTSS

The LGO envisages that, as the system maturesand contingent issues arise, the district govern-ment will formulate necessary laws to coverthese matters. This legislation is to come in theshape of by-laws, which provide the district gov-ernment with the flexibility to put in place a local-level regulatory regime supportive of environ-mental conservation and sustainable develop-ment. By-laws may cover a range of subjects,from the licensing of trade to protecting naturalresources (see Annex 1). One cause for con-cern in this regard is the lack of capacity at thedistrict level to draft the necessary legislation.

HIGHER-TIER MECHANISMSAND PROCESSESDespite the devolution of powers to the districtlevel, higher tiers of government will continue tobe relevant to the pursuit of sustainable devel-opment in Abbottabad. In this context, a numberof higher-tier mechanisms and processes are ofspecial significance.

LLOOCCAALL GGOOVVEERRNNMMEENNTTCCOOMMMMIISSSSIIOONN

The Local Government Commission is the pre-mier provincial institution responsible for regulat-ing the functioning of local governments. Althoughit will need to undergo institutional development tobe able to perform its role properly, it will assumesignificance by prescribing standards and normsfor various sectoral functions. The standards forvarious institutional processes adopted by thegrouped offices at the district level also fall underthe authority of the Commission.

The Commission will play in important role infacilitating implementation of the ASSD, besides

paving the way for similar strategies to be devel-oped for other districts. The Commission couldalso mobilise federal, provincial and internation-al donor support for implementing ASSD recom-mendations, especially with regard to the LGOand the Government of Pakistan’s internationalcommitments under various treaties and con-ventions.

PPRROOVVIINNCCIIAALL FFIINNAANNCCEECCOOMMMMIISSSSIIOONN

The PFC was created under Chapter XIIA of theLGO, added by way of an amendment through theNWFP Local Government (Second Amendment)Ordinance 2002. This chapter envisages the for-mation of an independent body to determine theamount of funds allocated to the district by theprovincial government. The PFC award will needto look to the needs of the district, especially in thecontext of poverty alleviation, and the fulfilment ofthe country’s international commitments and obli-gations. The district government will be able topresent its case in this forum through the ASSD.

SSAARRHHAADD PPRROOVVIINNCCIIAALLCCOONNSSEERRVVAATTIIOONN SSTTRRAATTEEGGYY

The SPCS can serve as an umbrella influenceand act as a coordinative entity for the imple-mentation of ASSD proposals. This is particular-ly appropriate considering that in Pakistan thelower-tier strategy formulation process owes itsvery existence to the SPCS, a ground-breakingdocument published half a decade before theLGO was promulgated. The SPCS is expectedto become all the more relevant following theplanned reformulation of this document toaccommodate the recent administrativechanges. A reoriented SPCS can be expected toformalise more explicit coordinative and integra-tive mechanisms and processes between asmany as 24 district-level strategies, with anexclusive mandate over key sub-sectors vital toprovincial sustainable development concerns.

The SPCS will be of considerable utility in thecase of non-devolved departments and thosewhose status remains unclear, serving as a ref-erence point for development strategies at vari-

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ous tiers as well as sector-specific strategicvisions. Its involvement in the creation of objec-tive district-level databases, and in the selec-tion, adaptation, operationalisation and assess-ment of indicators, cannot be ruled out.

The district’s performance in many areas willoverlap with provincial and federal commitmentsto donors and international entities, including uni-versal targets established or ratified under vari-ous regimes. The SPCS has an important role toplay in the nexus between district-level progressand the country’s international obligations.

FFEEDDEERRAALL GGOOVVEERRNNMMEENNTT

The ASSD implementation process will be influ-enced by the federal government, particularlywhere the country’s national, regional and inter-national commitments intersect with mattersthat are operationally under the jurisdiction ofthe district. Coordination in a wide range ofareas including compli-ance, resource availabi-lity, capacity support andestablishing linkages willbe undertaken under theaegis of a reformulatedNCS, as recommendedby the NCS-MTR, whichexplicates the need tobring the provisions ofthe NCS in tune with thesustainable developmentparadigm (Hanson et al2000). The federal gov-ernment has yet to take adecision regarding thisrecommendation.

The NCS-MTR recommendations and therecently published PRSP serve as a resourcebase for the district both for the selection of indi-cators and their operationalisation.

RESPONSIBILITY

Responsibility for the achievement of sustainabledevelopment rests with a composite of stake-

holders and the success of the endeavour willdepend on their level of commitment. The ASSDvision cannot be attained through a routine andcavalier orientation or by means of an individualor departmental approach. Nor will the strategicinterventions proposed here benefit from the pur-suit of a narrow political agenda characterised byquick-fix, pseudo-developmental interventions.Sustainable development can only take root ifvital synergies are created through integratedefforts across functional and ideological divides.The effort will need to be devoid of personalagendas, nurtured instead by a genuine sense ofownership and guided by dynamic leadership.The primacy of the collective good over individualand group interests will need to be ensured.

DDIISSTTRRIICCTT GGOOVVEERRNNMMEENNTT AANNDDEELLEECCTTEEDD RREEPPRREESSEENNTTAATTIIVVEESS

Primary responsibility for implementationrests with the district government, which owns

the ASSD, has overseen its formulation andwill adopt the document as a formal statementof purpose. The nazim is a principal stake-holder at the macro level, while in the microcontext the naib nazim’s involvement is criti-cal, given the multiple roles of this office asconvenor of the zilla council as well as chair-person of the ASSD Special Committee. Theunion nazims, in their capacity as members ofthe ASSD Special Committee, are equallyimportant since they are responsible for guid-

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Primary responsibility forimplementation rests with the districtgovernment, which owns the ASSD,has overseen its formulation and willadopt the document as a formalstatement of purpose. The nazim is aprincipal stakeholder at the macrolevel, while in the micro context thenaib nazim’s involvement is critical.

ing the ASSD vision to fruition. Similarly,members of the zilla council play a key role intheir capacity as union nazims.

Besides these officials, the three town coun-cils and elected representatives at the townlevel are expected to play a role in imple-mentation. Since these posts have been cre-ated relatively recently, their exact responsi-bilities in the short term are restricted tobasic municipal functions. It is expected,however, that their role will be elaboratedwhen the ASSD comes under review. Thisprocess may lead to the formulation of town-level strategies in the future.

DDEEVVOOLLVVEEDD EENNTTIITTIIEESS

Devolved offices under the administrativecontrol of the district government will beresponsible for implementing various sec-toral ASSD visions. These offices will planand reform their initiatives in line with theASSD, under the leadership of their respec-tive EDOs, with the DCO overseeing theentire process.

The finance and planning office will serve asthe institutional home of the ASSD, providingleadership and developing a monitoringmechanism to gauge implementation. Moni-toring will be linked to a performance-basedbudgeting system, supported by an annualreporting mechanism. The finance and plan-ning office will be responsible for providingtimely and accurate information to facilitateplanning. This will lend credibility both to theprocess of implementation and the reportedresults of sectoral programmes, providinginsights about successes achieved as wellas areas or sectors that have provenintractable. These insights will in turn allowimplementing offices to avoid the mistakes ofthe past. At the same time, this exercise willhighlight genuine hurdles and significantshortfalls that could not have been predictedor were beyond local control. In consultationwith the finance and planning office, TMAswill develop programmes aimed at imple-mentation.

CCIIVVIILL SSOOCCIIEETTYY

The active participation of civil society is critical to the efficient and timely operational-isation of the interventions and remedial initiatives proposed in this strategy.Ownership of the ASSD by recipient stake-holders is crucial, since civil society will playa leading role in providing impetus for imple-mentation and in monitoring outcomes. Civilsociety participation will ensure that the newmechanisms and processed developedunder the ASSD are practical and useful.Village councils, neighbourhood councils, citizen community boards and NGOs are afew of the avenues through which society, ina loosely organised form, can interact withlocal government structures.

NNOONN--DDEEVVOOLLVVEEDD EENNTTIITTIIEESS

The provincial government will continue toexercise jurisdiction over important sectorsincluding forests, watersheds, works andservices, and minerals. The concerneddepartments, as well the EPA, operate underthe provincial hierarchy. Federal agenciessuch as WAPDA, the National HighwayAuthority and Sui Northern Gas PipelinesLimited will maintain a conspicuous pres-ence in the district for the foreseeable future.These entities will be responsible for imple-menting schemes with significant impact ondevelopment outcomes at the local level.Managed appropriately, their involvementcan contribute to the attainment of the ASSDvision. By the same token, improper pro-gramme design and implementation canslow the pace of local initiatives and evenwreak havoc on the district’s own initiatives.Having these agencies on board will there-fore be critical.

The district government will be required tocommunicate its vision and priorities to non-devolved government agencies. In theabsence of formal mechanisms, variousstakeholders will need to rely on networkingand building informal bridges. The districtgovernment will take the lead in advocacy

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and sell the district’s point of view throughvarious forums. Legislators representing thedistrict in the national and provincial assem-blies will also be required to play their part incommunicating the ASSD vision. This dia-logue will ensure that non-devolved entitiesundertake integrated planning that does notsideline the district’s own vision for sustain-able development.

INSTITUTIONALSTRENGTHENING AND CAPACITY DEVELOPMENT

The implementation of devolution and theoperationalisation of lower-tier administrativeentities has necessitated the creation of avariety of new institutions at the local level.Some of the entities are already functioningwhile others have yet to be set up. So far, thefollowing entities and offices have beenestablished:■ district nazim, elected head of the district

government;■ zilla council, elected legislative body of the

district;■ nine grouped offices, corresponding to

various sectors;■ 46 union administrations;■ 46 union councils; ■ three TMAs; and■ three town councils.

As the devolution plan unfolds, more institu-tional entities will be operationalised. Theseinclude the following:■ zilla mohtasib, ■ citizen community boards, ■ village councils, and ■ neighbourhood councils

These institutions and offices will consolidategrassroots participation by providing anenabling framework for decision making andgovernance at the community level. The factthat these entities are mentioned in the LGOdoes not automatically mean that they will beestablished. Their operationalisation requires

enabling laws as well as support mechanismssuch as personnel, systems, skills andresources. So far, few steps to support the nec-essary framework have been taken.

A number of enabling laws related to other sec-tors are also to be enacted under the LGO. Mostof this legislation is yet to be framed. Even wherelaws have been enacted, they are vague, tenta-tive, and not widely disseminated or understood.This is particularly discouraging, since laws pro-vide the functional basis for local government. Itis through this legislation that the scope andfunctions of local governments will be specified.For instance, public participation in budget mak-ing or project identification will only come aboutonce specific Rules for the budget are issued.Legislation is therefore a key component of insti-tutional development.

Rules and by-laws that take into account therequirements of the district can help pave theway for sustainable development. A principalconsideration here will be to ensure that theinstitutions set up under the law are aligned withthe district’s development objectives, and thatlegislation provides for their proper functioning.

Once they are set up, the effectiveness of localinstitutions will depend on their capacities.Currently, capacity gaps exist on two levels. In atraditional sense, the district government lackscapacity in terms of equipment, skills and data,as well as institutional processes that wouldenable it to undertake its work effectively. At thesame time, devolution has created the need fora whole new set of skills and capacities.Resource mobilisation and planning are nowlocal functions, and specialised skills are neededto undertake this work. In addition to compre-hensive capacity development, the public sectorwill also need to place a premium on skills.

Skills development will be tackled largely in themedium and long term, supplemented by ashort-term component. The district governmentwill take immediate steps to assess the capacityof its officers and personnel, draw up skillsinventories and initiate programmes to addresscapacity gaps. This effort will be integrated with

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institutional development. Over the mediumterm, skills development will continue in the pub-lic sector while attention will also be directedtowards private-sector entities and NGOs.Enhancing the capacity of these actors shouldallow them to act as useful partners of the district government in the long term.

Devolution has brought in its wake a numberof promising developments. Local institu-tions such as the zilla and town councils aremandated to formulate local policy. With fis-cal autonomy devolved to some extent aswell, resource allocation and planning canmore closely mirror the real needs of the dis-trict. In this scenario, participatory institutionssuch as citizen community boards, villagecouncils and neighbourhood councils willbridge the gap between the state and civilsociety.

To take full advantage of these develop-ments, capacity building alone will not be suf-ficient. A reorientation of the public sector willneed to be achieved, along with awarenessraising and advocacy to ensure that the cor-

rect choices are made. The regulatory frame-work of the local government will need to bestrengthened, while the operationalisation ofcitizen community boards will require the cre-ation of enabling institutional processes.

ADDITIONAL MECHANISMS:DISTRICT ROUNDTABLEThe District Roundtable was established in 1998to bring together a variety of stakeholders in aforum where environmental and sustainabledevelopment issues could be debated and inputprovided for the ASSD formulation process.Steered by the now-defunct office of the deputycommissioner, the Roundtable was designed towork with district offices of the provincial govern-ment as well as civil society and private-sectorplayers. When the devolution process got underway in 2001, this arrangement was reconceived.

With the district government and new localadministrative tiers now functioning, the formalpolicy-making process is anchored in the zillacouncil, with the zilla nazim acting as districtexecutive. These offices are responsible forarticulating the district’s interests and resolvinga variety of development and policy issues.

Under the new set-up, the formulation of district-level policy is not a simple linear process. Various

groups within civil societywill articulate their owninterests through a varietyof channels. In this sce-nario, dominant interestgroups will no doubt beable to interact with dis-trict government depart-ments, non-devolvedprovincial departments,as well as the district andprovincial legislatures. Asa result, there is alwaysthe risk that developmentpolicy becomes skewedin favour of dominantinterests.

While devolution has created room for civil-society participation, there is no forum wheresuch groups can interact regularly with districtauthorities to provide collective input for policymaking. In the absence of such a forum, the district government will not be able to benefit

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Devolution has brought in its wake anumber of promising developments.Local institutions such as the zilla andtown councils are mandated toformulate local policy. With fiscalautonomy devolved to some extent aswell, resource allocation and planningcan more closely mirror the real needsof the district.

from the feedback of those members of civilsociety who are marginalised or not part of anyformal entity, but who have an important role toplay in sustainable development.

The Roundtable as it has been reconceived willbring together various informal groups and for-mal entities, thereby fostering a consensus-based policy environment. The interrelation-ships between various stakeholders, embodiedin the Roundtable, is illustrated in Figure 7.

The Roundtable will debate sustainable develop-ment issues to arrive at consensual solutions. Itwill act as a think tank for environmental policy,an advocate for sustainable development and aforum for the articulation of civil society’s inter-ests. It will assist formal district and town author-ities in policy formulation and decision making.

A key function of the Roundtable will be to com-mission independent studies on critical sustain-

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TTHHEE DDIISSTTRRIICCTT RROOUUNNDDTTAABBLLEE IINN TTHHEE NNEEWW SSEETT--UUPPFFIIGGUURREE 77

Compiled by Khalid Saranjam Khan

Non-DevolvedProvincial Government

Departments

District GovernmentOffices and DCO

ZillaCouncil

Stakeholders andInterest Groups

TownCouncils (3)

Non-Organised Civil Society

(groups + individuals)

ProvincialGovernment

DistrictMushaviratCommittee

SustainableDevelopment in

Abbottabad

Civil SocietyOrganisations

(CSOs)

DistrictNazim

ACSRoundtable

able development issues confronting the district,to crystallise recommendations, and forwardthese proposals to the concerned institutionsand organisations. Sectoral and thematicgroups can also be formed within theRoundtable to undertake specialised tasks.

In addition to sector experts, members of theRoundtable will be drawn from public-sectororganisations, non-devolved provincial depart-ments, the provincial EPA, the zilla and towncouncils, the media, women’s groups, acade-mia, and civil society at large. Members from thezilla and town councils will serve to create a linkbetween the Roundtable and local administra-tive bodies while at the same time ensuring localgovernment ownership of the process. The non-partisan nature of the Roundtable will allow it tobecome a credible forum for all developmentplayers in the district.

The Roundtable will need to find a way to bal-ance the interests of the local government withits own autonomy and credibility. To prevent theRoundtable from becoming another committeeespousing the line of the district government,two mechanism are proposed. First, an institu-tional membership component will be intro-duced, under which organisations and groups

with institutional status in the district will be ableto nominate members from within their ranks tosit on the Roundtable. Institutional membershipwill be offered to a variety of organisationsincluding representative bodies of the trade andindustry sector, civil society organisations andacademia.

The second mechanism is procedural.Members of the Roundtable will be vested withthe power to call for a session, so that conven-ing the Roundtable is not the exclusive prerog-ative of the district government. This willstrengthen the autonomy of the Roundtableand allow it to take up issues whenever mem-bers feel it is appropriate.

The institutionalisation of the Roundtable willrequire resources and secretariat support, thelatter to be provided initially by the finance andplanning office. Systems will need to be devel-oped to ensure the neutrality, continuity andsustainability of the Roundtable mechanism.Ultimately, the success of the Roundtable willhinge on the zilla and town councils, district gov-ernment offices and zilla nazim. If they choosenot to make full use of this forum or decline totake ownership of its functions, the Roundtablemechanism will be ineffective.

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151Abbottabad Strategy for Sustainable Development

Mobilisation

Judging from past experience, a major issue inthe pursuit of sustainable development is themobilisation of resources. At the moment, the

district relies heavily on resource allocations from theprovincial government. This dependence can be miti-gated to some extent by generating funds throughother existing and potential sources, including:

■ fiscal transfers from the province as general-purpose grants;■ special-purpose grants form the province;■ conditional capital grants;■ savings made possible by introducing efficiency in public-sector

programmes;■ district-level revenues through levies under Schedule II of the

LGO (see Annex 1);■ new levies, especially those relating to the use and exploitation of

natural resources;■ gains in revenue collection from decentralised levies; and■ user charges levied by decentralised offices.

Additional revenues may also become available by creating extra-fis-cal instruments, developing partnerships with NGOs, inviting private-sector investment in key sectors, tapping provincial government pro-

Resource

grammes aimed at sustainable development,and capitalising on federal commitments underthe NCS, PRSP, National Environment ActionPlan, and Poverty Reduction and GrowthFacility. The district government may also beable to access substantial funding through bilat-eral and multilateral donor obligations undervarious international agreements such asAgenda 21 and the UN-MDG. The NSSD para-digm and the WSSD summit have brought intheir wake a number of realignments in donorpolicy. Funding windows that have becomeavailable as a result may be explored as well.The Global Environment Facility available undervarious multilateral environmental agreementsis another potential opportunity.

LOCAL RESOURCEMOBILISATIONLocal revenue mobilisation is one of the districtgovernment’s major responsibilities. The abilityto generate funds locally will provide fiscalspace for the implementation of programmesaimed specifically at sustainable development.At the same time, streamlining current public-sector expenditure is imperative. Wastefulspending cannot be countenanced in a sustain-able development vision. Along with the searchfor new avenues for revenue mobilisation, effi-ciency of resource use is a priority.

District government expenditure and revenuesfor 1999–2000 are shown in Table 1. During2001–02, the first fiscal year after devolution,revenues and expenditures flowed through aninterim financial system. The revenues ofdefunct local bodies were accounted for in localfunds and managed at the local level, whiletransfers received from the province were oper-ated through the province. With the introductionof a new Chapter XII in the LGO, these rev-enues have been merged and will be splitbetween the three TMAs.

Revised estimates for the year 2001–02 show ahigh reliance on provincial transfers (Table 2).The figures are artificially low because in2001–02 the salary budget was borne directly

152 Abbottabad Strategy for Sustainable Development

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TABLE 1 ABBOTTABAD DISTRICT EXPENDITUREAND REVENUES (1999-2000)*

Expenditure item Amount Total

Agriculture extension 3.9Education 536.7Civil defence 0.3Health 132.2Land Management 4.7Livestock 5.1Social Welfare 1.9Works 13.5Accounts 0.8Deputy commissioner office 2.0Fisheries 1.3Industries 1.0Transport (including Regional Transport Authority) 0.2Total expenditure 703.6

Revenue itemAgriculture extension 2.6Education 4.1Export tax share from province 5.1Forests 2.5Fisheries 0.1Health 1.5Profit on accounts 0.5Motor vehicle registration tax 2.0Provincial motor vehicle tax 11.5Total revenue 29.9Revenue gap 673.7

*Approximate values in million rupees.Source: District Accounts Office 2000.

TABLE 2 ABBOTTABAD DISTRICT REVISED ESTIMATES (2001-02)*

Receipts Budget Revised Expenditureestimates Budget2001–02 2001–02

Recurrent BudgetDistrict government 86.694 103.638 103.638(non-salary)District local fund 4.912 2.054 2.054TMA 37.649 37.011 37.011Sub-total A 129.255 142.703 142.703Development BudgetPSDP (District 29.860 29.860 23.869Functions) KPP 80.584 111.477 56.452SAP (new education) 7.050 7.050 5.283ESR 0 8.958 4.712President’s programme 0 20.555 15.208District local fund (ADP) 10.364 0 0TMA local fund (ADP) 17.166 0.461 0.461Sub-total B 145.024 178.361 105.985 Total (A+B) 274.279 321.064 248.688

* Figures in million rupees.ADP = Annual Development Programme; ESR = Education SectorReforms; KPP = Khushhal Pakistan Programme; PSDP = Public SectorDevelopment Programme, GoNWFP; SAP = Social Action Programme;TMA = Tehsil municipal administration

Source: District Government Abbottabad 2001.

by the Provincial Consolidated Fund withoutbeing transferred to the district. These figuresare not included in budgetary estimates orrevised estimates, but will be part of local budg-ets from 2002–03.

DDIISSTTRRIICCTT--LLEEVVEELL RREESSOOUURRCCEEPPOOSSIITTIIOONN

The district government experiences a substan-tial resource gap and is heavily dependent ontransfers from the province. Devolution has cre-ated a mismatch between the fiscal responsibil-ities of the district government and its financialcapacity. While most expenditures have beendevolved to the district level, revenues have notbeen decentralised to the same extent.

Baseline indicators for local revenues show lowgeneration across the board. This situation maynot persist in the long term, since most items listedin Table 1 were central or provincial revenues,and it can be argued that centralised collectionhas led to inefficiency. After devolution, collectionefficiencies may occur, thereby increasing

income. Under the LGO, moreover, a number ofrevenue items may be collected by the districtgovernment. These are listed in Schedule V ofthe Ordinance. Education and health tax, forinstance, will be new levies in this category.

The district government will need to adopt theprocesses laid out in the LGO and pursuantbudget rules that are to be framed by theprovincial government. The mechanisms pre-scribed in the rules should aim to introduce efficiency and transparency in revenue genera-tion. Revenue base surveys are another mech-anism which will need to be incorporated intolocal resource mobilisation efforts. Surveys will provide accurate estimates of revenuebases and help improve the efficiency of exist-ing revenue items.

It is up to the PFC to determine Abbottabad dis-trict’s share of provincial allocations. Thisarrangement, which will form the basis of for-mula-driven fiscal transfers, is likely to serve asa major source of revenue for the district gov-ernment in the foreseeable future. The natureof the award will be important not only in termsof Abbottabad’s share, but also in terms of theincentives and sanctions attached to it. In theshort term, determination of the award is likelyto be based simply on indicators of fiscal need.Comparative performance evaluations of vari-ous districts are not likely to be included in theallocation process. Although local governmentperformance will not be tied in to allocations inthe current fiscal transfer mechanism, the dis-trict government would nevertheless do well toadopt performance-oriented policies, a movethat will yield significant benefits in the longterm.

The fiscal transfer mechanism may not provideincentives for improved performance but alloca-tions may be used by the province to further itsown policy decisions. If SPCS commitments arebrought to bear on the working of the PFC, cre-ating incentives for optimal performance by dis-trict governments, then this leverage may wellserve to further the cause of sustainable devel-opment across the province. Even if this doesnot happen in the short term, the potential exists

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TABLE 3 REVENUES AT THE TEHSIL LEVEL*

Items 2000–01 2001–02

Transfers from province 12.233 15.315Tax on immovable property 7.039 10.076Bus/truck stand fee 6.141 6.329Water rate 4.094 4.528Rent on properties 4.162 4.674Cattle fairs 4.370 5.927Other 10.844 11.551Total 48.883 58.400

* Figures in million rupeesSource: District Government Abbottabad 2001.

TABLE 4 EXPENDITURES AT THE TEHSIL LEVEL*

Items 2000–01 2001–02

Establishment (salaries) 15.758 17.499Commodities and services 9.571 6.356Purchase of durable goods 0.423 0.325Repair of durable goods 0.711 0.447Liabilities 10.312 7.876Liabilities of the district council 000 0.558Total 36.775 33.061

* Figures in million rupeesSource: District Government Abbottabad 2001.

for this mechanism to be used to ensure sustainable development outcomes.

For the future, the PFC will need to developmethods to measure fiscal capacity and per-formance. This is also an area where the SPCScan work in synergy with the ASSD and otherdistrict-level sustainable development initiatives.Because the local government in Abbottabadrelies heavily on provincial fiscal transfers, theprovince can use its policy leverage to affectoutcomes at the district level. The extent towhich this mechanism favours sustainabledevelopment initiatives remains to be seen.

TTOOWWNN--LLEEVVEELL RREESSOOUURRCCEE PPOOSSIITTIIOONN

In comparative terms, the TMAs are better offthan the district government. This is primarilybecause urban property tax has been assignedto the lower tier. What is even more significant isthe intention outlined in the LGO to enlarge thebase of this revenue item to larger areas. TMA-tier resources demonstrate healthy growth inrevenues not only from increased transfers butalso as a result of increasing taxes and charges.These trends are evident in budgets compiledfor the tehsil level (Table 3). Expenditurebetween 2000 and 2002 at the tehsil levelshows that outlays are largely consumed bysalaries (Table 4). This is not in and of itself dan-gerous, since most service delivery is publiclymanaged. Liabilities, however, consume a largechunk of resources as well. Nevertheless, thebudget for 2000–01 indicates a surplus of Rs12.065 million, which increased to Rs 25.339million in 2001–02. This suggests that sufficientresources are available at the TMA level toundertake improvements in service delivery andspatial planning, as long as these funds aremanaged prudently.

FFUUTTUURREE PPRROOSSPPEECCTTSS

The rate at which local revenues grow will be animportant determinant of the degree to whichsustainable development can be pursued.Growth in the Provincial Consolidated Fund hasnot been significant since the 1996 NationalFinance Commission Award. The target for eco-

nomic growth rose to 4% for 2002–03, whichtranslates into a small increase in federal andprovincial revenues. Local governments inAbbottabad will therefore need to focus theirefforts on increasing revenues and achievingefficiency in expenditure. The following mecha-nisms will need to be given attention:■ Surveys should be carried out to chart the

revenue base in various categories, in orderto draw in additional funds and streamlinecollection.

■ In the short term, the fiscal transfer mecha-nism should be used to achieve priority tar-gets for the district, aiming for sustainabledevelopment outcomes. In the long run, thismechanism may be used to support thework of district offices focusing on ASSDimplementation.

■ A provincial grant to support naturalresource management may be created fromprovincial allocations. The grant should pre-scribe eligibility criteria and require perform-ance conformity with predetermined stan-dards, thereby creating incentives for long-term investment in the relevant sectors.

■ Local revenue efficiency should be achievedthrough transparency and by removing dis-cretion in collection mechanisms. User-friendly collection procedures need to be putin place, designed to encourage taxpayersto scrupulously deposit what they owe.

■ The present system of budget preparationneeds to switch to performance-basedbudgeting. For this purpose, sectoral indica-tors should be prepared, and systems anddatabases created to monitor outcomes.These databases must also provide infor-mation on sectoral targets. Performance-based budgeting will engender responsib-ility, accountability and efficiency. To imple-ment the system, the concerned personnelwill need to acquire new skills on a prioritybasis.

■ Transparency and reporting obligationsshould be introduced to ensure free accessto information. This will enable citizens toparticipate in monitoring and help preventinefficient or inappropriate spending.

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23 Resource Mobilisation

ADDITIONAL REVENUEOPTIONS

AABBBBOOTTTTAABBAADD FFUUNNDD FFOORRSSUUSSTTAAIINNAABBLLEE DDEEVVEELLOOPPMMEENNTT

A number of factors create distortions in devel-opment investment. These include prevailingsocial and economic conditions both in theprovince and at the district level, the institution-al regime as it exists and is evolving, disjunc-tures between a time-worn political develop-ment process and the young district govern-ments, and capacity constraints within develop-ment players. Development efforts are likely tobe skewed towards short-term objectives,focusing for instance on sectors such as infra-

structure without a pragmatic or well-defined linkto long-term goals such as poverty alleviation.As a result, while some economic progress maytake place, a backlash in the form of social dis-parities and natural resource degradation canalso be expected. Under these circumstances, adecentralised fund managed at the district levelcan serve as a useful extra-fiscal instrument topromote sustainable development principles.

The ASSD proposes the establishment of anAFSD, which has the potential to ensure thateconomic development can occur in symbiosiswith social equity and ecological improvement.This concept is derived from the LGO, whichrequires district governments to create appropri-ate financial mechanisms and strategies to fundintegrated sustainable development. The idea is

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TTHHEE AABBBBOOTTTTAABBAADD FFUUNNDD FFOORR SSUUSSTTAAIINNAABBLLEE DDEEVVEELLOOPPMMEENNTTIINN TTHHEE LLOOCCAALL FFIISSCCAALL AARRRRAANNGGEEMMEENNTTFFIIGGUURREE 88

Compiled by Khalid Saranjam Khan

Local taxrevenue

Recurrentexpenditure

Debtservicing

Maintenance andrepairment expenditure

Developmentexpenditure

AFSD

Usercharges

Natural resourceroyalties

Other

Fiscaltransfers

Towncouncils

Donors

District Budget

inspired by similar funds created and operatingin other parts of the world. In the local context,the Pakistan Environmental Protection Act 1997provides for the establishment of provincial sus-tainable development funds, and efforts in thisdirection are under way. The NWFP has takenthe lead by establishing the NWFP Fund forSustainable Development.

While district governments across the NWFPare already in the process of assuming fiscalresponsibility, the AFSD will be the first sus-tainable development fund at the district level.Establishing the AFSD will have a number ofadvantages. Besides reforming the districtgovernment’s budgetallocations through dedi-cated funds aimed atinfusing sustainabilityconsiderations intodevelopment pro-grammes and projects,the AFSD will alsoattract resources fromthe NWFP Fund forS u s t a i n a b l eDevelopment and simi-lar funds at the nationallevel. For example, thefederal government hasannounced a policycommitment to establisha national fund, and sim-ilar funds are being setup under various programmes, such as theNational Environment Action Plan. The AFSDwill be instrumental in attract funding from phi-lanthropists and social sector developmentallocations set aside by the corporate sector. Itwill also be able to seek resources from inter-national donors, under their global commit-ments to local-level sustainable developmentenshrined in a variety of agreements and dec-larations such as Local Agenda 21 and theWSSD. Local environmental taxes can belevied for capitalisation of the AFSD, alongwith income from similar provincial taxes. Inaddition, the district budget can contain legalstipulations allocating a certain percentage ofrevenues for the AFSD. The local fiscal

arrangements in which the AFSD may be capitalised are shown in Figure 8.

The AFSD will be managed by an autonomousboard comprising members from within and out-side the government. For the sake of credibility, toensure transparency and encourage contribu-tions from outside agencies, the majority of theboard will consist of individuals from the non-governmental sector. The board will be mandatedto take decisions regarding grants for the pur-pose of supporting sustainable development proj-ects and interventions in the district. Such grantswill be approved through proposals submitted tothe board according to a prescribed format.

DDOONNOORRSS

Donor finance opportunities can be mobilisedthrough the provincial and federal governments.In the short term, building the capacity of dis-trict-level entities will be the top priority. Thesecapacities will, in turn, become a long-termasset for mobilising funding. Avenues of donorfunding which may be available include:■ Agenda 21-related commitments,■ the Organisation for Economic Co-operation

and Development’s NSSD window, ■ UN-MDG commitments,■ multilateral environmental agreement-

related avenues,■ gender-related sources,

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23 Resource Mobilisation

Development priorities are oftenskewed towards short-term objectives,focusing for instance on sectors suchas infrastructure without a pragmaticor well-defined link to long-term goalssuch as poverty alleviation. As a result,while some economic progress maytake place, a backlash in the form ofsocial disparities and natural resourcedegradation can also be expected.

■ poverty-related investment (such as thePoverty Reduction and Growth Facility),and

■ the World Bank ComprehensiveDevelopment Framework Extension.

PPRROOVVIINNCCIIAALL RREESSOOUURRCCEESS

The following sources of provincial funding mayalso be explored:■ SPCS contributions in identified core areas,■ the NWFP Fund for Sustainable

Development, ■ the Tameer-e-Sarhad Programme, and ■ the PRSP programme.

FFEEDDEERRAALL RREESSOOUURRCCEESS

Federal sources of funding include:■ NCS core programmes and related funding

windows,■ the Decentralisation Support Project, and ■ the National Environment Action Plan.

The federal government has also announced itsintention to establish a National EnvironmentFund. This extra-budgetary instrument will pro-vide funds specifically for natural resource man-agement and conservation. The Fund is at pres-ent in an embryonic stage but once it is properlyfunctional it will provide financing for local-levelactivities. The district government can also hopeto access support from this source.

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159Abbottabad Strategy for Sustainable Development

Progress

To ensure that sustainable development takesroot in the district, evaluation of ASSD out-comes is imperative. Actors identified in previ-

ous chapters have an important role to play not onlyin shaping the future path of this strategy but also inguiding development itself.

INDICATORS

The success or failure of the ASSD vision cannot be assessed withouta systematic monitoring process. To this end, the district governmentwill develop indicators to assess progress towards sustainability. Theseindicators will take into account key facets of each sector and will bedesigned to cover all major components of the sustainable develop-ment paradigm, moving beyond purely economic indicators which tendto ignore a variety of critical social and environmental realities. Thisexercise is to be led by the zilla nazim, DCO, and finance and planningoffice, making use of both local and international experience.

Implementation of the ASSD will begin with the preparation of a list ofcomprehensive indicators to provide an accurate picture of the stateof development and natural resources in Abbottabad. In the first

Assessing

phase, the list will include only those indicatorsfor which reliable data can be collected periodi-cally without a great deal of effort. The list willundergo a process of political validation withinthe district itself, to ensure commitment andownership at the highest level.

INSTITUTIONALMECHANISMSThe assessment process will require action atmore than one level and participation from morethan one stakeholder. The first level of monitoringwill take place in each of the sectoral offices, forit is in their interest to assess the outcome of theirprogrammes and measure the impact of theiractivities. At the second level, the three tiers oflocal government will be responsible for assess-ing the working of the grouped offices. To facili-tate the process, internal control mechanisms willbe established. These mechanisms will serve notonly to assess the results of specific programmesbut also to vouch for the evaluation process itself,ensuring that the means adopted conform to theprinciples of sustainable development.

Embedded in the idea of monitoring is theassumption that at some point political changeand programme alterations may be required.Monitoring will be ineffective if it is conducted without the participation of political actors in thedistrict. Following devolution, the hub of politicalactivity at the local level lies within the zilla coun-cil and three town councils. These entities willneed to hold their respective executive authoritiesaccountable, with the law providing for the man-ner in which this accountability is to be conducted.

EDOs and related offices are responsible foracting according to priorities set by their respec-tive councils, some of which translate into budg-etary allocations. Here, performance-basedbudgeting will ensure that primary accountabilityis established. In other words, EDOs and relatedoffices will only be able to seek resource allocations upon demonstrating commensurateperformance. The councils, through monitoringcommittees, will perform a supervisory role.Provided with adequate capacity, these commit-

tees will play a pivotal role in steering the districtin the right direction. Ultimately, the councils’role is to hold the nazim—and, by extension, theentire district administration—accountable. Infulfilling their responsibilities, councils will needto focus on issues pertaining to sustainabledevelopment outcomes rather than individualconstituency interests.

In a parallel process, monitoring mechanismswill also be rooted in civil society. For this pur-pose, the Roundtable will provide an avenue forpublic participation. Public access to data andinformation will be improved by giving theRoundtable a role in monitoring developmentacross the district.

DATA NEEDS

The provincial Bureau of Statistics is not man-dated to collect primary data. Most developmentindicators currently available are based on sec-ondary data compiled by the Bureau. Althoughthese statistics cover a comprehensive range ofsectors, reported figures that form the basis ofthese indicators are seldom if ever validated.For instance, a significant margin of error isreported in Social Action Programme evalua-tions for data from the Education ManagementInformation System and Health ManagementInformation System databases for the province.Similarly, other sectoral statistics are for themost part culled from departmental reportswhich were never validated.

In order to accurately monitor sustainable devel-opment, data needs will be defined. A systematicmethod of data collection through entities such asunion administrations will be put in place, alongwith a system of validation employing authenticstatistical methodology. This internal validation willensure that the local government’s need for evi-dence of outcomes is fulfilled appropriately.Systems established to conduct performance-based budgeting will also yield data for monitoringsustainable development. In addition, the Bureauof Statistics should be entrusted with the task ofvalidating district-generated data, and mandatedto collect primary data for some indicators.

160 Abbottabad Strategy for Sustainable Development

24 Assessing Progress

FREQUENCY OFASSESSMENTAssessments will be carried out at frequentintervals, preferably to coincide with annualdecision making, particularly the budget cycle.Reports will be generated before the budgetaryprocess gets under way to provide informationfor decision makers. Other periodic reports maybe generated on specific subjects as part of theimplementation of the ASSD.

RESPONSIBILITY ANDREPORTINGThe district government will assign responsi-bility for reporting on the basis of assessments.

This reporting will be internal for the nazim andzilla council, as well external for the people of Abbottabad. All offices will be required tosubmit annual reports related to their sectoralmandates. By combining all sectoral reportsand performing cross-sectoral syntheses, anannual ‘state of sustainable development’report will be published. Along with reportingobligations, freedom of access to informationwill be guaranteed.

Within each tier of local government, variousresponsibilities and reporting obligations will becreated. These will operate at the level of theEDO Finance and Planning, sectoral EDOs andoffice heads of the TMAs. Responsibility forcoordination and steering the process will liewith the DCO.

161Abbottabad Strategy for Sustainable Development

24Assessing Progress

SSTTRRAATTEEGGYY IIMMPPLLEEMMEENNTTAATTIIOONN,, MMOONNIITTOORRIINNGG AANNDD RREEVVIIEEWWFFIIGGUURREE 99

Compiled by Khalid Saranjam Khan

Plans

Programmes

Projects

PeriodicReview

Abbottabad Strategy forSustainable Development

Outcomes

Monitoring andEvaluation,Indicators,Reporting

Implementation through:● district government● town and union administrations● citizen community boards● non-governmental organisations● village and neighbourhood councils● private sector

TRANSLATINGASSSESSMENTS INTO FUTURE TARGETS

The ASSD itself and the system of progressassessment through annual reporting can only berelevant to future planning processes if theyreflect the aspirations of all stakeholders. For thispurpose, progress assessments will be widelycommunicated to all stakeholders. This communi-

cation will be designed and undertaken with theinvolvement of elected representatives and civilsociety organisations as well as the finance andplanning office, which will serve as the institutionalhome of the process. Based on the lessonslearned from these documents, future priorities as they emerge will be taken up by specific programmes and projects under the umbrella ofthe Annual Development Programme, while ongoing programmes and civil society initiativeswill be reoriented (Figure 9).

162 Abbottabad Strategy for Sustainable Development

24 Assessing Progress

NWFP Local GovernmentOrdinance 2001

Bibliography

Map of Abbottabad

Annexes

NWFP LOCAL GOVERNMENT ORDINANCE 2001

LLEEGGIISSLLAATTIIOONN TTOO BBEE FFRRAAMMEEDD UUNNDDEERR TTHHEE OORRDDIINNAANNCCEE

Rules to be Framed by the Provincial Government1. Local government (conduct of elections)2. Local government (conduct of business of the local councils)3. Local government (taxation)4. Local government (servants)5. Local government (budget and accounts)6. Local government (contracts)7. Local government (works)8. Local government (development authorities)9. Local government (regulation of site development schemes)10. Local government (forestry excluding guzara forests, protected forests and watershed

management)11. Local government (monitoring)12. Local government (provision of information and transparency)13. Local government (internal audit)14. Local government (employee bonuses and incentives)15. Local government (public-private partnership)16. Local government (conduct of inspections)17. Local government (conduct of elected officials)18. Any other rules deemed necessary for implementation of the Ordinance

By-Laws to be Framed by the District Government1. Conduct of meetings2. Registration of births, deaths and marriages3. Zoning, master planning and buildings4. Dangerous buildings and structures5. Prevention of encroachment6. Local government (elected officials’ remuneration and allowances)7. Local government (agricultural development)8. Local government (community development)9. Local government (citizen community boards)10. Registration of sale and control of cattle and animals11. Registration, management and regulation of orphanages, widows’ homes, senior citizens’

homes, homes for the mentally ill and women’s shelters12. Regulation of burial and cremation places13. Slaughter of animals and maintenance of slaughterhouses14. Prevention of adulteration of foodstuffs15. Animal husbandry and milk supply16. Prevention and abatement of nuisance17. Dangerous and offensive trades and articles18. Regulation of traffic19. Organisation and regulation of fairs, shows, tournaments and other public gatherings20. Prevention of begging, juvenile delinquency and other social evils21. Licensing22. Markets

166 Abbottabad Strategy for Sustainable Development

Annex 1: NWFP Local Government Ordinance 2001

23. Libraries24. Parks and open places25. Prevention of air, water, noise, and soil pollution26. Forests and plantations27. Local government property28. Farm produce markets29. Delegation of powers, duties and functions of farm produce market sub-committees30. Encroachment on public roads, public streets and public places31. Picketing, tethering animals, and parking carts or vehicles in the street32. Throwing or placing refuse in a street, or in any place not specifically appointed for the purpose33. Dyeing or tanning animal skins34. Tampering with mains, pipelines, apparatus or appliances for water supply35. Excavation of earth, stone or any other material36. Disposing of animal carcasses 37. Use of sewer water for farming38. Effluent or drains emptying into a street, public place or irrigation channel, or into a sewer or

drain that has not been set apart for the purpose39. Fixing bills, notices, placards, or other paper or means of advertisement against or upon any

building or place other than the places designated by the local government40. Setting up wooden shacks, plying handcarts for the sale of goods, and temporary or perma-

nent shops or extensions thereof on footpaths or streets41. Pollution of air, water or soil42. Watering cattle or animals, and bathing or washing at or near a well or other public source of

drinking water 43. Other matters the zilla council deems necessary or expedient

LLEEVVIIEESS AAUUTTHHOORRIISSEEDD UUNNDDEERR TTHHEE OORRDDIINNAANNCCEE

Zilla Council1. Education tax2. Health tax3. Tax on vehicles other than motor vehicles4. Any other tax authorised by the government5. Local rate on lands subject to land revenue6. Fees for schools, colleges and health facilities established or maintained by the district government7. Fees for licences granted by the district government8. Fees for specific services rendered by the district government9. Collection charges for recovery of tax on behalf of the government 10. Tolls on new roads and bridges within the limits of a district, other than national and provincial

roads and highways

Town Council1. Local tax on services2. Tax on the transfer of immovable property3. Property tax on the annual rental value of buildings and land4. Fee for advertisements (other than on radio and television) and billboards5. Fee for fairs, agricultural shows, cattle fairs, industrial exhibitions, tournaments and other

public events6. Fee for approval of building plans and construction or reconstruction of buildings7. Fee for licenses or permits and penalties or fines for violation of licensing rules

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8. Charges for provision and maintenance of public utilities such as lighting, drainage, conservan-cy and water supply

9. Fee for cinemas, theatrical shows and other entertainment10. Collection charges for the recovery of any tax on behalf of the government, district government,

union administration or any statutory authority

Union Council1. Fees for licensing of professions and vocations 2. Fee on the sale of animals in cattle markets3. Market fees4. Fees for certification of births, marriages and deaths5. Charges for specific services rendered by the union council 6. Rate for the remuneration of village and neighbourhood guards7. Rate for provision or maintenance of public utilities such as lighting, drainage, conservancy and

water supply

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BIBLIOGRAPHY

Asian Development Bank (ADB). 2002. A Study on the Implementation Status of WomenEmployment Quotas. Islamabad: ADB.

Dalal-Clayton, Barry and Stephen Bass. 2002. Recent Progress and New Thinking on Strategies forSustainable Development. London: International Institute for Environment and Development.

District Accounts Office. 2000. Receipts and Expenditures 1999–2000, District Accounts Office,District Abbottabad.

District Government Abbottabad. 2001. Budget Estimates 2001–02. Finance and PlanningDepartment, District Government Abbottabad.

Government of the NWFP (GoNWFP). 1992. A Survey on Solid Waste Data of Municipal Committeesof NWFP. Peshawar: NWFP Environmental Protection Agency.

GoNWFP and IUCN. 1996. Sarhad Provincial Conservation Strategy. Peshawar: IUCN.

Government of Pakistan (GoP). 2001. Interim-Poverty Reduction Strategy Paper. Islamabad: PRSPSecretariat, Ministry of Finance.

——— . 2003. Poverty Reduction Strategy Paper. Islamabad: PRSP Secretariat, Ministry of Finance.

GoP and IUCN. 1992. The Pakistan National Conservation Strategy. Karachi: IUCN Pakistan andGovernment of Pakistan.

Hanson, Arthur J., Stephen Bass, Aziz Bouzaher and Ghulam M. Samdani with the assistance ofMaheen Zehra. 2000. Pakistan’s National Conservation Strategy: Renewing Commitment toAction. Report of the Mid-Term Review.

IUCN, United Nations Environment Programme and World Wide Fund for Nature. 1980. The WorldConservation Strategy: Living Resource Conservation for Sustainable Development. Gland,Switzerland: IUCN.

Khan, Haroon Ayub. 2000. A Review of Provincial and District Conservation Strategies. NCS-MTRstudy prepared for the Ministry of Environment, Local Government and Rural Development.Islamabad: GoP.

Kreditanstalt für Wiederaufbau (KfW). 2000. Provincial Forest Resource Inventory. Peshawar. Draftfinal report.

Multi-Donor Support Unit (MSU). 2000. District Population Profile: Operationalising and InterpretingPopulation Census Data for Planning (NWFP). Islamabad: GoP.

Organisation for Economic Co-operation and Development (OECD). 1996. Shaping the 21st Century:The Contribution of Development Cooperation. Paris: OECD.

——— . 2001. Strategies for Sustainable Development: Practical Guidance for DevelopmentCooperation. Paris: OECD.

Roberts, T. J. 1977. The Mammals of Pakistan. London: Ernest Benn.

SUNGI Development Foundation. 2000. SUNGI Baseline Report 1998. Abbottabad: Research,Monitoring and Evaluation Programme, SUNGI Development Foundation.

Swiss Agency for Development and Cooperation (SDC). 2000. Lessons Learnt from SDC experiencein the Management of Natural Resources and Biodiversity—A Case Study. Peshawar

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Annex 2: Bibliography

United Nations (UN). 1979. Convention on the Elimination of All Forms of Discrimination AgainstWomen. New York: UN.

———. 1992a. Agenda 21: The United Nations Programme of Action from Rio. New York: UNDepartment of Public Information.

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——— . 2000. Millennium Development Goals. United Nations Millennium Summit. New York: UN.

——— . 2002. Report of the Commission on Sustainable Development acting as the preparatorycommittee for the World Summit on Sustainable Development. Fourth session (27 May–7June 2002). New York: UN.

UN, OECD, International Monetary Fund and World Bank. 2000. A Better World for All—ProgressTowards the International Development Goals. Washington DC: CommunicationDevelopment with UK partners, Grundy & Northedge, London.

World Bank (WB). 2000. World Development Indicators. Washington DC: WB.

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SECTOR PAPERS

Title Author

Agriculture and Horticulture Sardar Taimur Hayat Khan

Biodiversity, Parks and Protected Areas Saeed-uz-Zaman

Culture Lt. Col (R) Asif Ali Shah

Drinking Water Tahir Azeem

Ecotourism Brig. (R) Jan Nadir Khan

Education Dr. Muhammad Iqbal

Energy Dr. Habib Gul

Enterprise Development Zahid Elahi

Fisheries Khalid Khan

Forests and Watersheds Shabir Hussain

Gender and Environment Dr. Tanzeela Agha

Grazing Lands and Fodder Reserves Dr. Rafiq

Health and Population Shafiullah Khan

Infrastructure: Roads and Communications Engr. Behramand Khan

Livestock and Poultry Dr. Mira Khan

Mining Dr. Mansoor

Waste Water and Solid Waste Management Dr. Abdul Haye

MAP OF ABBOTTABAD

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Annex 3: Map of Abbottabad

R E F E R E N C E S