FATA Sustainable Development Plan

SustainabIe
DeveIopment PIan

FATA
ii
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200 FATA 3u3TAlNA8LE 0EvEL0PVENT PLANE (2002015)
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perr|ss|or.
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FATA)
Acronyms and Abbreviations v
Glossary vii
Preface ix
Executive Summary xi
ntroduction xix
1. The Federally Administered Tribal Areas: An Overview 3
2. The FATA Sustainable Development Plan: 15
Strategic Framework
3. Education 23
4. Health 37
5. Water Supply and Sanitation 45
6. Rural Development 51
7. Agriculture 57
8. Livestock and Poultry 65
9. Forestry 73
10. Fisheries 79
11. rrigation, Water Management and Power 87
12. Roads and Bridges 93
13. Physical Planning and Housing 97
14. ndustry 103
15. Mining 109
16. Commerce and Trade 115
17. Tourism 119
Background and Strategic Framework
Human Development Sectors
Natural Resource-Based Sectors
Communications and nfrastructure Sectors
Economic Development Sectors
Part
Part
Part
Part 7
Part 7
CDNTENTS
iii
18. Skills Development 123
19. Cross-Cutting nitiatives 131
20. Development Context 137
21. mplementation and Monitoring 143
References 149
Annex 1: Public Consultations 157
Annex 2: Map of FATA 161
Part 7
mplementation Framework
CDNTENTS
iv
v
ACPDNY|S AN0
A88PE7ATDNS
ADB Asian Development Bank
ADP Annual Development Programme
AAEO assistant agency education officer
AEO agency education officer
BEd Bachelor of Education
DCom Diploma in Commerce
DERA Drought Emergency Relief Assistance
DFD Department for nternational Development
EMC education monitoring committee
EMS education management information system
ESRA Education Sector Reform Assistance
FATA Federally Administered Tribal Areas
FDA FATA Development Authority
FR Frontier Region
FRDP FATA Rural Development Project
GCMS government college of management sciences
GDP gross domestic product
GoNWFP Government of the North West Frontier Province
GoP Government of Pakistan
GT government technical institute
GTZ Deutsche Gesellschaft fr Technische
Zusammenarbeit
HV Human mmunodeficiency Virus
HMS health management information system
UCN The World Conservation Union
kW kilowatt
NEAS National Education Assessment System
NWFP North West Frontier Province
PC-1 Planning Commission Pro Forma 1
PSDP Pubic Sector Development Programme
FATA SUSTANA8LE 0E7ELDP|ENT PLAN 2006 2015
SDP Sustainable Development Plan
SFDP South FATA Development Project
SMC school management council
SMEDA Small and Medium Enterprise Development
Authority
SoP Survey of Pakistan
SPDP Sustainable Plains Development Programme
UNESCO United Nations Educational, Scientific and Cultural
Organization
USAD United States Agency for nternational Development
WB World Bank
WEF World Education Forum
WSDC women's skills development centre
WTO World Trade Organization
ACPDNYhS AN0 APEVIATIDNS
vi
vii
chilghoza pine nut (Pinus gerardiana)
hujra meeting place; area set aside to entertain visitors
jirga council of elders; quasi-judicial mechanism for con-
flict resolution
karez underground irrigation channel; part of a traditional
irrigation system consisting of a series of wells and
connect i ng channel s, usi ng gr avi t y t o br i ng
groundwater to the surface
katchi local term for kindergarten; all government primary
schools begin with a katchi class
khwar wide, seasonal watercourse; occasionally, khwars
carry water throughout the year
madrassa slamic religious school
malik chief; also a representative of the tribe
maliki system of patronage devised during British colonial
rule, under which the local chief (malik) served as an
intermediary between members of his tribe and the
colonial administration in exchange for a regular
allowance
mazri Mazari palm (Nannorhops ritchieana)
pardah literally, veil; the practice of being veiled
qaumi tribal land held in common; another name for
land shami l at ( t he t er m ' qaum' l i t er al l y means
'nation')
settled non-tribal areas; usually refers to districts bordering
areas FATA
shamilat common lands; also a customary system of collective
land ownership
Shariah slamic law
tehsil administrative subdivision
* Terms that appear in the text on more than one occasion have been listed in the glossary.
All other terms are explained in the text.
CLDSSAPY*
PPEFACE
T
he Federally Administered Tribal Areas (FATA) and
neighbouring Afghanistan are generally perceived to
have an uncanny tendency for courting strife. Conjuring
up romantic images of tribesmen living on the edge,
FATA has never failed to find mention in the words of writers
and travellers in awe of its freedom-loving people. Today,
however, it is mentioned for all the wrong reasons.
FATA has remained in the eye of the storm since the turbulent
Cold War years. Owing to its geo-strategic location, the region
became a playground for rival forces vying to extend their
sphere of influence. As soon as the Red Army retreated from
Afghanistan, FATA faded into oblivion. t bounced right back into
the global consciousness after 9/11, once again as a flashpoint
with security implications for the region and beyond.
The strife that keeps FATA simmering has various dimensions
but its roots lie in the government's hands-off policy towards the
tribal areas. Traditionally, the interest of decision makers has
been limited to maintaining the status quo in the volatile tribal
agencies. Failure to come up with a clear vision for integrated
development in FATA, as a sustainable solution to all that
troubles the region, has kept the people marginalised and
impoverished. n this opportunity-vacuum, tribesmen have been
left to their own devices, vulnerable to exploitation at the hands
of criminal and extremist elements from within and outside.
ix
Short-sighted and piecemeal development plans, benefiting select tribal elites rather than the
common man, have failed to integrate FATA into the national mainstream. There exists a
gaping development lag in the tribal agencies that keeps these areas in a perpetual state of
poverty, conflict and isolation. Decision makers can, however, no longer afford to remain
indifferent to the development of the area. An integrated and sustainable development
strategy is badly needed to put FATA on the path to peace and prosperity along with the rest
of the country.
The FATA Sustainable Development Plan (SDP) couldn't have come at a better time. t is an
attempt to devise a coherent and practical framework to address the basic needs of the
people of the tribal areas. At its heart are issues crucial to the region and to the everyday
lives of the people: the provision of infrastructure, ensuring sustainable livelihoods, building
local capacities and generating economic activity.
The SDP marks a departure from the usual development plans hatched at a safe distance
and imposed as ready solutions to deep-rooted problems. t recognises the significance and
importance of local wisdom and a participatory orientation for any development strategy to
work in the region. The SDP's people-centred approach is its greatest strength. Through an
exhaustive process of interactive workshops, the problems of the tribal areas and the
solutions sought by tribesmen were discussed and incorporated into the plan. This effort is
not only a nod to the oft-neglected matter of local participation in development activity but
also ensures greater buy-in from tribesmen who now own the SDP as something to which
they have contributed.
An ambitious plan, the SDP was too great a task to undertake single-handedly. To do justice
to its scope, the input and capacities of multi-faceted development actors were required. The
Civil Secretariat FATA entered into a strategic partnership with the World Conservation Union
(UCN) and a host of other partners, most notably the United States Agency for nternational
Development (USAD), United Kingdom Department for nternational Development (DFD) and
nternational Medical Corps (MC) as well as the Government of Pakistan's Small and Medium
Enterprise Development Authority (SMEDA). Without their valuable advice and active
participation in shaping the SDP, a comprehensive document addressing the key challenges
of the region would not have been possible. The core team from the Civil Secretariat FATA,
which was instrumental in compiling the strategy, also deserves special mention.
While it is crucial to have a wide-ranging and practicable plan for a region as challenging as
the tribal areas, the SDP, if not implemented earnestly, runs the risk of being reduced to a
half-hearted effort no different from ad hoc development initiatives of the past. Without the
availability of resources, and without building the capacity of the government and private
sector to implement the SDP on a firm footing, it will be difficult to achieve all that the SDP
sets out to do. That, in the end, will determine if FATA can reclaim a favourable, positive
association in our imaginations and, indeed, in the minds of the global community.
JAVED IQBAL
Additional Chief Secretary
Civil Secretariat FATA
PPEFACE
x
S
ituated midway along Pakistan's border with Afghanistan
is a wedge of rugged terrain, dotted with sparsely
populated valleys, home to a dozen Pakhtun tribes and
hundreds of clans and sub-tribes. This mountainous
land, known as the Federally Administered Tribal Areas (FATA),
is made up of seven 'political agencies' and six smaller zones,
called 'frontier regions', which separate the tribal agencies from
the rest of the country. On three sides, FATA is bounded by the
'settled' provinces of Pakistan. The Durand Line forms its
western border.
n the 19th century, the area held great strategic importance,
serving as a buffer between the British colonial government of
ndia and Tsarist Russia. More than a hundred years later, the
region has been thrust onto the world political stage once again
for reasons of global security. What has not received the same
degree of attention, both at home and in the international arena,
is the fact that FATA is amongst the most poorly developed parts
of Pakistan.
Starting with the 1979 Soviet invasion of Afghanistan, the last
three decades have seen turmoil and instability across the
border spill over into FATA. During the same period, FATA has
remained one of the most insular and isolated corners of the
EXECUT7E
SU||APY
xi
country, cut off from the mainstream of Pakistani society. ts people have seen few of the
benefits of development activities launched in their own area and have failed to share in the
progress achieved elsewhere in the country. ncreasingly impoverished and marginalised, they
have also become vulnerable to exploitation at the hands of criminal and extremist elements.
Poor planning and skewed development priorities are at least partly to blame, coupled with
the administrative arrangements that prevail in the area. FATA is part of Pakistan but enjoys a
unique status under the Constitution. The area is administered directly by the Governor of the
North West Frontier Province (NWFP) in his capacity as an agent to the President of
Pakistan. Laws in force elsewhere in the country do not apply here unless specifically
extended by presidential order. Judicial proceedings are conducted and decided by a tribal
council under a procedural law that has little in common with the criminal and civil codes in
force throughout the rest of Pakistan.
Development, meanwhile, has been carried out in a compartmentalised fashion, concentrating
narrowly around specific sectoral activities. This ad hoc approach has been largely to the
benefit of local elites, while depriving large segments of the population from economic
empowerment and social uplift. mpact and sustainability have been noticeably absent in
nearly every project implemented in the tribal areas. As such it is not surprising that, across
the board, development indicators for FATA lag far behind those for the rest of the country.
FATA is one of the most underdeveloped regions of Pakistan. ts people are poorly educated,
lack access to adequate health care, and are deprived of basic facilities such as sanitation
and potable water. The vast majority of the population resides in rural areas, where the
economy is based on agriculture and the subsistence-level use of natural resources. Here,
agricultural production is low and natural resources are severely depleted. Commerce and
industry provide jobs to many of FATA's residents but these sectors operate on a small scale
and cannot absorb more than a limited share of the working population. The workforce is
largely unskilled, further hindering commercial and industrial expansion. nfrastructure,
meanwhile, is thin on the ground, not only affecting commerce and industry but also depriving
the population of access to health care and education.
Only 17 per cent of the overall population is literate. Among women, meanwhile, literacy is as
low as 3 per cent. FATA has a large number of small schools, some accommodating as few
as 65 students, and most with an average of between one and three teachers. Official data is
suspect, however, since many school buildings are used for other purposes, including to run
businesses, and many teachers collect their salaries but do not report to work. Teaching
techniques are traditional and corporal punishment is common. Less than 40 per cent of all
children are enrolled in education from the primary to higher-secondary level but just 21 per
cent of all girls are in school. While overall enrolment is low, drop-out rates are high, with
more than half of all children who begin primary school leaving before they complete Class V
(GoNWFP, 2005a; GoP, 1998a).
For both boys and girls, factors that deter primary enrolment and discourage continuation into
secondary schooling include poverty, the perceived low economic impact of schooling and an
insufficient number of schools where they are most needed. Among girls, enrolment is
affected by the shortage of girls' schools and female teachers, as well as social factors such
as early marriage, cultural taboos and tribal enmities that make travel hazardous. Poverty
also affects girls more severely, since poorer families who may be able to invest in some
The Context
Human DeveIopment, QuaIity of Life
EXECUTIVE SUhhAPY
xii
education for their children will invariably award priority to sons. As a result, few young
women progress to the point where they are able to pursue higher education, leaving FATA
with insufficient numbers of women to become secondary teachers or provide other
professional and technical services, especially in such sectors as health care which require
female service delivery. f girls are at a disadvantage when it comes to education, children
with special needs are marginalised completely. There is no provision in FATA for the formal
schooling of special-needs children, and no training for teachers to work with such pupils.
Health indicators for FATA are equally disappointing, with just one health facility for every 50
square kilometres of area serving a large clientele which, in the porous border regions, also
includes those who reside on the Afghan side of the Durand Line. Although there are no
private hospitals, services are offered by private practitioners including unregistered doctors,
local prayer leaders and faith healers. Communicable diseases are prevalent, with the added
risk of widespread HV infection and a growing problem with drug addiction. Counterfeit and
substandard pharmaceutical drugs are widely available. Access to reproductive health care is
curtailed by cultural norms which restrict the movement of women in the public sphere and
prevent them from consulting male health care providers. These limitations are compounded
by the fact that modern health care practices (institutional delivery, neonatal care) are not
widely accepted. As a result, infant mortality is estimated to be high, at 87 deaths per 1,000
live births, while maternal mortality is thought to be greater than 600 deaths per 100,000 live
births (FATA Directorate of Health, 2006; GoNWFP, 2005a).
Other development indicators paint a similarly dismal picture of basic services. Official
records show that 56 per cent of the population is supplied with drinking water but less than
a third of this supply is in the form of individual connections to households. n many rural
areas, women are required to travel long distances, in some cases up to 2 kilometres, to
fetch water. Sanitation facilities are even less widely available and more difficult to assess.
Overall, it appears that just 10 per cent of the population has access to adequate sanitation
in the form of toilets, sewerage, drainage and solid waste disposal. Results from 1998 show
that 37 per cent of houses in FATA have "separate latrines while 56 per cent have no
latrines at all (GoNWFP, 2005a; GoP, 1998a).
The vast majority of the population (97 per cent) resides in rural areas. Nearly 60 per cent of
all houses are built of unbaked brick, earth, wood or bamboo. Cemented houses account for
just 36 per cent of the total, while roofing for nearly 87 per cent of all homes is made of
wood or bamboo. Less than 62 per cent of houses are supplied with electricity, which is used
for lighting. Fuel for cooking comes primarily in the form of wood: 92 per cent of all
households use wood-burning stoves and barely 2 per cent have access to natural gas
(GoNWFP, 2005a; GOP, 1998a).
There are few livelihood opportunities for people. The rural economy is chiefly pastoral, with
agriculture practised in a few fertile valleys. Most households are engaged in primary-level
subsistence agriculture and livestock rearing. Some are involved in business and trading, or
find employment in the small-scale commercial and industrial sectors. Those unable to earn a
living at home migrate to other parts of the country or travel abroad in search of work.
Women take active part in agricultural activities, collect fuel wood and fetch water, in addition
to attending to household work and family duties.
Small landholders make up the majority of farmers and engage in agriculture mainly at the
subsistence level, characterised by the underutilisation of land, poor productivity and risk-
averse behaviour. Only 7 per cent of the total geographic area of FATA is cultivated, with
another 1 per cent recorded as fallow, accounting for roughly half of all potentially cultivable
LiveIihoods
EXECUTIVE SUhhAPY
xiii
land. Some 44 per cent of agricultural land is under irrigation, while the remaining farms rely
exclusively on rainfall. Water for irrigation is provided through a combination of delivery
systems, including tube wells, dug wells, lift pumps, surface irrigation networks and traditional
community-built canals (GoNWFP, 2005a). n some areas, however, entire irrigation systems
have ceased to function.
Cropping intensity has fallen over the last four years, with only a small fraction of farmland
producing more than one crop a year. Overall production and per-hectare yields in FATA
compare poorly to figures for the country as a whole. While yields per hectare for rice and
maize are slightly lower than national figures, the yield per hectare for wheat in FATA is just
38 per cent of the national average (GoNWFP, 2005a; GoP, 2006). Wheat production falls far
short of local needs and the deficit is imported from other parts of the country or abroad.
Poppy is still cultivated in some parts of FATA and remains a major source of income for
farmers in remote areas.
Livestock and poultry are an essential component of the rural economy, providing income
support for most farm households. Keeping livestock also serves as a buffer in times of
hardship. f crops fail, animals can be killed and consumed or sold in the market. The size of
the herd depends on the household's capacity to purchase animal feed in the winter and
spring months, when natural fodder is thin on the ground. Feed shortages, coupled with poor
veterinary coverage, have left animals malnourished and susceptible to parasites and
disease. Some 4.9 million ruminants and 6.7 million birds are being reared across FATA
(GoNWFP, 2005a; GoP, 1996), in addition to livestock belonging to Afghan refugees and
nomads. Limited fish farming is practised mainly at the household level on wasteland and
marginal lands.
Commerce and trade form a major source of livelihood in the tribal areas, second only to
agriculture. The majority of this activity is in the form of wholesale and retail trade in
consumer goods and consumer durables, clearance and transportation services, warehousing,
hotels and restaurants, used vehicle spare parts, vehicles, and small-scale commercial
establishments providing auxiliary services. Historically, and particularly during the 1980s, the
region was a major centre for opium production and trafficking. Today, the transit trade with
Afghanistan provides employment for the local population. The idea of long-term investment
with slow but steady returns is not part of the business culture. t is partly for this reason that
industrial development has failed to take off.
ndustrial activity is restricted primarily to small, owner-financed units, operating without
government oversight. These include stone processing, textile weaving, furniture manufacture
and light engineering units producing firearms. t is estimated that some 10,000 workers are
currently employed in the industrial sector. With the exception of those engaged in weapons
and furniture manufacture, most local workers are unskilled. Some mineral extraction is taking
place in various agencies, using outdated technology and antiquated methods. Significant
reserves of minerals and commercially valuable stone remain unexplored.
With few industries and only limited unorganised mining, unemployment and under-
employment are high. Many seek employment as short-term unskilled labourers or enlist in
the local security and paramilitary forces. Those who are able to travel find work in cities
across Pakistan as well as in the Middle East, using their earnings to support families at
home. The more highly qualified among them have in many cases migrated permanently with
their families. They and their children are reluctant to return to the tribal areas, leading
among other things to an acute shortage of doctors, teachers and skilled workers generally,
and in particular to a dearth of qualified female teachers and doctors.
The local economy operates on an informal basis and is undocumented, since few laws
providing for the regulation of economic activity have been extended to FATA (Ali, 2003).
EXECUTIVE SUhhAPY
xiv
Access to financing is also restricted by State Bank of Pakistan rules prohibiting banks from
extending credit to people in the tribal areas.
Poverty has to some extent made the population vulnerable to extremist tendencies and
criminality. n the absence of viable options to earn a living, the lure of illicit activities such as
smuggling (consumer goods, weapons) and drug trafficking is as difficult to resist as the call
of extremist elements.
n many parts of the world, development has put excessive pressure on the environment.
ndustrial pollution, toxic waste, and the indiscriminate use of fertiliser and pesticides, are but
a few of the hazards that accompany progress in any society. Land becomes degraded, water
unsafe, and the sky dark with smog. Although FATA lags far behind the rest of the country on
this count, it has not altogether escaped the ill-effects of environmental degradation.
Forests are an integral part of the rural economy, playing a significant role in local livelihoods
particularly in the mountainous regions. Forests meet the fuel, fodder and timber
requirements of the rural population, besides providing critical ecological services. Forests
create jobs, particularly in operations such as felling, transportation, saw mills and sale
depots. Commercial undertakings as diverse as charcoal kilns and furniture factories also rely
on forest resources. At the subsistence level, the collection and sale of medicinal plants, work
generally done by women, helps provide much-needed income support for poorer households.
Figures for forest cover in FATA are unreliable, ranging from 1 per cent to 8 per cent of the
total reported area (GoNWFP, 2005a; FATA Directorate of Forests). What is clear, however, is
that forest cover is declining rapidly as a result of timber extraction (legally, for local use and
sale, and illegally for export to areas outside FATA), prolonged periods of drought,
uncontrolled grazing, and pressure from fuel wood and fodder collection. The gap between
production and use is widening, and current levels of extraction are unsustainable. Over-
exploitation has also affected the natural regenerative capacity of forests.
With forest resources rapidly disappearing, the environmental services provided by natural
ecosystems have also diminished. The water retention capacity of the soil has fallen, the area
suffers from flash floods, and the quality and quantity of fodder has been affected.
Rangeland and pasture areas are in a depleted state, partly from overgrazing but also
because of extended periods of drought. n the past, ruminants belonging to Afghan refugees
are thought to have added to the problem. Although use by refugees is reported to have
decreased in recent years, range resources will require considerable time to recover.
Land erosion is a serious concern as well, with denuded hills unable to retain soil or water.
Erosion increases the incidence of flash floods which wipe away crops, farmland and valuable
infrastructure, while low water retention has led to a drawing down of the water table,
creating scarcity where none existed a few generations ago.
For the growing population of the tribal areas, it is today becoming increasingly difficult to
obtain water in sufficient quantities to irrigate crops and meet domestic requirements. The dry
spell FATA has been experiencing for the last eight or nine years has severely depleted water
resources. The effects vary from place to place but are clearly visible in some areas where
surface sources carry very little water or have dried up completely. Elsewhere, the water
table has fallen by several feet.
An overall deterioration in the health of freshwater ecosystems has also been witnessed,
caused in large part by insufficient conservation measures. Fisheries resources have been
affected, with natural populations of fish declining in rivers and streams.
NaturaI Resources
EXECUTIVE SUhhAPY
xv
Infrastructure
Society and CuIture
StructuraI Constraints
By 1998, electricity supply covered some 62 per cent of households in FATA (GoP, 1998a).
Power is also supplied to a large number of commercial and industrial operations. While
coverage is encouraging, low voltage and prolonged breakdowns are a serious concern, cited
as one of the reasons why industrial and commercial development has remained sluggish.
A similar problem exists in the case of communications infrastructure, despite the fact that
this sector has traditionally accounted for a large proportion of development spending. Road
density in FATA is low, at 0.17 kilometres per square kilometre of area, compared to the
national average of 0.26 kilometres (GoNWFP, 2005a; GoP, 1998a). n the absence of a
comprehensive roads network, access to a wide range of services and facilities is restricted.
Marketing agricultural produce is a challenge and raw materials are not easily available,
making it unfeasible to set up industries. Heath care and education are affected as well,
since schools and hospitals are rarely built in remote areas. naccessibility also creates
human insecurity, and makes the job of law enforcement more difficult.
The population is divided along the lines of traditional clan and tribe loyalties. The people are
accustomed to managing their own affairs without outside interference. The malik (chief)
serves as an intermediary between his tribe and the political administration, while the tribal
jirga (council of elders) enjoys widespread legitimacy as a traditional mechanism for conflict
resolution. The jirga may also mete out punishment to offenders.
But for many people, belonging to a tribe or clan is not simply a question of identity.
Ownership of natural resources is also determined according to clan or tribe, with each group
controlling resources within its own area and making decisions about management and use.
Membership in the tribe is therefore essential for access to resources. For poorer segments
of the population, moreover, membership in and protection of the tribe is often the only safety
net that is available. This is perhaps one reason why the tribal social structure has survived
for so many centuries and continues to exert its influence on the lives of the people today.
Tribal society is dominated by men. Cultural tradition, social practices and low literacy have
left women in a vulnerable position. Women are for the most part restricted to performing
household work, and are excluded from decision-making both on the domestic front and at
the community level. Their access to education and health care is limited in part because
such services are not available close to home but that is not the only reason.
Within conservative tribal society, there is strong resistance to change among some quarters.
Many fail to see the importance of education (especially for girls), health care (especially for
mothers), women's rights and environmental conservation. Members of the elite may be more
worldly, but resist change nonetheless. n many cases, tribal elites manipulate the common
people, while enmities spanning generations and sporadic disputes of more recent origin
disturb everyday life.
The structure of tribal society and the strong customary tradition of resource management are
helpful in the execution of certain types of projects. For most development activities, however,
the tribal structure is a hindrance since it shifts the focus onto clan interests rather than the
good of the community as a whole.
Certain issues are common to all development sectors. The most immediate concern in this
EXECUTIVE SUhhAPY
xvi
regard is the absence of reliable statistical data. Figures available from various official
sources are often unreliable and frequently contradictory, making it impossible to accurately
gauge the situation on the ground or carry out meaningful planning. Decision making is driven
by vested interests and subject to political interference. There is little transparency or
accountability in the implementation of development schemes, and checks and balances are
missing. There is limited conceptual and technical capacity within government departments,
with most offices unable to achieve their development targets. Other structural constraints are
more deep-rooted, with far-reaching consequences for development in the tribal areas.
The tribal agencies are administered through political agents who serve as intermediaries
between the government and the people. A limited form of local self-governance is in place
but FATA remains excluded from the legislative regime in force throughout the rest of the
Pakistan. nstead, the tribal areas are governed primarily through the archaic Frontier Crimes
Regulation 1901, a procedural law distinct from the criminal and civil codes operative
elsewhere in the country.
Among other things, this unique arrangement creates a number of problems on the ground in
a variety of development sectors. t is difficult to regulate services and inputs in the health
care, agriculture and livestock sectors, particularly when it comes to spurious pharmaceutical
drugs, and substandard fertilisers and pesticides. Managing natural resources effectively is
impossible without a robust legal regulatory framework, and it is difficult to secure the rights
of individuals or communities to access and use resources. The absence of statutory
mechanisms is felt also in the commercial and industrial sectors, which are not subject to
direct taxes or regulation (Ali, 2003). This makes the business climate uncertain, prevents
small entrepreneurs from expanding their operations and deters potential investors. Under the
circumstances, it is also difficult to employ and retain skilled workers.
For outsiders to do business in the area, an agreement must be signed between the
prospective business owner and the local tribe. Similarly, outsiders cannot own land in the
region and any industry that is set up in FATA requires some form of contract with the tribe
on whose land it is established. All contracts and agreements are enforced under the Frontier
Crimes Regulation by a jirga, and not through the judicial channels available elsewhere in
Pakistan. This system serves as a disincentive for investment in general, and particularly for
corporations and large firms. For the government, meanwhile, valuable revenue is lost
through trade conducted without the payment of taxes.
The fact that mainstream statutory provisions do not apply to FATA creates a climate of fear
and a perception of lawlessness in the minds of outsiders. But for local residents as well, the
security situation leaves much to be desired.
The various tribes of FATA are insular and prefer to keep to themselves. Although a strong
tradition of hospitality exists, tribal communities are generally wary of outsiders. Even
between tribes and clans, relations are not always cordial and hostilities are known to break
out sporadically. nter-tribe clashes, criminality and extremism affect the quality of life of
ordinary people. For example, many girls are taken out of school by their families over
concerns for their safety. Security is equally important to service providers and government
officials who travel to and work in the area. At the moment, access to many parts of FATA is
restricted. n such areas, government officials and service providers cannot move freely
without a local escort. This creates difficulties on a number of levels, from the performance of
field-level duties and the provision of extension services to monitoring and inspection.
Security is also a concern for those considering taking up employment in the tribal areas.
Governance, Law and Access to Justice
EXECUTIVE SUhhAPY
xvii
Besides the pervasive sense of fear that is created, persistent conflict is also a waste of
resources. With the government and tribal elders required to concentrate on resolving
disputes, there are fewer opportunities to focus on development activities.
The traditional jirga mechanism, meanwhile, is increasingly out of the reach of common
people. n many cases, the jirga fails to provide justice to poorer segments of the population.
Many also blame the system for fuelling tribal enmities that have in some cases persisted
over several generations. There are no separate civil courts to provide the people with an
alternative means to address grievances. With many now accusing the jirga of being biased
in favour of the rich and influential, this in effect leaves ordinary people with no access to
justice of any kind, whether in a traditional forum or by means of a formal judicial system.
n today's geopolitical climate, FATA cannot continue to remain closed off from the
mainstream of Pakistani society. ntegration is the only viable option for the future. Already,
communications networks and the electronic media have begun to reach the more
inaccessible parts of FATA. On the ground, the situation is fluid, dynamic and vibrant. n the
midst of this sea change, there is an urgent need to target development investment and
strategise planning.
The FATA Sustainable Development Plan (SDP) is a step in this direction. t aims to bridge
the gap between development planning, strategic imperatives and ground realities that
together form the complex web of society in the tribal areas.
Public-sector development has tended to target local elites and interest groups, with tribal
leaders emerging as the prime beneficiaries. This small segment of the population has
managed development investment by identifying projects, selecting sites, nominating service
providers and availing of the resulting employment opportunities. Recently, a new socio-
economic elite has begun to exert its influence over the decision-making process. This group
consists mainly of those who have acquired wealth relatively recently through business
interests outside the tribal areas or from employment abroad. With development activity
geared towards the interests of the elite, it is no surprise that FATA remains one of the most
poorly developed areas in the country.
The SDP aims to steer development planning in a new direction, focusing on the people at
the grassroots level. t identifies the people as the focus of development as well as its
instigators.
The key objective of the SDP is to foster social and economic development based on
principles of equity and participation. To turn this vision into reality, the SDP addresses the
basic needs that underlie existing social and economic disparities. t outlines measures to
improve services, upgrade infrastructure, promote the sustainable use of natural resources,
and bolster activity in the trade, commerce and industrial sectors. t explores options to
improve institutional and financial capacities, and to expand and diversify available economic
opportunities. t also provides a monitoring and evaluation framework to support, assess and
strengthen development initiatives.
The SustainabIe DeveIopment PIan
EXECUTIVE SUhhAPY
xviii
R
ather than replicating the narrow focus of the past, the
SDP takes an integrated approach to development
planning, combining economic and social development
with environmental integrity and poverty alleviation.
While the core components of the plan are structured around
specific sectors, the vision is holistic and takes into account
cross-cutting themes and recurrent issues that cannot be
ignored. These range from broad structural concerns such as
governance and institutional capacity to the more normative
considerations of social cohesion and cultural identity. The plan
i s f l exi bl e and adapt abl e, al l owi ng f or a t wo- phased
implementation schedule. Priority interventions are identified for
the first phase, spanning a period of five years, followed by a
second, four-year assessment and consolidation period. But
even this framework is by no means set in stone. Monitoring and
evaluation mechanisms outlined in the SDP are designed not
only to gauge progress towards specified targets but also to
provide the flexibility to address emerging needs.
For the last three decades, FATA and the surrounding region
have witnessed unprecedented turmoil and instability. Today, the
tribal areas face by far the most critical phase in their history.
The SDP is the first step in a long-term strategy to guide and
target development planning so that flux and uncertainty may
give way to positive change that will create stability, security and
hope for the future.
INTPD0UCTDN
xix
The Federally Administered Tribal Areas (FATA) of Pakistan are located along the country's
border with Afghanistan. Historically, the area held great strategic importance for the colonial
government of ndia, which devised a unique system to govern the region indirectly through
intermediaries and agents, leaving the people free to manage internal affairs without
interference. That system, and the administrative arrangements it engendered, were retained
more or less unchanged when colonial rule came to an end in the ndian Subcontinent.
Today, the region is once again in the spotlight, not simply for reasons of internal security but
also because of its status as a staging post for geopolitical developments with global
repercussions. What has perhaps not received the same degree of attention, both
domestically and in the international arena, is the fact that FATA is amongst the most poorly
developed parts of the country. This is in large part a result of the unique administrative
arrangements that prevail in the area and the failure of development planning to
systematically target those most in need of such interventions.
Development initiatives undertaken so far show a marked absence of cohesive planning and
have instead been carried out in a compartmentalised fashion, concentrating narrowly around
specific sectoral activities. This ad hoc approach has been largely to the benefit of local
elites, while depriving large segments of the population from social uplift and economic
empowerment. mpact and sustainability have been noticeably absent in nearly every project
implemented. As such it is not surprising that development indicators for FATA lag far behind
those for other parts of the country.
For the last 30 years, the region has witnessed unprecedented turmoil and instability. Today,
however, FATA faces by far the most critical phase in its history. At this crucial juncture, a
long-term strategy is needed to steer development planning so that flux and uncertainty may
give way to positive change that will create stability, security and hope for the future.
The FATA Sustainable Development Plan (SDP) is a step in this direction. t aims to bridge
the gap between development planning, ground realities and strategic imperatives that
together form the complex web of society in the tribal areas.
The FATA SDP identifies the people as the focus of development as well as its instigators.
This people-centred approach extends to the formulation of the SDP itself. The strategies and
objectives outlined in this document, as well as its proposed interventions, have been
formulated with the active participation of a cross section of stakeholders. While serving to
inform the substance of the SDP, this method has the added benefit of creating ownership
among the people for whom these proposals are intended. This public consultation process is
also a landmark in the history of development planning in FATA.
The SDP aims to foster social and economic development based on principles of equity,
participation, transparency and efficiency. t outlines measures to improve social services,
upgrade physical infrastructure, promote the sustainable use of natural resources, and
enhance activity in the trade, commerce and industrial sectors. While the core components of
the plan are structured around specific sectors, the vision is holistic and takes into account
cross-cutting themes and recurrent issues that cannot be ignored. These range from broad
structural concerns such as governance and institutional capacity to the more normative
considerations of social cohesion and cultural identity.
The plan is flexible and adaptable, allowing for a two-phased implementation schedule.
Priority interventions are identified for the first phase, spanning a period of five years,
followed by a second, four-year consolidation period. But even this framework is by no means
set in stone. Monitoring and evaluation mechanisms outlined in the SDP are designed not
only to assess progress towards specified targets but also to provide the flexibility to address
emerging needs.
INTPD0UCTIDN
xx
Primary responsibility for the preparation of the FATA SDP lies with the Civil Secretariat
FATA, in partnership with The World Conservation Union (UCN), Pakistan. A core group
headed by the Additional Chief Secretary FATA, and comprising government officials and
UCN staff members, was constituted to guide and oversee the SDP formulation process.
INTPD0UCTIDN
Xi
ackground and
StrategIc Framework
Part
3
S
ituated midway along Pakistan's border with Afghanistan
is a wedge of rugged terrain, stretching some 450
kilometres, that constitutes the region today known as
FATA. This mountainous land is home to a majority
Pakhtun population, made up of more than a dozen major tribes
and hundreds of clans and sub-tribes.
The territories that together form FATA consist of seven 'political
agencies'-Bajaur, Khyber, Kurram, Mohmand, North Waziristan,
Orakzai and South Waziristan and six smaller zones, called
'frontier regions' (FRs) in the districts of Bannu, Dera smail
Khan, Kohat, Lakki Marwat, Peshawar and Tank. To the north
and east, the tribal areas are bounded by the North West
Frontier Province (NWFP), while on the south lies the province
of Balochistan. n the south-east, FATA joins the Punjab
province. The Durand Line, which separates Pakistan from
Afghanistan, forms the western border of FATA.
Although part of Pakistan, FATA functions as a semi-autonomous
area. This particular arrangement dates back to the days of
British colonial rule in ndia, when the region served as a buffer
between the British Empire and Tsarist Russia. The system
THE FE0EPALLY
A0|NSTEPE0 TP8AL
APEAS: AN D7EP7EW
continued more or less unchanged when, following independence from British rule in 1947,
the area came under the suzerainty of newly created Pakistan.
The areas that today make up FATA were once part of the battleground on which the 'Great
Game' of imperial domination was played out in the 19th century. For the British colonial
administrators of ndia, effective control of the region was imperative for the defence of their
ndian possessions, serving as a bulwark against Russian expansionism in Central Asia. t
proved difficult, however, for the colonial government to establish its writ in the tribal areas.
Colonial administrators oversaw but never fully controlled the region through a combination of
British-appointed agents and local tribal elders. The people were free to govern internal
affairs according to tribal codes, while the colonial administration held authority in what were
known as 'protected' and 'administered' areas over all matters related to the security of
British ndia.
Although various tribes cooperated with the British off and on in return for financial incentives
(Abbas, 2006), this quid pro quo arrangement was never completely successful. Throughout
the latter half of the 19th century, British troops were embroiled in repeated battles with
various tribes in the area (Hunter et al., 18401900). Between 1871 and 1876, the colonial
administration imposed a series of laws, the Frontier Crimes Regulations, prescribing special
procedures for the tribal areas, distinct from the criminal and civil laws that were in force
elsewhere in British ndia. These regulations, which were based on the idea of collective
territorial responsibility and provided for dispute resolution to take place through a jirga
(council of elders), also proved to be inadequate.
Frustrated in their efforts to subdue the region, the British in 1901 issued a new Frontier
Crimes Regulation that expanded the scope of earlier regulations and awarded wide powers,
including judicial authority, to administrative officials. n the same year, a new administrative
unit, the North-West Frontier Province, was created by carving out parts of the then Punjab
province and adding certain tribal principalities. The province, as it was constituted at the
time, included five 'settled' districts (Bannu, Dera smail Khan, Hazara, Kohat and Peshawar)
and five tribal agencies (Dir-Swat-Chitral, Khyber, Kurram, North Waziristan and South
Waziristan), and was placed under the administrative authority of a chief commissioner
reporting to the Governor-General of ndia (Hunter et al., 18401900).
The institution of the 'political agent' was created at this time. Each agency was administered
by a political agent who was vested with wide powers and provided funds to secure the
loyalties of influential elements in the area. t was also during this period that the maliki
system was developed to allow the colonial administration to exercise control over the tribes.
Under this system, local chiefs (maliks) were designated as intermediaries between the
members of individual tribes and the colonial authorities, and assisted in the implementation
of government policies (GoP, undated [a]).
Despite these efforts, bolstered by repeated military campaigns, the colonial administration
retained what was at best a tenuous hold on the area until the British quit ndia in 1947.
Soon after ndependence, the various tribes in the region entered into an agreement with the
government of Pakistan, pledging allegiance to the newly created state. Some 30 instruments
of accession were subsequently signed, cementing this arrangement. To the tribal agencies of
Khyber, Kurram, North Waziristan and South Waziristan were later added Mohmand Agency
(in 1951), and Bajaur and Orakzai (in 1973).
Accession did not subsume the political autonomy of the tribes. The instruments of
History
4
accession, signed in 1948, granted the tribal areas a special administrative status. Except
where strategic considerations dictated, the tribal areas were allowed to retain their semi-
autonomous status, exercising administrative authority based on tribal codes and traditional
institutions. This unique system, given varying degrees of legal cover in each of the country's
earlier constitutions, was crystallised in Pakistan's Constitution of 1973.
Under the Constitution, FATA is included among the "territories of Pakistan (Article 1). t is
represented in the National Assembly and the Senate but remains under the direct executive
authority of the President (Articles 51, 59 and 247). Laws framed by the National Assembly
do not apply here unless so ordered by the President, who is also empowered to issue
regulations for the "peace and good government of the tribal areas. Today, FATA continues to
be governed primarily through the Frontier Crimes Regulation 1901. t is administered by the
Governor of the NWFP in his capacity as an agent to the President of Pakistan, under the
overall supervision of the Ministry of States and Frontier Regions in slamabad (Khan, 2005).
Until 2002, decisions related to development planning in the tribal areas were taken by the
FATA section of the NWFP planning and development department, and implemented by
government line departments. n that year, a FATA Secretariat was set up, headed by the
Secretary FATA. Four years later, in 2006, the Civil Secretariat FATA was established to take
over decision-making functions, with an Additional Chief Secretary, four secretaries and a
number of directors. Project implementation is now carried out by line departments of the
Civil Secretariat FATA. The NWFP Governor's Secretariat plays a coordinating role for
interaction between the federal and provincial governments and the Civil Secretariat FATA.
Each tribal agency is administered by a political agent, assisted by a number of assistant
political agents, tehsildars (administrative head of a tehsil) and naib tehsildars (deputy
tehsildar), as well as members from various local police (khassadars) and security forces
(levies, scouts). As part of his administrative functions, the political agent oversees the
working of line departments and service providers. He is responsible for handling inter-tribal
disputes over boundaries or the use of natural resources, and for regulating the trade in
natural resources with other agencies or the settled areas.
The political agent plays a supervisory role for development projects and chairs an agency
development sub-committee, comprising various government officials, to recommend
proposals and approve development projects. He also serves as project coordinator for rural
development schemes.
An FR is administered by the district coordination officer of the respective settled district, who
exercises the same powers in an FR as the political agent does in a tribal agency.
nterference in local matters is kept to a minimum. The tribes regulate their own affairs in
accordance with customary rules and unwritten codes, characterised by collective
responsibility for the actions of individual tribe members and territorial responsibility for the
area under their control. The government functions through local-level tribal intermediaries,
the maliks (representatives of the tribes) and lungi holders (representatives of sub-tribes or
clans), who are influential members of their respective clan or tribe (Shinwari, undated).
All civil and criminal cases in FATA are decided under the Frontier Crimes Regulation 1901
by a jirga. Residents of the tribal areas may, however, approach the apex courts (Supreme
Court of Pakistan and Peshawar High Court) with a constitutional writ challenging a decision
issued under the 1901 Regulation.
FATA elects members to the federal legislature through adult franchise. The system of
Administration
5
AN DVEPVIEW
devolution introduced elsewhere in the country in 2001 by means of provincial Local
Government Ordinances (LGOs) has not been extended to the tribal areas. A separate LGO
for FATA has been drafted and is awaiting promulgation. A system of partial local-level
governance does, however, operate through councils in the tribal agencies and FRs. Elected
councillors are involved in various aspects of development planning and decision making.
FATA is divided into two administrative categories: 'protected' areas are regions under the
direct control of the government, while 'non-protected' areas are administered indirectly
through local tribes.
n protected areas, criminal and civil cases are decided by political officers vested with
judicial powers. After completing the necessary inquiries and investigations, cognizance of the
case is taken and a jirga is constituted with the consent of the disputing parties. The case is
then referred to the jirga, accompanied by terms of reference. The jirga hears the parties,
examines evidence, conducts further inquiries where needed, and issues a verdict which may
be split or unanimous. The political agent, or an official appointed by the political agent for
this purpose, examines the verdict in the presence of parties to the case and members of the
jirga. f the verdict is found to be contrary to customary law or tainted with any irregularity,
the case may be remanded to the same jirga for re-examination or the verdict may be
rejected and a fresh jirga constituted. Where the verdict is held to be in accordance with
customary law and free of irregularities, it is accepted and a decree is issued accordingly. An
aggrieved party may challenge the decree before an appellate court, and a further appeal
may be lodged with a tribunal consisting of the home secretary and law secretary of the
federal government. Once appeals are exhausted, execution of the verdict is the
responsibility of the political administration.
n non-protected areas, cases are resolved through a local jirga at the agency level. Local
mediators first intervene to achieve a truce (tiga) between parties in a criminal case, or to
obtain security (muchalga) in cash or kind for civil disputes. Thereafter, parties must arrive at
a consensus concerning the mode of settlement-arbitration, riwaj (customary law) or Shariah
(slamic law). Once the mode of settlement is agreed upon, mediators arrange for the
selection of a jirga with the consent of the parties to the case.
Where arbitration is selected, a jirga is nominated by consensus and given an open mandate
(waak), with the understanding that its decision will be accepted by all parties. Here, the
decision of the jirga cannot be challenged. n cases decided according to customary law or
the Shariah, however, an aggrieved party may challenge the jirga's decision before another
jirga of their own choice. The new jirga does not hear the case afresh but only examines the
original decision to see whether it deviates from customary law or the Shariah. Further
appeal may be referred to a third jirga and its decision is final.
mplementation of jirga decisions in non-protected areas is the responsibility of the tribe. The
jirga may mete out punishment to an offender, imposing a heavy fine. Occasionally, more
serious measures may be taken such as expelling an individual or a family from the area,
and confiscating, destroying or setting fire to homes and property. n such cases, the entire
tribe bands together as a lashkar (army) to enforce the decision.
While most disputes are settled internally, more serious matters may require the calling of a
larger jirga made up of maliks, elders, the political agent, members of the National Assembly
and Senate, and occasionally even representatives from neighbouring agencies or FRs.
Although the jirga mechanism enjoys widespread favour, corruption has begun to enter the
system. t is reported that the poor and more vulnerable segments of society cannot afford to
JudiciaI System
6
convene a jirga. There are a number of requirements for a jirga to be held, including
hospitality, which are increasingly beyond the reach of most ordinary people. There is also
the grievance, now voiced more frequently, that in most cases jirga decisions favour the
richer or more influential party.
Each year, the federal government sets aside a block allocation, known as the Annual
Development Programme (ADP), intended exclusively for development expenditure. This
allocation, disbursed according to province, region, sector or project, is part of the federally
funded Pubic Sector Development Programme (PSDP).
FATA receives an annual share of ADP funding. n addition to the ADP, the PSDP provides
separate funds for programmes and projects in various agencies and FRs, and contributes to
donor-assisted initiatives. The government also provides to each member of the National
Assembly and Senate funds from the Khushhal Pakistan Programme, to be disbursed in their
own constituencies. These resources are all part of the 'development budge'.
The 'regular' budget provides for non-development expenditure and recurring costs. Salaries
and office management costs of the Civil Secretariat FATA, its directorates and their field staff
are met by the federal government, through the Ministry of Finance, and reflected as 'non-
ADP' expenditure in the federal budget. Expenses of the political administration in each
agency are also part of the regular budget. The regular budget for salaries and office
management costs is prepared by each directorate, unit or entity in FATA, and sent to the
Ministry for approval.
Sector-specific allocations from the ADP are made at the Civil Secretariat FATA, based on
priorities and needs. Although the development budget is not intended to finance salaries or
recurrent liabilities, in practice this is often the case. nsufficient allocations for repairs and
maintenance, meanwhile, mean that some of these costs are also met through the
development budget.
FATA is situated between the latitudes of 31 and 35 North, and the longitudes of 69 15'
and 71 50' East, stretching for a maximum length of approximately 450 kilometres and
spanning more than 250 kilometres at its widest point (SoP, 1984). Spread over a reported
area of 27,220 square kilometres (GoNWFP, 2005a), it is bounded on the north by the district
of Lower Dir in the NWFP, and on the east by the NWFP districts of Bannu, Charsadda, Dera
smail Khan, Karak, Kohat, Lakki Marwat, Malakand, Nowshera and Peshawar. On the south-
east, FATA joins the district of Dera Ghazi Khan in the Punjab province, while the Musa Khel
and Zhob districts of Balochistan are situated to the south. To the west lies Afghanistan.
The mountainous terrain is broken by small basins or valleys, dotted with settlements and
agricultural fields. The area can be divided into the northern, central and southern regions
which happen to coincide with administrative boundaries (Shinwari, undated). The northern
zone consists of the Bajaur and Mohmand agencies. The hills in this region form a transition
zone between the Hindukush mountains, and the piedmont and lowland basins. Here, the
Jandool river and its tributaries join the Panjkora river. Towards the south, the Kabul river
collects the outflow from local rivers, including the Bira Darya, and khwars (seasonal
watercourses) such as the Gandab, Sallala and Shalman.
The central region covers the Khyber, Kurram and Orakzai agencies, and the FRs of Kohat
and Peshawar. Here, the Safed Koh mountains rise from the Terimangal pass and stretch
FinanciaI Arrangements
PhysicaI Characteristics
7
AN DVEPVIEW
eastward, reaching an elevation of 3,600 metres. The Sikaram, at 4,760 metres, is the tallest
peak in this range. The Kurram river flows north-west to south-east, entering North Waziristan
below the town of Thal in the Hangu district of the NWFP, and eventually joining the ndus
river. n Orakzai Agency, the Khanki and Mastura streams flow to the east to meet the Bara
river. The towns of Bara and Khajuri form a plains area from where the Bara river and its
tributaries join the Kabul river near Peshawar. To the north of the Kabul river stand the
Mullagori and Shilman hills. The fertile Bara, Khanki, Kurram and Mastura valleys contain the
most extensively cultivated land in FATA.
The southern region comprises the North Waziristan and South Waziristan agencies, and the
FRs of Bannu, Dera smail Khan, Lakki Marwat and Tank. To the south of the Safed Koh are
the Sulaiman mountains and the Waziristan hills. The hills rise to an altitude of between
1,500 and 3,000 metres, and are mostly barren. Takht-i-Sulaiman, located in FR Dera smail
Khan, is the highest peak in the Sulaiman range, at 3,487 metres. Overall drainage in this
region is toward the east. The Gomal river flows in the south, while the Kurram river passes
though the north. The Jandola, Kaitu and Tochi are smaller rivers in this area. The rod kohi
system (flood irrigation, or torrent-spate irrigation) is commonly practised mainly in the FR
areas. The Gomal and Tochi mountain passes in the south connect Pakistan to Afghanistan
(Kureshy, 1997).
An interesting mix of sedimentary, igneous and metamorphic rock is found in the area. The
most common sedimentary formations consist of sandstone, limestone, shale and
conglomerates, occurring in the south-west. Partly metamorphosed andesite, granite and
gabbro make up the bulk of igneous masses. Metamorphic rocks in the area include schist,
slate and marble.
The soil is derived mainly from the local weathering of bedrock, deposited by streams and
rivers, though loess also occurs to some extent. Landforms in the area are varied and include
piedmont, plains, valleys, gravel fans, rough broken land and gullied land. Level areas are
loamy, while lowlands are slightly to strongly calcareous. The content of organic matter and
available phosphorus is very low (GoP, 1985).
FATA lies on the cusp of two major climatic systems, the monsoon to the east and the
Mediterranean towards the west. Most parts of FATA are arid and semi-arid, with warm
summers and cool winters, although some areas in the Kurram and Orakzai agencies fall
within the humid and sub-humid zone (Dichter, 1967; Khan, 1991). The pattern and character
of summer and winter rainfall is intermixed to such an extent that it is difficult to determine
which is dominant. According to meteorological data, the area receives more winter
precipitation as a result of western disturbances and some rain in the summer from the
monsoon. Annual rainfall in the area varies dramatically, from 630 millimetres reported in
Kurram during 200102, to just 88 millimetres in neighbouring Khyber Agency during the
same year (GoNWFP, 2005a).
Land use data from 200304 show that 7 per cent of the total geographic area of FATA is
cultivated, with another 1 per cent recorded as fallow, while more than 82 per cent of the
land is not available for cultivation (table 1). This puts intense pressure on available
farmland, which supports an average of 18 persons per cultivated hectare and more than 40
GeoIogy and SoiI
CIimate
Land Use and Tenure
8
persons per irrigated hectare (GoNWFP, 2005a). Some 44 per cent of farmland is under
irrigation, with the remaining cultivated area relying entirely on rainfall.
Land settlement has not been carried out, except in Kurram Agency. As a result, land records
are not available. Most land is owned by the tribes and is referred to as qaumi land. Tenure
is governed by customary law and falls under the categories of individual, joint family or
collective ownership of the tribe (shamilat). The state owns small areas of land in some parts
of FATA. This is usually land that was acquired from the tribes for various purposes, and
which subsequently remained unused.
Public-sector development has tended to target local elites and interest groups, with tribal
leaders (maliks) emerging as the prime beneficiaries of many such initiatives. This small
segment of the population has managed development investment by identifying projects,
selecting sites, nominating service providers and availing of the resulting employment
opportunities. Recently, a new socio-economic class has begun to exert its influence over the
decision-making process. This group consists mainly of those who have acquired wealth
relatively recently through business interests outside the tribal areas or from employment
abroad. With development activity geared towards the interests of the elite, it is no surprise
that FATA remains one of the most poorly developed areas in the country.
According to census data from 1998, FATA is home to a population of roughly 3.18 million.
Annual population growth in the intercensal period of 1981 to 1998 is calculated to be 2.19
per cent but certain agencies and FRs buck this trend, showing a decline during the same
period (table 2). Population density for 1998 stands at 117 persons per square kilometre in
FATA as a whole, with wide variations between individual agencies and FRs. n Dera smail
Khan FR, for example, the population is thinly scattered with 19 persons per square
kilometre, while population density in Bajaur Agency reaches 461 persons per square
kilometre (GoNWFP, 2005a).
The average annual population growth for FATA is slightly lower than the provincial average
of 2.8 per cent and the national average of 2.7 per cent (GoP, 1998a). The average
household in FATA consists of 9.3 persons, compared to 8 persons in the NWFP and 6.8
persons in the country as a whole (table 3).
Human DeveIopment
Demographics
9
AN DVEPVIEW
Land use

Area (ha)
Reported area

2,722,042

Cultivated area

199,530

rrigated area

87,011

Current fallow

30,607

Forest area

46,202

Uncultivated area

2,468,512

Not available for cultivation 2,240,761
Source : GoNWFP, 2005a.
Land use (FATA, 2003-04) TabIe 1:
The gender ratio of 108 males for every 100 females (table 4) is somewhat perplexing, since
some 126,577 persons, most of whom are likely to be men, are recorded as migrants from
FATA in other parts of Pakistan during the 1998 census (GoP, 1998a). This should in theory
leave a higher proportion of females in the local population. Census reporting in FATA is
likely to have been distorted by problems in gathering data, since tribal custom forbids the
disclosure of information about women to outsiders.
n terms of human development and quality of life indicators, FATA lags far behind both the
NWFP and the country as a whole (table 5). Overall literacy in FATA is as low as 17.42 per
cent for 1998, compared to 35.41 per cent in the NWFP and 43.92 per cent at the national
level. Just 3 per cent of females aged 10 years and above are literate in FATA, compared to
18.82 percent in the NWFP and 32.02 per cent across the country. While 29.51 per cent of
10
Demographic indicators
(Pakistan, NWFP and FATA, 1998)
Geographical area (sq km) 796,096 74,521 27,220
Annual population growth, 198198 (%) 2.69 2.82 2.19
Average household size (persons) 6.80 8.00 9.30
Urban population (% of total)
32.50 16.87 2.70
Population density (persons per sq km) 166.30

238.10

116.70
Source: GoP, 1998a.

ndicator Pakistan NWFP FATA
TabIe 3:
FATA 27,220 2.19
Bajaur

1,290 4.33
Khyber

2,576 3.92
Kurram 3,380 2.50
Mohmand 2,296 4.28
North Waziristan 4,707 2.46
Orakzai

1,538 -

2.69
South Waziristan
6,620
1.95
FR Bannu 745 - 6.65
FR Dera smail Khan 2,008
- 2.09
FR Kohat

446 2.59
FR Lak ki 132 4.81
FR Peshawar 261 2.22
FR Tank 1,221
3,176,331
595,227

546,730

448,310
334,453
361,246
225,441

429,841
19,593
3 8,990
88,456

6,987
53,841
27,216
117
461

212

133
146
77
147

65
26
19
198

53
206
22 - 0.61
PopuIation (FATA, 1998)
Source: GoNWFP, 2005a; Gop,1998 b.
Agency/FR
Area
(sq km)
Population
(total)
Population
density
(persons per
sq km)
Annual
growth rate,
1981 98 (%)
TabIe 2:
males over the age of 10 are literate in FATA, this figure trails the NWFP (51.39 per cent)
and the national average (54.81 per cent) by a wide margin. Health care indicators are
equally disappointing, with one doctor for every 7,670 persons in FATA, compared to 4,916
persons per doctor in the NWFP and 1,226 persons for every doctor in Pakistan (GoNWFP,
2005a; GoNWFP, 2005b; GoP, 1998a; GoP, undated [b]).
There are few livelihood opportunities available to the people. The local economy is chiefly
pastoral, with agriculture practised in a few fertile valleys. Most households are engaged in
Economy and LiveIihoods
11
AN DVEPVIEW
88,456 45,472 42,984
Agency/FR Total Male Female Ratio*
FATA 3,176,331 1,652,047 1,524,284 108
Bajaur

595,227 305,137 290,090 105
Khyber 546,730 284,602 262,128 109
Kurram 448,310 229,634 218,676 105
Mohmand

334,453 175,404 159,049 110
North Waziristan 361,246 192,432 168,814 114
Orakzai 225,441 112,766 112,675 100
South Waziristan 429,841 231,080 198,761 116
FR Bannu 19,593 10,380 9,213 113
FR Dera smail Khan 38,990 20,497 18,493 111
FR Kohat 106
FR Lakki 6,987 3,450 3,537 98
FR Peshawar 53,841 27,063 26,778 101
FR Tank 27,216 14,130 13,086 108
* Number of males per 100 females.
Source: GoNWFP, 2005a.
PopuIation by gender (FATA, 1998) TabIe 4:
SeIected deveIopment indicators
for Pakistan, NWFP and FATA (1998, 2003)*
ndicator Pakistan NWFP FATA
43.92 35.41 17.42
54.81 51.39 29.51
32.02 18.82 3.00
1,226 4,916 7,670
1,341 1,594 2,179
0.26 0.13 0.17
Literacy ratio (both sexes, %)
Male literacy ratio (%)
Female literacy ratio (%)
Population per doctor
Population per bed in health institutions
Roads (per sq km)
* Literacy rates according to 1998 census; all other figures for 2003.
Source: GoNWFP, 2005a; GoNWFP, 2005b; GoP, 1998a; GoP, undated (b).
TabIe 5:
primary-level activities such as subsistence agriculture and livestock rearing, or small-scale
business conducted locally. Others are involved in trade within the tribal belt or with down-
country markets. Women take active part in agricultural activities, collect fuel wood and fetch
water, besides attending to household work and family duties.
With few industries and only limited unorganised mining in some areas, many seek
employment as short-term unskilled labourers or enlist in local security and paramilitary
forces. Those who are able to travel find work in cities across Pakistan as well as in the
Middle East, using their earnings to support families at home. The more highly qualified
among them have in many cases migrated permanently along with their families to urban
centres outside the tribal areas, including Bannu, Dera smail Khan and Peshawar. They and
their children are reluctant to return to FATA, leading among other things to an acute
shortage of doctors, teachers and skilled workers generally, and in particular to a dearth of
qualified female teachers and doctors.
n and around the Bannu and Dera smail Khan FRs, some have bought land for farming.
Elsewhere, urban property is purchased for the purpose of setting up businesses. The
transport sector and the timber trade are two enterprises where FATA businessmen have
made their fortune. Cross-border trading is mostly the domain of relatively prosperous
segments of society.
Historically, and particularly during the Soviet invasion of Afghanistan beginning in 1979, the
region was a major centre for opium production and trafficking. Today, the transit trade with
Afghanistan is a major source of employment for the local population. The economy operates
on an informal basis and is undocumented, since few laws providing for the regulation of
economic activity have been extended to the tribal areas (Ali, 2003).
Poverty has to some extent made the population vulnerable to extremist tendencies and
criminality. n the absence of viable options to earn a living, the lure of illicit activities such as
smuggling (consumer goods, weapons) and drug trafficking is as difficult to resist as the call
of extremist slamist elements.
No systematic quantitative data is available on poverty. What is known, however, is that
poverty in the tribal areas is high compared to the rest of Pakistan. The results of a recent
participatory assessment, meanwhile, reveal the existence of a nuanced system of
determining social status, involving more than a dozen classifications for poverty including
miskeen (meek), aajiz (needy), ghareeb (poor), faqeer (beggar), bechara (pitiable), spera
(hungry or unfortunate), tabah-o-barbad (destroyed), khwaar (frustrated) and bebakht
(unlucky) (Sungi, 2003).
More prosperous residents of FATA maintain large homes with expansive courtyards, guest
rooms and separate quarters for the women of the household. Occasionally, a meeting place
to entertain visitors, known as a hujra, and a mosque are also attached to the dwelling. The
average house is modest by comparison.
According to figures for 1998, a total of 341,114 housing units are reported. Of these, 38.95
per cent are made up of just one or two rooms, 40.49 per cent have three or four rooms and
20.56 per cent are larger, with five or more rooms (table 6). Large or small, the vast majority
of dwelling units are owner-occupied (90.08 per cent), while a small number of homes are
recorded as rented accommodation (2.8 per cent) or rent-free housing (7.2 per cent). Nearly
64 per cent of all houses are built of unbaked brick, earth, wood or bamboo, while pucca
(permanent, cemented) houses account for just 36.73 per cent of the total. Roofing for nearly
87 per cent of all homes is made of wood or bamboo. Less than 62 per cent of houses are
Housing and SettIements
12
supplied with electricity, which is used for
lighting. Fuel for cooking comes primarily in the
form of wood: 92 per cent of all households use
wood-burning stoves and barely 2 per cent have
access to natural gas. Water from pipelines is
suppl i ed di rectl y, ei ther through i ndoor or
outdoor connections, to less than 20 per cent of
households (GoNWFP, 2005a; GOP, 1998a).
The vast majority of the population (97.3 per
cent) resides in rural areas (GoNWFP, 2005a).
Rural settlements number 2,560 in total, most of
which are small, with populations ranging from
500 to 2,000 (table 7). Some 748 localities are
home to less than 500 individuals, another 697 have a population of 500 to 999, and 708 are
home to between 1,000 and 1,999 people. There are 359 localities with a population of
2,0004,999, while just 48 have more than 5,000 residents (GoP, 2001).
There are three urban settlements in FATA: Miranshah in North Waziristan, and Parachinar
and Sadda in Kurram Agency. These bear the administrative status of town committees and
are home to only 2.7 per cent of the total population. This is in stark contrast to the NWFP,
where the urban population makes up close to 16.9 per cent of the total, and to the country
as a whole where more than 32.5 per cent of the population lives in urban centres (GoNWFP,
2005a).
About a dozen major tribes make their home in FATA, along with hundreds of smaller sub-
tribes and clans. The Afridi are settled in the Khyber and Orakzai agencies as well as the
FRs of Peshawar and Kohat. The Ahmadzai live in South Waziristan, the Bangash and
Masozai in Kurram, and the Bhittani in the FRs of Lakki and Tank. The Dawar, Gurbaz and
Saidgai hail from North Waziristan Agency, while the Darwesh Khel Wazir reside in North
Waziristan and South Waziristan, where the Mahsud also live in the central part. The
Mohmand and Tarkani occupy the Bajaur and Mohmand agencies, and the Mullagori,
Shilmani and Shinwari reside in Khyber. The Orakzai make their home in the agency that
goes by the same name, while the Safi and Utmanzai occupy Mohmand. The Wazir are
settled in FR Bannu, with a subsection also living in North Waziristan. Other tribes include
the Shirani and Ustrana in FR Dera smail Khan, the Turi in Kurram Agency, the Utmankhel in
Society And CuIture
13
AN DVEPVIEW

Housing indicators
(FATA,1998)
ndicator

FATA

Total number of housing units

341,114

Persons per housing unit 9.30
Persons per room 2.91
1 room per unit (%)

13.04

2 rooms (%) 25.91
3 or 4 rooms (%) 40.49
5 or more rooms (%) 20.56
Pucca (brick, stone) units (%)

36.73

Owner-occupied units (%)

90.08

Separate kitchen (%)

56.37

ndoor water supply (%) 12.39
Outdoor water supply (%)

6.92

Electricity supply (%) 61.97
Natural gas supply (%)

1.28

Source: GOP, 1998a.

RuraI settIements
(FATA,1998)
Population
48
359
708
697
748
Settlements
More than 5,000
2,000 4,999
1,000 1,999
500 999)
Less than 500
Source: GoP, 2001.
TabIe 6:
TabIe 7:
Bajaur and the Kharasin in South Waziristan (Caroe, 1958; GoNWFP, 2001). Within Pakistan,
these groups are referred to collectively as 'tribals'.
Pashto is the main language of the tribal areas, with a softer form spoken in the north and a
harder dialect in the south. Urmari, although less commonly used, is spoken in the south.
More than 99 per cent of the population is Muslim, with small minority communities including
Christians, Hindus and Sikhs (GOP, 1998a).
The traditional garb of the men, consisting of baggy trousers, loose tunic and large turban, is
incomplete without a rifle slung over the shoulder. The women wear baggy trousers with
tunics made of printed or embroidered fabric, and ornaments of silver or gold. n the winter,
the men wrap a large woollen shawl or blanket around themselves, while the women's
clothing remains the same. Festivals such as Eid, and special occasions such as weddings or
the arrival of relatives from afar, call for a new set of clothes.
Tribal culture puts an emphasis on hospitality, and festivals and special occasions are
celebrated with fervour. The men are fond of games and sports, with favoured pastimes
including hunting, shooting, wrestling, swimming, cock fighting and dog fighting. There are
few sports grounds, clubs or organised recreational facilities.
Men are the dominant force in the household, with final say in the affairs of all members of
the family. Women, by comparison, play a subservient role and observe strict pardah
(veiling). Although divorce or separation are extremely rare in tribal households, a husband is
free to take on additional wives.
Tribals are accustomed to managing their own resources and solving disputes without outside
intervention. They act collectively to assist others in the group and help fulfil social
obligations. Marriages and deaths, for example, draw support from all members of the tribe,
as do everyday activities such as harvesting and threshing, laying and clearing irrigation
channels, carrying out flood protection, maintaining paths, cutting grass, and constructing
hujras (meeting places), mosques or other buildings.
The malik (chief) serves as an intermediary between the tribe and the political administration,
in exchange for a regular allowance with which to meet social and leadership obligations. The
more weapons at a malik's disposal, and the more men he can command to bear arms when
needed, the greater is his stature within the tribe. The jirga plays an important part in tribal
society as a traditional mechanism for conflict resolution.
14
15
F
ATA enjoys a unique status in the polity of this nation
and is rapidly gaining attention in the international arena.
ts strategic location has thrust the area onto the world
political stage today just as it did more than a century
ago. n the current geopolitical climate, moreover, all indications
are that Pakistan's tribal areas will remain in the spotlight for
some time to come.
Starting with the 1979 Soviet invasion of Afghanistan, the last
three decades have seen turmoil and instability across the
border spill over into the tribal areas. During the same period,
FATA has remained one of the most insular and isolated corners
of the country, cut off from the mainstream of Pakistani society.
ts people have seen few of the benefits of development
activities launched in their own area, and have failed to share in
the progress achieved elsewhere in the country. ncreasingly
i mpoveri shed and margi nal i sed, they have al so become
vulnerable to exploitation at the hands of criminal and extremist
elements.
Poor planning and skewed development priorities are partly to
blame, coupled with the absence of social and political
THE FATA SUSTANA8LE
0E7ELDP|ENT PLAN:
STPATECC FPA|EWDPK
awareness. At the same time, institutional arrangements for governance have been
inadequate and investment in development has failed to target those who are most in need.
These and other factors have allowed a select group of influentials to benefit from
government spending in the area, with no measurable impact in terms of social uplift, asset
management, value addition or economic empowerment at the grassroots level.
This state of affairs is no longer viable. n today's geopolitical climate, the tribal areas cannot
remain closed off from the mainstream of Pakistani society. ntegration is the only feasible
option for the future. Already, communications networks and the electronic media have begun
to reach the more inaccessible parts of FATA. On the ground, the situation is fluid, dynamic
and vibrant. n the midst of this sea change, there is an urgent need to strategise the
planning process and target development investment.
The FATA SDP aims to steer development planning in a new direction, focusing on people at
the grassroots level. Rather than replicating the narrow focus of development initiatives of the
past, the SDP takes an integrated approach to combine economic and social development
with environmental integrity and poverty alleviation.
Formulation of the SDP began with the development of a broad conceptual vision to integrate
FATA into the mainstream of development processes elsewhere in the country. The FATA
Sustainable Development Vision was presented to the Governor of the NWFP and approved
in July 2006. The vision was then translated into a detailed plan for sustainable development
under the overall responsibility of the Civil Secretariat FATA in partnership with the World
Conservation Union (UCN) Pakistan.
ndividual analyses were conducted to cover a range of development sectors. These papers
were drafted by experts from a number of agencies and organisations, including the
Government of Pakistan's Small and Medium Enterprise Development Authority (SMEDA), the
nternational Medical Corps (MC), The World Conservation Union (UCN), the United
Kingdom Department for nternational Development (DFD) and the United States Agency for
nternational Development (USAD).
Draft preparation involved a review of the literature, detailed meetings with the Civil
Secretariat FATA and its line directorates, and interviews with experts. Field visits were made
to some parts of FATA to assess the situation on the ground, meet with local residents and
gather information from field-based government officials. The drafts were circulated and
comments were invited from core group members and government directorates.
Findings of the sector papers were shared with a cross section of stakeholders from FATA
during the public consultation process. Assessments and recommendations presented in the
sector papers were revised on the basis of feedback from participants. The revised sector
papers were used to develop the FATA SDP.
n the past, development programmes in the tribal areas have invariably been planned
without the involvement of the local population. The SDP, however, takes a people-centred
approach. To assess needs and obtain feedback from the grassroots level, the Civil
Secretariat FATA arranged a series of public consultations. This process, unprecedented in
the history of FATA, also created greater ownership amongst the people for whom the SDP is
intended. ndeed, participants by and large expressed satisfaction over the consultative
Genesis of the FATA SDP
PubIic ConsuItation
16
process, saw this initiative as a landmark, and assured their support and active participation
in implementation.
The public consultation process was spread over two weeks, beginning in September 2006
with a meeting in Kurram Agency. Five meetings were held in total, covering groups of
agencies and FRs, as follows: Kurram and Orakzai agencies; Khyber Agency, FR Kohat and
FR Peshawar; Bajaur and Mohmand agencies; North Waziristan Agency, FR Bannu and FR
Lakki; and South Waziristan Agency, FR Dera smail Khan and FR Tank. These consultative
meetings were organised under the patronage of the respective political agents (agencies)
and di st ri ct coordi nat i on off i cers (FRs). Some 350 i ndi vi dual s, i ncl udi ng publ i c
representatives, tribal elders, maliks, members of academia, the media and representatives of
line departments, attended these meetings. Discussions took place entirely in the Pashto
language, so that no participant was excluded. Female SDP team members held a separate
meeting with women, mainly students and teachers, in Kurram Agency.
At the conclusion of public meetings in FATA, a consultative seminar was organised in
Peshawar. A cross section of people from all agencies and FRs attended the seminar and
provided detailed input at the sector level.
Sectoral analyses conducted prior to the consultation process brought to the fore a number of
overarching issues which were subsequently presented at the public meetings. Feedback
from participants, along with remedial suggestions they proposed, have been incorporated
into the strategic interventions outlined in the SDP. Priority interventions for each sector have
also been prepared on the basis of urgent needs as assessed by the people themselves.
To address these key issues, certain broad development strategies have been identified
(table 8). These strategic objectives inform the sector-specific proposals of the SDP.
FATA offers its people few indigenous opportunities for economic development or livelihood
security. Difficult living conditions and past neglect have taken their toll, and the area today is
one of the least developed in the country. At the same time, however, there are strengths and
opportunities in this scenario, which may be tapped to achieve the objectives of the SDP.
The strategic location of FATA and the emerging geopolitical situation have focused national
as well as international attention on the tribal areas. This has led to a broad-based
commitment from a variety of quarters to foster development in the area, as part of an effort
to bring peace and stability to the region.
The tribals of FATA are brave, fiercely independent and hard-working. They are known for
their perseverance and dedication to duty. These attributes are an asset, and may be
capitalised upon for implementation of the SDP. Moreover, the tradition of local ownership
and control of natural resources provides a good opportunity to involve users in decision
making. Local ownership also creates an added incentive for the sustainable management
and use of natural resources.
ndigenous decision-making and conflict resolution systems, meanwhile, have the potential to
assist in the development of culturally appropriate and widely accepted solutions. These
systems, if based on the aspirations of the local people, can contribute positively to the
implementation of the SDP.
Overarching Issues, Strategic Objectives
Strengths and Opportunities
17
STPATECIC FPAhEWDPK
18
TabIe 8: Issues and Strategies
Overarching issues OveraII deveIopment strategies
Governance

The existing system of governance is one of the root causes
of underdevelopment, and creates disparities between
FATA and the rest o f the country.

Decision making is driven by vested interests and hampered
by political interference.

There is a lack of transparency and accountability in the
implementation of development schemes. Checks and
balances are missing.
Build on the ongoing governance reform process.

Transform decision

making to create transparent criteria and
accommodate the needs of the people.

Ensure that all development planning decisions are made
public, so that the people are informed about specific
responsibilities of implementing agencies.

ntroduce a strict monitoring system that involves
beneficiaries.
Law and order
The area faces acute problems with respect to law and
order. nsecurity is high, with inter-tribe and -clan clashes,
criminality and extremism affecting the quality of life.
The existing legal framework and dispute resolution
mechanisms do not guarantee access to justice for all
citizens
Build synergies with the political administration and law
enforcement agencies to improve the security

situation, so
that a climate conducive to development may be created.

Support the ongoing reform process to ensure that ordinary
citizens have access to justice under an appropriate legal
framework.

Society and culture
The conservative nature of tribal society, with strong
resistance to change in some quarters, hinders social and
economic development.
There is no room or opportunity for women to contribute to
the development process.
Raise awareness, increase access to information and
knowledge, and improve education.

Encourage the involvement of educated youth in the
development of the area

Create opportunities for women to participate in the
development process, taking into account religious, social
and cultural mores.
Services and utilities
The overall level of education is low, with limited access to
knowledge and information.
Coverage of infrastructure facilities, services and utilities is
patchy.
The quality of service delivery in basic social sectors is
inadequate.

Past development initiatives have focused on infrastructure
rather than on the human resources necessary to make
facilities functional.

There is a

scarcity of professional and skilled labour.

Access to savings and credit

facilities for household and
farming needs is inadequate.

Capacity constraints exist within the ranks of service
providers.

Baseline data is unreliable, planning mechanisms and
monitoring systems are ineffective.
Develop the capacity of local people to enable them to
provide services in social and technical sectors.

Rationalise the balance between infrastructure development
and human resources development.

Strengthen participation through social organisation and the
involvement of local beneficiaries as user and

interest
groups.

Bolster the institutional and human capacities of service
providers

to enable them to implement and monitor the
SDP.

Link savings and credit

facilities with the development of
social organisations at the grassroots level.

mprove working conditions and living facilities for service
providers to ensure better service delivery.

Develop and update sector- and agency-specific baseline
data and indicators.
Economy and Development
Few indigenous options exist for entrepreneurial activity.
Employment and income-generation opportunities are
severely limited.

There is no legal framework for private-sector investment.
Financial services are not available.
Create an environment conductive to economic development
through major public-sector investment.
Develop skills based on the demands of the market.

Provide a regulatory framework for investment.

Ensure the availability of financial services for enterprise.
Environment
Environmental degradation is occurring, with deforestation,
intermittent drought and groundwater depletion.

There is no regulatory framework for environmental
management.

Develop a regulatory framework for environmental
management.

Ensure that development activities are environment- friendly.

Promote the

restoration and sustainable use of natural
Source: FATA SDP public consultations and sector analyses, 2006.
FATA SDP: GoaI and Objectives
The SDP is inspired by landmark global initiatives such as Agenda 21 (Rio de Janeiro, 1992),
the World Summit for Sustainable Development (Johannesburg, 1996), the United Nations
Millennium Declaration and the Millennium Development Goals (2000). At the national level,
The SDP draws strength from the National Conservation Strategy (1992), Poverty Reduction
St rat egy Paper (2003), Medi um-Term Devel opment Framework (2005), Nat i onal
Environmental Policy (2005) and Pakistan Vision 2030.
The goal of the SDP is to promote a just, peaceful and equitable society where people can
live in harmony and with dignity by securing social, economic and ecological well-being. To
turn this vision into reality, the following objectives have been defined:
Address basic social needs underlying causes of prevailing disparities within FATA.
mprove institutional and financial capacities to allow a scaling-up of development
initiatives being already undertaken.
Explore and diversify available opportunities to make a positive contribution towards the
economic uplift of the area.
Manage and maintain ecological and subsistence-support systems to increase livelihood
security for ordinary people.
Monitor and evaluate multi-sectoral progress to support, assess and strengthen
sustainable development.
19
STPATECIC FPAhEWDPK
Part
Human 0eveIopment
Sectors
3
E
ducation is a basic human right, and a highly effective
social and economic investment. Under Pakistan's
Constitution, it is the responsibility of the state to
"remove illiteracy and provide free and compulsory
secondary education to all citizens (Article 37). This 'Principle
of Policy' enshrined in the Constitution is in tune with the
Millennium Development Goals and the Declaration on Education
for All (Dakar, 2000). n terms of implementation, however,
Pakistan's support for education has been poor, with less than 2
per cent of GDP allocated to the sector until as recently as
2002, and only a slight increase in spending since, to 2.7 per
cent of GDP, which is still far below the 4 per cent figure
recommended by the United Nations Educational, Scientific and
Cultural Organization (UNESCO).
Spending for education has consistently been low in FATA as
well, with less than 1.5 billion rupees allocated annually prior to
2001, increasing to 2.7 billion in 200405 (GoP, 2005). t is
estimated, meanwhile, that an additional 1.08 billion rupees will
be needed to achieve universal primary education in FATA alone
(FATA Directorate of Education and NEAS, 2005; Shami et al.,
2005). The effects of insufficient funding are immediately
apparent in comparative figures for educational facilities and
achievement in FATA, compared to the NWFP and the country
as a whole (table 9). According to data from 1998, only 17.42
per cent of all individuals in FATA aged 10 years or older are
23
E0UCATDN
literate, and just 3 per cent of females. These figures compare poorly with the provincial and
national literacy ratios, and are far behind overall adult literacy in South Asia, reported at
59.6 per cent in 2004 (WB, undated).
Schools in FATA include government-run institutions as well as community schools, private
schools and madrassas (slamic religious schools). The curriculum is developed by the
federal government with input from the provinces, and translated into textbooks by provincial
textbook boards. n FATA, public examinations for the secondary and higher-secondary levels
are conducted by the NWFP Board of ntermediate and Secondary Education, and beyond
the secondary level by universities. The NWFP Public Service Commission recruits, hires and
transfers teaching and management staff for middle school onwards, up to the college level.
Over the last three years, the Directorate of Education has made an effort to improve the
accessibility and reliability of the education management information system (EMS) and data
is now available online at www.fata.edu.pk. These statistics reveal a disappointing picture of
the education sector. n terms of facilities, FATA has a large number of small, widely-
dispersed schools, each accommodating an average of 65 to 620 students (table 10). At
lower levels, most schools employ an average of between one and three teachers.
Official data concerning the number of schools should be viewed with caution, since many
school buildings are used for other purposes, including to run businesses. Statistics related to
the number of teachers are also unreliable since, in some cases, teachers collect their
salaries but hire others to stand in for them, paying them a small fee. Elsewhere, teachers do
not report to work at all. Except for two girls' schools at Wana in South Waziristan, for
example, no female teachers in that town attended school but continued to collect their
salaries.
Understandably, many have opted not to enrol their children in government schools. This
explains in part the rapid growth of the private schooling sector, including in rural areas,
particularly since many such schools are reported to be affordable for middle- and low-
income families (Andrabi et al., 2002).
24
Literacy ratio (both sexes,%)
Male literacy ratio (%)
Female literacy ratio (%)

Government primary schools (total number)
Government primary schools for boys

Government primary schools for girls

Total enrolment in primary school
Government middle schools (total number)
Government middle schools for boys
Government middle schools for girls
Government high/higher secondary schools (total number)
Government high schools for boys
Government high schools for girls

* Literacy rates according to 1998 census; all other figures for 200304
Source: GoNWFP, 2005a; GoNWFP, 2005b; GoP, 1998a; GoP, undated (b)
17.422
29.51
3.00
4,189
2,524
1,665
339,794
404
284
120
240
206
27
43.92
54.81
32.02

155,000
111,100

43,900

19,781,000
28,700
22,100
6,600
16,100
13,100
3,000

35.41
51.39
18.82

18,924
11,633
7,291
2,041,693
2,053
1,319
734
1,534
1,059

273

Pakistan NWFP
TabIe 9:
Education indicators for Pakistan, NWFP
and FATA (1998, 2003-04)*
ndicator FATA
FATA enrols half a million (508,931 in 200405) students in government schools from the
primary to the higher-secondary level, showing an increase of close to 200,000 pupils
between 2001 and 2005 (GoNWFP, 2005a). Despite these gains, primary school enrolment
for girls is still half that of boys (32 per cent, compared to 61 per cent) and declines
dramatically at the secondary level (7 per cent, compared to 43 per cent) where the gender
disparity is even greater (GoNWFP, 2005a; WB, undated). Site visits reveal that enrolment in
schools and colleges is generally high for both boys and girls in major towns but that these
facilities are severely understaffed.
While overall enrolment is low, drop-out rates are high. According to figures for the year
200405, more than half of all children who begin school at the primary or katchi
(kindergarten) level drop out before completing Class V (GoNWFP, 2005a). Drop-out rates are
considerably higher among girls (70.09 per cent) than among boys (43.49 per cent). Figures
also vary across agencies and FRs, with the highest recorded drop-out rate seen for girls in
North Waziristan Agency (86.89 per cent) and the lowest rate recorded among boys in Bannu
FR (0.08 per cent).
Reasons cited most frequently for low enrolment and high drop-out rates are poor teaching,
teacher absences, the inconvenient location of schools and corporal punishment meted out to
students. High student-teacher ratios in larger schools in the main towns may also be a
contributing factor. Generally, however, student-teacher ratios in FATA are lower than in
Pakistan as a whole. n primary schools, the student-teacher ratio in FATA is 31:1, compared
to 47:1 at the national level (GoNWFP, 2005a; GoP, undated [b]).
Student-teacher ratios alone cannot ensure that pupils stay in school. When facilities
provided to students are inadequate, children are reluctant to attend and parents become
less likely to push the matter. During an SDP team field visit, for example, it was found that
one higher-secondary school for girls at Parachinar in Kurram Agency had more than 100
pupils in each class, many with no desks, forcing children to sit on the floor. This is likely to
be the situation in many other schools across FATA. Similarly, only 50 per cent of girls'
schools provide drinking water inside school premises-an important factor for attendance
generally, and particularly in the case of young women.
25
E0UCATIDN
Primary
Mosque
Community
Middle
High
Higher Secondary
Collge
1,282
0
448
122
26
2
11
2,015
212
361
282
205
8
21
3,297
212
809
404
231
10
32
275,485
13,815
54,236
68,090
91,104
6,201
8,196
83.56
65.165
67.040
168.54
394.39
620.10
256.13
9081
235
1608
3950
4287
306
592
2.75
1.11
1.9
9.78
18.56
30.60
18.50
* Enrolment in community/mosque school and higher-secondary school is shown separately,
and also added to enrolment in primary school and college, respectively.
Transportation problems are repeatedly cited as a factor contributing to low enrolment among
girls. For those who do attend, many are subsequently taken out of school by their parents
over concerns for their safety. Girls are also discouraged from continuing their education
because parents fear that educated women risk fewer marriage prospects, although public
consultations show that this attitude is changing in some areas, where educated girls are
increasingly viewed as better wives and mothers. Boys are taken out of school when
additional hands are required to carry out agricultural labour or if the family is in need of
financial support. But many also believe that educated youth risk becoming over-qualified for
most jobs available locally.
For young women, the existence of segregated schools and colleges is a significant factor in
deciding whether or not they will be enrolled in education. On the ground, there is great
disparity between the number of institutions offering education to boys and girls. According to
figures for 200405, there are 858 fewer primary schools for girls, while at the high-school
level the gap is even wider: high schools for girls make up just 11 per cent of the total
number of high schools in the tribal areas (GoNWFP, 2005a). There are only 10 higher-
secondary schools in all of FATA, of which just three are for girls. This is a particularly
serious problem since completion of higher-secondary education is a requirement for primary-
school teachers. Until 2003, there was not a single college for young women in FATA. Today
there are 11, with nine new colleges to be built over the next five years, six of which will be
for women.
f girls are at a disadvantage when it comes to education, children with special needs are
marginalised completely. There is no provision for the formal schooling of special-needs
children, and no training for teachers to work with such pupils.
For both men and women, there are few opportunities to pursue higher education. Seats are
reserved for FATA students in universities located in the settled areas but these spaces are,
in some instances, taken by students whose families have ancestral homes in the tribal areas
but no longer reside there. Few students who have completed secondary schooling in FATA
are in any case equipped to enter university because poor education has left them
uncompetitive. Many who do attend fail to return to the tribal areas, resulting in the perpetual
lack of professional service providers and role models, particularly among women.
Little data is available on student learning. A recent assessment of a sample of Class V
students shows higher mathematics scores among FATA students compared to children in the
rest of the country (451 versus 420), but lower Urdu achievement (345 versus 369) (FATA
Directorate of Education and NEAS, 2005; Shah, 2004). High maths scores may be the result
of a strong culture of business and trade in the tribal areas, while lower Urdu scores could be
due to the fact that Pashto is the language of instruction in many schools across FATA.
Close to 50 per cent of the male population in FATA is under the age of 15 (GoNWFP,
2005a). Although similar figures are not available for females, there is no reason to think the
results would differ significantly. An overwhelmingly young population leads to an increased
demand for educational facilities. n all public consultations, too, participants expressed a
high demand for education, including for girls.
Many children today are the first in their families to attend school and, as tomorrow's decision
makers, will have a significant impact on social and economic development. f parents are
convinced about the usefulness of education, children will go to school. Teachers are able to
influence the attitude of parents. As such, their role in increasing enrolment and student
retention is critical.
No official data is available for teacher absenteeism but during SDP field visits many local
residents complained of high absenteeism among teachers in their areas. Being forced to hire
26
teachers from the settled areas is part of the problem, as is the lack of monitoring, support
and motivation. Transportation is consistently raised as an issue, particularly by female
teachers working far from their families, who also express concern about the cost of
transportation.
From the primary to secondary level, government schools in FATA employ nearly 20,000
teachers (GoNWFP, 2005a). Of this number, women constitute 29 per cent overall but make
up only 10 per cent of teachers at the high-school and higher-secondary level. Between 1995
and 2005, the number of primary teachers has risen by 40 per cent, with a 69 per cent rise
in the number of female teachers and an 11 per cent increase in male teachers. At the
secondary and higher-secondary level, an overall increase of 49 per cent is seen during the
same period but with a 42 per cent rise in the number of male teachers and only a 7 per
cent increase in female teachers (GoNWFP, 2005a).
There are three Bachelor of Education (BEd) colleges in FATA, only one of which, at Jamrud
in Khyber Agency, is for women. All three are affiliated and registered with universities, which
serve as the examining bodies for the BEd qualification. The shortage of quality teacher-
educators challenges the expansion of BEd programmes and makes it particularly difficult to
increase the number of female teachers. Many teachers appear for BEd exams as private
candidates without receiving any formal training, since they are only required to have one
year of teaching experience to take the exam. Of the 92 per cent of teachers who are
reportedly qualified (75 per cent are women), it is likely that many have received no formal
training (FATA Directorate of Education, 2006).
The current curriculum for teacher education emphasises theory rather than practical skills
and awards almost no attention to information and communication technologies. Teachers fail
to cultivate creative thinking, inquiry or problem-solving skills. SDP field visits found that
several teachers at the Jamrud Government Elementary College for Women, who have
received some overseas training in student-centred methods, incorporate this approach into
their teaching. n general, though, government teachers receive little or no coaching or
mentoring, particularly in comparison to teachers in private schools. Most private-school
teachers, meanwhile, may be academically better qualified than public-school teachers but
are not trained professionally. Nevertheless, the standard of education in private schools is
higher than in government schools, possibly as a result of better management and
supervision (WEF, 2000).
The low level of literacy is a significant cause for concern, along with poor enrolment and
high drop-out rates. For both boys and girls, factors that deter primary enrolment and
discourage continuation into secondary schooling include poverty, the perceived low economic
impact of education, improperly sited schools, the lack of parent involvement, teacher
absenteeism and an insufficient number of schools where they are most needed. An overly
theoretical curriculum, coupled with poorly trained teachers, make schooling less engaging for
students.
Among girls, enrolment is affected by the shortage of girls' schools and female teachers, as
well as social factors such as early marriage, cultural taboos and tribal enmities that make
travel hazardous. Poverty also affects girls more severely, since poorer families who may be
able to invest in some education for their children will invariably award priority to sons.
While overall enrolment is low, it is lower still among girls in primary school and falls even
further at the secondary level. Few girls progress to the point that they are able to pursue
higher education, leaving FATA with insufficient numbers of women to become secondary
Main Issues
27
E0UCATIDN
teachers or provide other professional and technical services, especially in sectors that
require female service delivery, such as health care.
Tribal leaders exert considerable influence over school location and use. Decisions regarding
the establishment of schools and the allocation of teachers and other resources are often
based on political interests rather than a systematic data-based approach. There are a large
number of small schools with meagre resources and too few students, leading to high cost-
inefficiencies. This undercuts potential economies of scale and has made supervision, support
and maintenance more difficult. Problems of mobility and issues of access undermine
learning attainment.
Limited information about the functioning of schools prevents families, especially poor
families, from having a say in their children's education. The insular nature of tribal society
and low education among parents hinder understanding of the importance of education. Many
parents do not see education as a means to equip young people with marketable skills that
will help enhance the family's economic status.
Although there are over-supplies of male teaching candidates, there is a shortage of female
teachers, especially at the secondary and higher-secondary levels. Some schools, particularly
in major towns, have far too many students per teacher (100+:1) and are finding it difficult to
recruit instructors from the settled areas. Salaries are not commensurate with the work, so
that primary teachers receive half the pay of secondary teachers. n the absence of hostels
for married teachers, many qualified candidates are reluctant to work in remote areas
because they are separated from their families for long periods. solation from families,
inadequate hardship allowances and security concerns make teaching in FATA unappealing in
general.
While teaching may be an unattractive prospect, learning fails to inspire students.
nstructional methods are traditional, and involve the teacher reading from a book and
eliciting choral responses from the children. Students are not taught to think for themselves,
to analyse or solve problems, and schooling fails to provide opportunities for mental
engagement and self-expression. Few teachers are proficient in the English language and will
not be able to comply with the recent policy requiring English to be used as the medium of
instruction. Corporal punishment is common.
For both teachers and students, access to educational institutions is difficult, particularly in
remote rural areas. Public transportation is unreliable and not appropriate for female students
and teachers. There is no facility currently available to pick up and drop off female students
and teachers sufficiently close to their schools and homes to ensure their safety and reassure
their families. This contributes to low enrolment, increased absenteeism and tardiness.
The education directorate is understaffed, with no change in the number of managerial
personnel for more than a decade, despite a substantial increase in the number of students.
There are only three women on a managerial staff of 81. Agency education offices are also
understaffed and women are under-represented.
There is little accountability in the education system. Absenteeism among teachers and head
teachers is high, and actual instructional time is often less than specified in the regulations.
Leave policies are frequently abused, and not consistently documented or monitored.
Seniority-based promotions undermine quality teaching. School monitoring is infrequent, and
financial management is neither transparent and rational, nor efficient. Political interference
contributes to a lack of transparency and accountability. Scholarships are disbursed through
political agents and some female students report not receiving their scholarships even though
their brothers have received their awards. The capacity of all actors in the education system
in underdeveloped.
28
Past and Ongoing Initiatives
Strengths, Opportunities and Lessons Learned
Federal government programmes address quality assurance, school rehabilitation, training
and resource centres, technical and science education, adult literacy, and the 'Education for
All' programme. Other federal initiatives include streamlining madrassas; introducing the use
of information technology; scholarships for girls, talented students and teachers; training for
teachers, managerial staff, EMS staff and faculty at teacher colleges; and training school
teachers to use computers.
A number of donors are also providing support for efforts to improve education, including the
Asian Development Bank (ADB), the Canadian nternational Development Agency, the
Embassy of Japan, Deutsche Gesellschaft fr Technische Zusammenarbeit (GTZ), the
Norwegian Agency for Development Cooperation, the United Nations Children's Fund,
UNESCO, USAD and the World Bank (WB). Donor projects address science education,
teacher pre- and in-service training, scholarships for girls, school construction and
rehabilitation, classroom tents, community and child-friendly schools, parent-teacher
associations, school supplies, library equipment, monitoring, and learning assessment.
Recent international attention focused on the tribal areas has increased resources available
for education. At the same time, demand for education has grown substantially within FATA,
as evidenced by increases in student enrolment. SDP consultation sessions also confirmed
that education, including for girls, is a top priority for the people of the tribal areas.
Recent activities carried out by the education directorate and the Civil Secretariat FATA are
encouraging, and include a number of initiatives to address serious change. Also of note is
the FATA education website, which provides statistical summaries as well as data for each
school, agency and FR.
Studies conducted elsewhere in Pakistan can provide guidance for education development in
FATA (ESRA 2006; GTZ, 2005; UNESCO and GoP, 2002). Common recommendations that
emerge from these studies include hiring local teachers, improving teacher training, using the
l ocal l anguage i n rural pri mary school s, provi di ng remedi al i nstructi on, suppl yi ng
supplementary learning materials, having head teachers serve as instructional leaders,
showing respect and care for students, streamlining the curriculum to make it more relevant
to rural communities, ensuring teacher attendance, setting realistic expectations, and
allocating sufficient resources to change teacher behaviour. To bring about change in
teaching habits requires extensive coaching, practice and feedback, as well as the
strengthening of subject knowledge.
Other lessons come from an evaluation of WB investment in education over the last 15 years
(Andrabi et al., 2002). This study finds that the focus of most projects has been on inputs
instead of outcomes. For example, the number of teachers trained is counted but changes in
teacher behaviour are not documented. Similarly, enrolment is recorded but student learning
is not assessed. USAD's Education Sector Reform Assistance (ESRA) programme and the
GTZ's Education Sector Development Programme are notable exceptions in this regard, since
they measure student learning, while ESRA also measures changes in teaching behaviour
and head teacher behaviour. The WB evaluation, however, reveals that only 20 per cent of its
projects had an explicit objective to improve learning outcomes. The WB study also finds that
while 69 per cent of its projects achieved expansion goals, with enrolment increasing,
relatively few projects had stated objectives to reduce drop-out and repetition rates.
Projects that focus on improving learning outcomes are generally successful. The WB
experience suggests that accountability and supervision mechanisms should be adapted to
29
E0UCATIDN
assess learning outcomes, and that improving learning outcomes should be at the heart of all
support for education, with a particular focus on achieving equity for disadvantaged groups
(Andrabi et al., 2002).
The WB report also highlights the need to base monitoring on a systematic institutional
analysis that takes into account incentives for both officials and teachers. t recommends that
individual and system-wide indicators be monitored, and incentives used to encourage staff to
improve and apply technical skills.
The SDP aims to improve the functioning of the education system in order to make
education a major agent of change in the tribal areas. To achieve this objective, the
following broad strategic measures are required:
Enhance awareness of the value of education.
ncrease access to education at all levels, and across all agencies and Frs.
Raise the number of local teachers, particularly female teachers.
Substantially decrease drop-out and repetition rates.
Promote the acquisition of basic knowledge and skills.
Regularly assess classroom teaching and student learning.
Base decisions related to support, improvement and upgrading on measurements of
performance and learning.
Develop accountability mechanisms for effective monitoring and evaluation.
nvolve parents' organisations in monitoring the performance of schools.
mprove the quality of teacher education.
Provide sustained and practical training for teachers.
Build the capacity of the education directorate to ensure effective and efficient service
delivery.
Develop an overarching, long-term educational vision to change attitudes and enhance
the value of education through sustained communication campaigns.
Conduct a visioning exercise and hold regular (biannual or annual) consultation sessions
with representatives from all segments of the population.
Use the media and other locally appropriate means of communication to change attitudes
regarding matters such as the importance of girls' education, especially at the secondary
level; the value of higher and technical education; the participation of parents and the
community in school management and monitoring; and the importance of accountability
and transparency.
Construct new schools and rehabilitate existing schools, using a rational and politically
transparent system of school siting. Rent space in locations where schools cannot be
constructed quickly. Before establishing girls' schools, canvas the opinion of women from
Objective and Strategies
Priority Interventions
Visioning and VaIuing Education
EnroIment
30
the community.
Provide amenities such as water, electricity and latrines, and address gender-specific
concerns such as the need for boundary walls and reliable transportation.
Create consolidated katchi-to-Class X schools, where appropriate, to increase cost-
efficiencies and enrolment. These consolidated schools and colleges will house high-tech
resource centres, possibly in partnership with the private sector. Larger schools can also
serve as training facilities and resource centres for clusters of nearby schools.
Build hostels for female students and teachers. Provide family housing for married
teachers. Larger schools offering accommodation to individual teachers and some
families will relieve teachers' sense of isolation and increase their sense of security.
Devise an attractive salary package for well-qualified teachers.
ncrease the hardship allowance paid to female teachers to attract qualified candidates
from the settled areas.
Award scholarships or stipends to female students in primary school (to continue with
secondary education), and in secondary school and college (to pursue teacher training
and technical education).
Provide transportation to and from school for girls, using private companies in areas
where appropriate public transportation is not available.
Offer afternoon courses for students of Classes X and X to promote skills development
and economic self-sufficiency.
ntegrate the formal primary curriculum with the madrassa curriculum, using incentives
such as the provision of teachers and resource materials.
Create incentives for private schools, such as tax exemptions, teacher training and
learning materials.
Establish separate morning and afternoon shifts in overcrowded schools.
ncrease overall literacy by offering skills development and adult literacy courses after
school and college hours. Literacy training, recruitment and the establishment of literacy
centres may be contracted out to non-government organisations. The FATA Education
Foundation, established in 2006, should play an active role in this regard.
Provide education to children with special needs. At selected centrally located schools,
arrange afternoon shifts with facilities and teachers for those special-needs students who
cannot be mainstreamed. Develop a special-education curriculum with the flexibility to
meet individual needs, and integrate this curriculum into teacher-education curricula.
Monitor teacher behaviour and actively discourage physical and verbal abuse in the
classroom.
Make education economically beneficial. ntroduce technical and vocational training at
existing middle and secondary schools, as well as in colleges.
Provide sustained training and classroom-based coaching to public, private, community
and madrassa teachers, as well as school heads, agency education officers (AEOs) and
assistant agency education officers (AAEOs). Training should cover activity-based, child-
centred teaching and learning; the effective use of questioning strategies and subject
content knowledge; strategies to promote analytical thinking, problem solving and
creativity; and conflict prevention and resolution. Training may be provided at high-tech
resource centres to be set up at consolidated schools.
Capacity
31
E0UCATIDN
Information-Based AccountabiIity
Devise an intensive programme to develop the English language proficiency of teachers.

English should be a compulsory subject for all students at all levels.
Establish a system of academic mentors for teachers. Train mentors to provide school-
and classroom-based coaching and support. ntensive and sustained training and support
will be provided to the point that a teacher is able to demonstrate mastery of critical
knowledge and skills. Academic mentor positions should be allocated at a rate of one
position for every 25 teachers and should be added to the regular budget, including the
cost of reliable transportation. Mentors should themselves be excellent teachers, and
trained to provide support and coaching. The responsibility of AEOs and AAEOs will be to
carry out administrative tasks.
Contract out intensive, two- or three-month teacher education programmes to private-
sector teacher education institutions. The focus will be on child-centred teaching and
effective learning, and will include not only aspiring teachers but also current faculty who
have not been trained.
Observe, measure and document changes in teaching practice. Set reasonable learning
expectations.
Establish standards and measures of quality teaching, and standards for teacher
education.
Train school management councils (SMCs) to support and monitor schools. Parents need
to understand what constitutes good teaching and learning, and to develop the ability to
form and operate SMCs.
mplement a system for school improvement through SMCs at all primary schools, and for
remedial instruction at middle and secondary schools, to make up for learning
deficiencies as a result of poor instructional quality at the primary level. Award SMC
school improvement grants.
Change teacher and head teacher promotion policies to reflect regular school attendance
as monitored by SMCs, improvements in teaching and student learning, higher student
performance and retention, and participation in professional development.
Use technology-based multimedia tools to support capacity building. The use of
information and communication technologies can help to ensure consistent quality,
particularly in the absence of sufficient training colleges, and can be cost-effective when
used with large numbers of people. Many such training programmes have already been
developed and need to be adapted to the local context. n this connection, centrally
located secondary schools and colleges with computer facilities need to begin by offering
computer literacy training to teachers.
Set up modern training facilities with the help of public-private partnerships.
Ensure that electricity supply is available, to allow information technology-based
interventions.
Provide training to all stakeholders in financial management, planning, policy making,
budgeting, monitoring, school and college management, implementation, the use of an
information-based accountability system, and gender sensitisation. Training will also be
needed to allow directorate staff to accommodate the changes brought about by the
partially devolved system.

Develop a more effective system of accountability by outsourcing annual monitoring and
evaluation, establishing and training SMCs, increasing the number of AEOs and AAEOs,
and establishing a performance-based promotion system.
32
Student Learning
Empowerment
EmpIoyment Prospects for Students
Select school heads on the basis of management potential and hold them
accountable for improving student learning, increasing enrolment and monitoring
teaching.
Upgrade and update the EMS, and develop staff capacity at the secretariat,
agency and FR levels. The active involvement of political agents and the media
can contribute positively to a more effective system of accountability.
Form education monitoring committees (EMCs) to oversee service delivery at the
agency and FR levels, to serve as a mechanism for public feedback, and to
encourage transparency.
Hold policy dialogues with agencies, FRs, the Secretariat, the education directorate
and other relevant groups. Actively engage all levels in addressing problems of
conflict, corruption and lawlessness, particularly with respect to the manner in
which these factors affect education.
Develop and administer annual criterion-referenced tests of student learning.
These tests for students at the primary level will measure reading, comprehension,
writing and the practical application of mathematical skills, with separate
components to assess Urdu and English language proficiency.
Ensure that the tests are comparative, widely published and used for decision
making.
Prevent 'teaching to the test' by providing instructors with descriptions of the
summative skills that will be measured.
Enable parents to take steps to ensure that their children have access to high-
quality teachers and schools. Empowerment activities will include training,
community involvement, policy dialogue, communication campaigns and the use of
data for decision making.
Empower teachers by improving their capacity. Students will be empowered
through a teaching-learning process that values their views and ideas, and
encourages analytical thinking and problem solving. For parents and communities,
empowerment will come through awareness, so that they are able to ensure that
schools are appropriately situated and well maintained, and teachers are in the
classroom, teaching in ways that promote learning. Parents also need to be able
to influence the political and administrative authorities.
Make education-sector data available to all teachers, schools, SMCs, AEOs and
political authorities. This data will cover a wide range of areas including student
learning, drop-out rates, student retention, completion of schooling, and teacher
and student attendance. Accurate information will empower stakeholders to take
correcti ve acti on where needed. Data-based websi tes can al l ow di rect
communication and feedback across all levels of the system, and may be used to
support monitoring.
Ensure that students master reading, writing and basic mathematical skills before
33
E0UCATIDN
leaving primary school.
Encourage students to develop an understanding of the practical applications of
academic content in real-life situations.
Offer employment-related skills development courses to students and adults outside
regular school hours.
Provide basic skills training, beyond literacy, to young people who have missed the
opportunity to attend primary school.
ncrease the number of vocational and technical centres that provide market-relevant
training, and add vocational or technical programmes to the secondary school curriculum.
Ensure that students with scholarships who attend professional colleges and universities
on reserved FATA seats return to the tribal areas to serve for two or three years, or
repay their scholarship award in full.
Encourage private-sector schooling by providing incentives, while ensuring accountability.
Promote public-private partnerships, and strengthen partnerships already in place.
Replicate successful models on a wider scale in receptive areas.
Research and Evaluation.
Conduct research and evaluation studies of all key aspects of the education sector,
including teaching quality and student learning.
Report findings broadly and ensure that the findings are used for decision making.

n the consolidate phase, the scope of interventions launched on a priority basis will be
widened. The vision articulated in first phase will be revisited. Sessions will be conducted
within communities, providing data-based status reports on progress towards achieving
targets.
The ADP allocation for education in the financial year 200102 is not reported. The ADP
allocation for the financial year 200506 is 1.103 billion rupees. The proposed budget
for SDP interventions over the first five-year phase and the consolidation phase of four
years is shown in table 11.
AvaiIabiIity of LocaI ProfessionaIs
Private SchooIs
ConsoIidation
Budget
34
E0UCATIDN
35
TabIe 11: Education (FATA SDP budget, 2006 -15)
Activity Budget (miIIion rupees) Major Expenditure
Years 15 Years 69

Total

Visioning exercise, may be
combined with SMCs and EMCs
5.00 2.00 7.00 Two sessions per year, per agency/FR.
Resource person fee, travel, lodging

Communication campaign 30.00 20.00 50.00 Contract with behaviour change organisation
Research, design and implementation

Construction of new schools and
provision of facilities in existing
schools
5,000.00 3,000.00 8,000.00 Hostels, furniture, laboratories, libraries,
learning materials. Computer equipment,
internet access. Training facilities
Establishment of 11 consolidated
secondary schools with residential
facilities
600.00 100.00 700.00 Construction costs, material, equipment
ncentives for female students and
teachers
4,500.00 4,000.00 8,500.00 Scholarships, hardship allowances,
transportation facilities
Adult literacy and skills development 54.00 54.00 108.00 Teachers, books, learning materials. Literacy
training. Assessment, evaluation
ntegrating primary curriculum with
teaching in madrassas
300.00 300.00 600.00 Teachers, books, learning materials
Facilitation of private educational
institutions
100.00 50.000 150.000 School improvement grants, learning
materials, books, scholarships
Satellite campuses of the NWFP
University of Engineering and
Technology at Orakzai and Mohmand
2,000.00 1,000.00 3,000.00 Land and construction costs. Administration
block, laboratories. Furnishing buildings,
equipment for laboratories
Empowering SMCs, EMCs; annual
student achievement tests

2,000.00 1,500.00 3,500.00 Learning achievement tests. Community
mobilisation. School improvement grants.
Upgrading EMS. Research and evaluation
nstitutional strengthening and
additional staff
1,000.00 2,000.00 3,000.00 Salary of additional staff

Capacity development and
professional training

15.00 15.00 30.00 Training for academic managers, teachers,
heads, office bearers, SMCs and EMCs.
Training facilitators, academic managers,
computer support staff
Total 15,604.00 12,041.00 27,645.00
H
ealth indicators for FATA are incomplete and in many
cases only estimates are available. These highlight the
poor state of the health care system. nfant mortality is
estimated to be as high as 87 deaths per 1,000 live
births, while maternal mortality is thought to exceed 600 deaths
per 100,000 live births. Access to health services is severely
limited, with just one dispensary, basic health unit or rural heath
centre reported in the year 2004 for every 50 square kilometres
of area (GoNWFP, 2005a), and these facilities concentrated near
the settled areas. Available bed strength in the same year
stands at 1,762 for all of FATA. Public-sector health services
available in 2006 are shown in table 12.
37
HEALTH
6
4
16*
8
168
454
* Under construction
Source: FATA Directorate of Health, 2006.
Secondary-level curative
Agency headquarters hospital
Tehsil headquarters hospital

D-type hospital, surgery, gynaecology/obstetrics

Rural health centre
Basic health unit

Community health centre, dispensary, maternal and child
health centre, sub health centre

Primary health

Primary health, community outreach
PubIic-sector heaIth institutions (FATA, 2006)
Type of service Number
TabIe 12:
There are no private hospitals in FATA, although services are offered by private medical
practitioners. These include doctors qualified from Afghanistan and the former Soviet
republics, who are not recognised by the Pakistan Medical and Dental Association, as well as
local prayer leaders and faith healers (FATA Directorate of Health, 2006). n government
facilities, the availability of human resources is lower with respect to care providers,
compared to non-technical personnel such as dispensers, immunisation staff, ward orderlies,
dais (birth attendants), and malaria, leprosy and tuberculosis-control workers (table 13).
Although detailed statistics are not available, there is evidence to suggest that operational
health facilities serve a large clientele. n the porous border areas, this also includes those
who reside on the Afghan side of the Durand Line. nformation about the disease burden is
limited. Anecdotal evidence from health care providers working in the area indicates that
communi cabl e di seases and ai l ments such as di arrhoea, pneumoni a, fever and
gastrointestinal illness are common, in addition to diabetes, hypertension and angina. ssues
in the area of reproductive health are magnified by access concerns and the dearth of
services. n terms of preventive care, there are indications of serious problems as a result of
syringe reuse (with the potential of HV infection), as well as an urgent need for drug
addiction rehabilitation services. Occupational health services are also required, considering
the mining activity in the region. Spurious (counterfeit, substandard) drugs are widely
available.
The more vulnerable segments of the population-women, children, the elderly and the
disabled-depend on others to access health services. Cultural norms discourage the
movement of women in the public sphere and inhibit them from consulting male health care
providers. Coupled with a shortage of female doctors and nurses, this restricts women's
access to health services. For younger people, the absence of constructive recreational
opportunities and the easy availability of drugs places them at risk of narcotics addiction.
Care of the elderly is a tribal custom but the lack of adequate health facilities leads to
problems in this area as well. The population is clearly bifurcated into the haves and the
have-nots. Those with the financial means to do so seek care from tertiary hospitals and
specialists in the settled areas. For those who do not have this opportunity, the choice of
providers is restricted to practitioners available locally.
The major issue confronting the health care sector is restricted access to health services,
especially for more vulnerable segments of the population. These restrictions are physical, as
a result of the great distances between health facilities; cultural, from the tribal custom of
Main Issues
38
Human resources in pubIic-sector
heaIth care (FATA, 2006)
Position AIIocated
Occupied
(%)

Source: FATA Directorate of Health, 2006.
Specialist
Medical officer
Female medical officer
Dental surgeon
Nurse
Lady health visitor
Medical technician
Non-technical
66
435
48
28
182
280
453
2,232
65
88
44
96
87
91
91
97
TabIe 13:
strict pardah (veiling) among women, which limits their movement in the public sphere; and
administrative, owing to widespread absenteeism among staff, the prevalence of rent-seeking
behaviour, the allocation of health centres for political favour, and the practice of landowners
nominating their own chowkidars (watchmen) and peons. Access is also curtailed by the type
of staff available in a particular location, which determines the range of services that can be
offered, and the general reluctance to allow non-locals to work in the tribal areas.
These limitations are compounded by the fact that modern health care practices (institutional
delivery, neonatal care) are not widely accepted. Resistance to these methods is based
largely on local custom and cultural taboos. This problem is overcome to some extent in
areas where locals working in the settled district have returned home, bringing with them
knowledge gained by their exposure to modern medicine, who are better able to communicate
to their communities the benefits of modern treatment.
n areas where no means of modern health care service delivery exist, even school teachers
are known to practice medicine. This creates a wide scope for alternative forms of healing,
such as use of the taweez (talisman), dumm (verses recited and 'breathed' or blown onto a
patient), incantations and written prayers, normally offered by local clergy and pirs (spiritual
guides).
Health planning is focused on infrastructure, whereas an equally serious problem exists with
respect to the availability of human resources. n terms of services, the focus remains on
curative care or highly visible interventions involving short and intensive campaigns. This is in
large part a result of the shortage of trained public health managers. Service delivery cannot
in any case see improvement in the absence of sufficient numbers of qualified doctors. While
some 100 seats in medical colleges throughout Pakistan are reserved for students from the
tribal areas, those who graduate are reluctant to work in the region. This is complicated by
out-migration. Many FATA residents who have moved to the settled areas continue to hold
FATA domicile and are able to benefit from both worlds, making use of facilities in the settled
areas and taking advantage of subsidies and quotas for the tribal areas. Ensuring that
graduates who have qualified on reserved seats return to serve in the tribal areas is difficult.
This is to some extent an administrative issue, since FATA does not have its own health
workforce and all public employees are part of the health cadres of the NWFP. Security is
also a concern for those considering taking up employment in the tribal areas.
Geography and population density play a part in the quality of health care on offer. The
agencies bordering Peshawar are densely populated, while elsewhere the population is
shrinking. Demographic trends need to be considered in planning for the health sector.
Similarly, investment in the agencies bordering Peshawar needs to be balanced against the
likelihood of duplicating services already available in that city, and interventions need to focus
on remote areas. This is difficult in the absence of comprehensive data. FATA's exclusion
from major surveys has led to a situation where planning must rely on educated estimates
based on figures from neighbouring areas.
Poorer tribals are doubly disadvantaged when it comes to seeking health care. n remote
areas, often the only available treatment comes from traditional healers and unqualified
practitioners. n cases of serious illness, poor households are forced to take loans or sell
property in order to transfer the patient to the settled areas. This creates a disincentive to
seek care at an earlier stage when treatment would in fact be less costly.
Although direct evidence is not available for FATA, similar areas elsewhere in the country
face the issue of under-the-table payments to public-sector health care providers. Such
payments, which may be made to ensure the availability of drugs that are otherwise in short
supply or for other forms of preferential treatment, restrict access for poorer patients.
39
HEALTH
The free movement of Afghan nationals to and from health facilities close to the border, and
the refugee population in the tribal belt, create additional pressure on resources and services.
n the 200607 ADP for FATA, the allocation for health is 558 million, amounting to just 9
per cent of the total. The development budget will be distributed among 75 ongoing projects
and 19 new projects. Ongoing initiatives include national priority programmes (Expanded
Programme on mmunisation; 'lady health workers'; and the control of HV, malaria and
tuberculosis) in addition to mobile hospitals, the construction of new hospitals, the
rehabilitation of existing facilities and the strengthening of the health directorate. The federal
government is currently in the process of finalising a national maternal, newborn and child
health programme which, once implemented, will cover FATA with a proposed allocation of
700 million rupees for five years.
FATA has some relative strengths when it comes to the health sector. Communities are
organised according to tribal and clan affiliations, with strong social support mechanisms
already in place. Access to communities is simplified by the fact that the tribal and clan
structure is integrated into the political and decision-making context of the region, providing a
ready-made platform for some degree of feedback and participation. The jirga mechanism,
meanwhile, could facilitate the sharing of ideas and allow for collective problem solving. The
area has a relatively clean environment and is free from pollution. Today, there is also
growing awareness of the importance of adequate health care, and health needs are
vocalised prominently at public gatherings.
The tribal areas have seen little meaningful development in the health care sector, with most
activities in the past focusing on infrastructure. Weaknesses stem from the fact that the
system is geared towards administrative requirements and real needs have not been a
primary concern. Endemic problems of accountability and transparency in allocations have a
detrimental effect on health facilities in terms of location and staffing. Out-migration and the
low level of education give rise to an acute shortage of qualified health care professionals.
The maliki system has led to the exclusion of less prominent members of the tribe, and the
dispossessed have a limited voice in the jirgas. Despite projects launched to improve service
delivery, problems of access and staff availability persist, restricting access to health care for
the rural population. Expansion of services is difficult in the absence of adequate funding.
One important lesson from past experience is that health workers need to be local or have a
stake in the local situation. Transferring staff from the settled areas has not proved helpful.
The improvement of health care should be an integral component of development and not
limited to public-sector health institutions. Health planning should be based on ground
realities, and include public and private providers working towards a common goal. A critical
component that has so far been overlooked is preventive care. The curative aspect has
tangible outcomes and can be monetised, while the benefits of preventive services are often
more difficult to gauge. But the importance of preventive care cannot be underestimated and
should be addressed out of a common pool of finances.
t is also necessary to ensure that investment in the sector does not create inefficiency by
duplicating services that are already available in and around the settled areas, or by
providing services where they will be underutilised. The idea of quality over quantity needs to
be foremost when investing in health. The design of a few strategically placed health centres
offering quality services, supported by small clinics for routine care and referral, will be
preferable to the option of spreading resources too thin and having a large number of
40
hospitals with none providing an acceptable standard of care.
The SDP aims to ensure equitable access to health care and guarantee quality services to all
segments of the population, particularly vulnerable and disadvantaged groups. This objective
can be achieved in the following ways:
Focus on human resources and provide opportunities for the development of local human
resources by establishing paramedical schools and a medical college. This will also help
to strengthen the private sector by increasing the pool of available technical personnel.
Upgrade the knowledge and skills of existing health care providers.
Empower communities to take action for better health care. This will be achieved through
an intensive information, education and communication strategy. Knowledge is a vital tool
in empowering individuals, households and communities. Communities will be equipped
with information about preventive and curative care. This will help create positive
behaviours and increase the utilisation of services. Community empowerment should also
serve to enhance the accountability of health service providers.
Develop an information base. nformation is a vital link in service availability. Without
sufficient data, planning and resource allocation cannot be carried out effectively. The
health management information system (HMS) will not only provide input at the policy
level but will also assist in the monitoring and evaluation of ongoing programmes.
Strengthen and reorganise the management structure of health institutions, especially the
health directorate. Effective institutions are required to steer interventions, since
implementation capacity is based on the technical skills and support provided by
institutions.
Encourage the private sector and civil society to provide services in remote and
inaccessible areas, or areas where security is an issue.
Promote public-private partnerships. This will change the government's role in the health
sector. The government faces a number of difficulties in its current role as a service
provider, particularly in terms of quality and accessibility. This is in part the result of
inherent inefficiencies in the public system. The government will act as the purchaser of
the services, where monitoring will be managed in partnership with communities.
Take into account broader cross-sectoral issues such as basic human needs and
economic uplift. Basic needs (food, water, shelter) require priority attention, and only then
can the fulfilment of higher-level needs (education, health, environment) be addressed
(Maslow, 1943). n this respect, the Grameen Bank in Bangladesh can be used as a
model for the development of a comprehensive microcredit system. The initiative can be
linked to development schemes, with the government providing subsidies for microcredit
in remote areas.
Disseminate health-related information to increase awareness through an intensive
'information, education, communication' strategy.
Design communication interventions with a bottom-up approach, focusing on the
formation and identification of local groups. These groups will be counselled on health
issues and encouraged to disseminate information. This effort will be reinforced by
Education and Communication
HEALTH
41
messages from health centres and supplemented by using the local media.
nvolve local religious and tribal leaders in advocacy and awareness raising.
dentify innovative channels of communication, such as by introducing health messages
in the activities of other line departments, especially education.
Develop a strong research component to identify needs and record community responses.
Forge partnerships with health services operated by religious organisations, civil society,
and national and international non-government agencies to enhance service delivery,
particularly in areas where such organisations already enjoy a competitive edge. This can
be accomplished by taking an inventory of all service providers in FATA. n areas where
the public sector faces staff constraints or other problems, health institutions can be
jointly run with private-sector involvement. n other areas, they can be run entirely by the
private sector, with government departments taking a supervisory role. Areas will be
selected on the basis of available services and the comparative advantage of the private
sector.
Provide incentives to the private sector for service delivery in remote areas, where the
government will purchase services for the local population. These incentives can be in
the form of government guarantees to buy services, a minimum level of remuneration to
private institutions or contractual agreements for service delivery. Government subsidies
and the provision of soft loans from lending institutions can also serve as an incentive.
nvolve local community structures in the management of health services through the
formation of health facility management teams.
Strengthen public-sector facilities through adequate staffing and by providing incentives to
improve service delivery.
Reorganise health institutions and identify 'focal points'. Focal point institutions will
provide curative services through the concentration of specialist staff at these facilities.
Specialist staff can be moved from the settled areas to focal institutions on specific days
of the week. The remaining health facilities will be linked to focal institutions by making
transportation services available for referred patients and providing feedback to referring
facilities for patient follow-up.
Explore the option of using telemedicine for expert opinion and support at focal
institutions, which can be linked to medical colleges. This linkage will require high-speed
internet access.
Create incentives for health providers to work in remote areas. ncentives will be based
on geographical location, distance from the nearest service delivery point and the
population of the area.
mprove the capacity of the directorate to monitor the quality of services through skills
development, increased staff and logistical support.
Link community-based workers, such as lady health workers and the sanitation, malaria
and immunisation field teams, to health facilities. A comprehensive performance review
will be conducted regularly and, for successful cadres, opportunities will be explored to
expand the scope and reach of their activities.
Set up pharmacies and cafeterias at rural health centres and 'Type-D' hospitals (facilities
offering two specialities in addition to normal outpatient care), as well as tehsil
headquarters and agency headquarters hospitals (where four or more specialties are
normally offered), to improve access to medicines and foodstuffs. This effort could involve
public-private partnerships.
HeaIth System Strengthening
42
Information
ConsoIidation
Community health centres and civil dispensaries will provide services to a population of
around 2,000, with standardised criteria for human resources and infrastructure facilities.
Basic health units will cater to a population of between 5,000 and 8,000. Five existing
basic health units in each agency and one in each FR will be upgraded to rural health
centres.
Rural health centres will serve a population of 25,000 to 32,000. They should be located
centrally, within easy access of the target population. The involvement of community
health committees should be encouraged.
Tehsil headquarters hospitals will provide services to a population in the range of 50,000
to 64,000.
Agency headquarters hospitals should operate a human resources development centre
for basic and refresher training.
Establish a comprehensive HMS to compile statistical data on both public and private
health facilities. The HMS will include a component related to preventive services. This
will provide a solid base for monitoring and planning.
Form HMS cells in all agencies for the collection and compilation of data.
Conduct HMS training for staff and managers. Develop tools that will enable supervisors
to effectively use data.
Provide monthly performance reports to health facilities and the agency administration,
and generate quarterly and annual reports for dissemination.
Human Resource Development
Establish seven public health schools in agency headquarters hospitals to train
technicians, lady health visitors and dispensers.
Conduct refresher courses locally or send staff abroad for short training courses to
address immediate needs. To cater to long-term requirements, the establishment of a
FATA nstitute of Medical Sciences is under consideration. This facility will consist of a
100-seat medical college, nursing institute, paramedic institute and health education
institute (including public health). The institute will be linked to similar international
facilities.
Address the capacity needs of health workers with intensive, on-the-job training. Training
will also be offered to health managers. Courses will be conducted at public health
institutions within Pakistan or abroad, and will last for two weeks to three months.
Expand information, education and communication efforts, and include other line
departments in a comprehensive strategy to promote healthy lifestyles.
Ensure that health system strengthening activities focus on the public and private
sectors.
Evaluate public-private partnerships to identify successful models, which will be replicated
on a wider scale. Consolidate linkages with development partners and line departments
to foster collaborative management.
Explore linkages between the HMS and the procurement and logistics systems, and
develop a pilot scheme.
Consider options for institution-based data entry and report generation.
HEALTH
43
Budget
Approach the banking sector to finance private-sector initiatives (ambulance services,
clinics, maternity care centres).
Explore community financing, social insurance and local-level management, to strengthen
the health care system.
Link the provision of incentives to the performance of health facilities.
Separate the FATA health cadres from the NWFP health structure, to improve staff
retention.
Develop a comprehensive induction training course for FATA and institutionalise this
training as a prerequisite for joining service.
Continue skills development for staff, including managers, and arrange regular courses.
n the financial year 200102, the ADP allocation for the health sector was 456.029 million
rupees. The ADP allocation for 200506 is 993.202 million. The proposed budget for SDP
interventions is shown in table 14.
TabIe 14:
Total Years 15 Years 69
HeaIth (FATA SDP budget, 2006 15) -
nformation, education and
communication
Health system strengthening
Health management
information system
Human resource development
Total
300.00
3,500.00
500.00
4,000.00
8,300.00
200.00
2,500.00
200.00
2,500.00
5,400.00
500.00
6,000.00
700.00
6,500.00
13,700.00
Community organisation, health
management committees.
Advocacy. Development and
publishing of materials.
Supportive research. Use of print
and electronic media
Staff recruitment for hospitals.
Training and short courses.
Strengthening health facilities.
Building new facilities. Logistical
support to health directorate
Training. Private providers
database. Publishing.
Establishment of HMS cells
Establishment of public health
schools, FATA nstitute of Medical
Sciences. Capacity building of
health facility staff
44
WATEP SUPPLY AN0
SANTATDN
S
prings, streams, rivers and perennial watercourses
serve as the primary source of water for drinking and
domestic use. n mountainous areas, where natural
surface and ground sources are not available, people
rely on rain-water ponds. n the plains where surface water is
scarce, shallow wells allow the people to meet their basic
requirements.
Most of FATA is situated in the arid and semi-arid zone, with low
annual precipitation. A combination of factors, including the
large-scale movement of displaced persons from neighbouring
Afghanistan, has adversely affected forest reserves which are
critical for watershed protection. The depletion of forest
resources has reduced the water retention capacity of the soil,
while ecological and climatic conditions have led to the low
recharge of groundwater sources. As a result, many springs,
streams and perennial watercourses have dried up, forcing
people to turn to deep groundwater sources.
The fi rst publ i c water suppl y scheme i n the area was
constructed during colonial times. Built in 1919 at Ali Masjid,
Landikotal, in what is now Khyber Agency, the scheme was
designed to supply water to the nearby fort and cantonment. A
steam engine was employed to pump water to the required
45
height. Later, local residents were also supplied water through this scheme.
Following ndependence, responsibility for water supply in the area first lay with the NWFP
public works department, then with the provincial public health engineering department and
later with the FATA Development Corporation. Currently, water supply is the responsibility of
the FATA works and services department.
Official records for 200405 show that 56 per cent of the population is covered by water
supply schemes, mainly through community tanks and taps (GoNWFP, 2005a). Just 27 per
cent of supply through these schemes consists of individual residential connections. Some 85
per cent of public-sector schemes rely on groundwater, while the remainder use surface
sources. The majority of groundwater schemes consist of tube wells, while dug wells and
infiltration galleries using electric or diesel pumps are few in number. The normal water table
in most parts of FATA is between 300 and 500 feet. Surface schemes are gravity-based,
using slopes and gradients to carry water to distribution points. Sources developed by the
works and services department are analysed for physical and chemical properties alone, and
these results show that the water is fit for human consumption.
Water supply schemes constructed prior to 1992 are operated by the government. The
maintenance of these schemes consumes almost one third of the total budget for the sector
each year. Since 1992, however, the works and services department has only developed
water supply schemes in areas where the resident clan or tribe agrees beforehand to take
over operation and maintenance. Some 27 per cent of all schemes currently in operation
were constructed after 1992 and have been handed over to local beneficiaries. Where the
source is located within the territorial boundaries of one clan or tribe but the water is to be
supplied to another, the department requires a formal agreement between the political agent
and the clans or tribes concerned before commencing work.
n areas not covered by water supply schemes, women are responsible for fetching water for
drinking, cooking and washing, while clothes are usually washed at the source. The point
where women congregate to collect water or do laundry, known locally as a gudar, also
serves as a meeting place. Women are required to travel long distances, in some cases up to
2 kilometres, to fetch water. Where the source is located outside the area controlled by their
own clan or tribe, water is brought to the village by men and payment is made for the
service. Water was traditionally transported by donkey but today motorised vehicles are used.
Traditionally, settlements in the tribal areas have always been widely dispersed. For reasons
of security, meanwhile, communities have generally preferred to build their houses on
mounds and hill-tops. n such areas, the drainage of rainwater and domestic wastewater was
never a problem. Perhaps as a result, most communities failed to pay much attention to
sanitation infrastructure. But as the population has grown and settlements have expanded,
this arrangement is no longer safe or practicable.
The physical growth of settlements without any provision for basic sanitation is degrading the
living environment and polluting water sources. Commerce, trade and business activities, and
related services, add to the congestion. Today, the lack of adequate sanitation infrastructure
poses a serious health hazard. Children, women and the elderly are particularly vulnerable.
Recent figures on sanitation coverage in FATA are not available. Results from the 1998
housing census show that 36.86 per cent of houses have "separate latrines, 6.99 per cent
have access to shared latrines and 56.15 per cent have no latrines (GoP, 1998a). No details
about the type of latrine (flush or pit) are given in the census report, making it difficult to
assess what percentage of the population has access to hygienic sanitation facilities. Overall,
it appears that just 10 per cent of the population has access to adequate sanitation in the
form of toilets, sewerage, drainage and solid waste disposal.
46
Main Issues
The depletion of the water table has caused many existing supply schemes to stop
functioning. Water scarcity also makes it difficult to expand supply. Water supply and
sanitation services are affected by the topography of the region and the pattern of human
settlement, which make it difficult to build pipelines to scattered habitations in remote
mountainous areas. But even in major settlements and densely populated areas, adequate
arrangements for basic sanitation have not been made, creating health risks for residents and
polluting already scarce water sources. There appears to be a general lack of awareness
regarding the importance of safe drinking water and basic hygiene measures. Even at the
government and donor level, little attention has been paid to the sanitation sector.
Site selection for new schemes is often politically motivated, resulting in limited and uneven
coverage. High operation and maintenance costs for groundwater schemes, meanwhile, make
it more difficult for communities to take over such facilities once they are completed. n areas
where users groups have assumed responsibility for operation and maintenance, the lack of
technical skills to properly manage schemes is also an issue.
No updated information or consolidated database exists to keep track of services and
coverage, making assessment and comparison difficult. At the institutional level, there is
limited capacity and an inability to cope with the growing demands of the sector.
Most development schemes in the sector are funded from the ADP. More than 1 billion
rupees has been made available during the last six years for water supply development and
a total of 1,058 water supply schemes have been completed to date.
n addition to the ADP, other federal and donor-assisted projects have water supply
components. The Drought Emergency Rehabilitation Assistance (DERA) programme is a
federally funded initiative with a drinking water supply component for FATA amounting to 170
million rupees. The 'Clean Drinking Water for All' initiative funded by the federal government
provides close to 69 million rupees over a period of five years. The FATA Rural Development
Project (FRDP) is an ADB-funded initiative covering three agencies-Bajaur, Khyber and
Mohmand. This five-year project (200510) has a 632 million rupee drinking water supply
component.
n the 200607 ADP allocation for FATA, around 2 million rupees has been provided for
sanitation services.
Water supply schemes completed so far have extended coverage to a little more than half of
the population. The government operates the majority of these schemes and over a third of
the annual budget goes to pay for maintenance. A phased mechanism needs to be developed
to hand over operation and maintenance to beneficiaries. This will free up department
resources to focus on development.
There are opportunities that can be capitalised upon to improve service delivery. The terrain
may be difficult in some respects but it also allows gravity-based systems to be used for both
water supply and wastewater disposal. Available surface sources can be used to construct
small, cost-effective supply schemes for downstream households. Seasonal run-off from the
many streams and channels that traverse the area can be stored temporarily in ground
storage works, and used to recharge groundwater sources.
43
WATEP SUPPLY AN0 SANITATIDN
47
Supply schemes currently focus on groundwater exploitation, with limited attention to surface
sources. n view of the current scarcity of water and the drawing down of the water table, the
potential of surfaces source needs to be explored systematically. Another lesson learned is
that attention must be paid to areas other than water supply. The provision of adequate
sanitation services in fast-growing settlements has been ignored in the past and today poses
a serious health hazard.
The SDP aims to ensure that safe drinking water and sanitation facilities are provided to a
larger proportion of population. Strategies to achieve this objective are as follows:
Promote awareness about the importance of clean living conditions, health and hygiene.
Map water resources for informed decision making.
Extend safe drinking water supply to those communities not covered by existing schemes.
mprove the water retention capacity of the soil, in collaboration with the forests
directorate.
Harvest surface water to use for drinking and to recharge groundwater sources.
Provide hygienic sanitation facilities in major population centres.
Develop a reliable database management system for the sector.
Strengthen the capacity of the works and services department.
Build the capacity of users groups and beneficiaries, to enable them to operate and
maintain schemes.
Create public awareness at the household and community level regarding safe drinking
water, clean living conditions and basic hygiene, in collaboration with the health
directorate.
Carry out a detailed water resource mapping study in four agencies to identify stress
areas in terms of water recharge versus extraction, and to suggest rehabilitation
measures. The four agencies covered will be Kurram, North Waziristan, Orakzai and
South Waziristan; similar studies are already being carried out by the FRDP in Bajaur,
Khyber and Mohmand.
dentify feasible mechanisms to hand over government-operated and -maintained water
supply schemes to beneficiaries.
Rehabilitate and improve existing water supply schemes.
Develop gravity-based schemes to increase overall supply.
Harvest water and harness seasonal run-off by constructng surface storage reservoirs,
tanks and chambers to provide drinking water and help recharge groundwater.
Expand groundwater-based supply schemes where possible.
Provide sanitation services in larger settlements and major population centres to address
public health risks and protect groundwater from contamination.
Establish a database of sector indicators and set up a system of annual status reporting,
to allow effective monitoring.
Build the capacity of users groups and beneficiaries, to allow them to better manage and
maintain water supply schemes. Strengthen the capacity of the works and services
department.
48
ConsoIidation
Budget
During this phase, initiatives launched in the first phase will be closely monitored, successful
initiatives will be extended and replicated, and the gains will be consolidated.
n the financial year 200102, the ADP allocation for water supply and sanitation stood at
118.782 million rupees. ADP funding for 200506 is 353.876 million. The proposed budget
for SDP interventions is shown in table 15.
49
TabIe 15:
Total Years 1-5 Years 6-9
Water suppIy and sanitation (FATA SDP budget, 2006-15)
Public awareness
Water resource mapping (four
agencies). dentification of
options and mechanisms to
hand over schemes to
beneficiaries
Rehabilitation and improvement
of existing supply schemes
Gravity-based supply schemes
Water harvesting and surface
storage reservoirs
Additional groundwater-based
supply schemes
Sanitation services in major
population centres
capacity building
Total
20.00
15.00
500.00
300.00
300.00
800.00
400.00
50.00
2,385.00
10.00
5.00
300.00
200.00
200.00
650.00
250.00
40.00
1,655.00
30.00
20.00
800.00
500.00
500.00
1,450.00
650.00
90.00
4,040.00
Awareness materials, meetings,
staff salaries, management cost
Consultancy fee
Machinery, equipment, repair works
Consultancy and design fee,
machinery and construction
Salary of additional staff, transport.
Office operational expenses.
Database development, training
51
PUPAL 0E7ELDP|ENT
T
he local government and rural development directorate
handles small-scale projects such as basic sanitation,
minor roads, wells and hand pumps, and small irrigation
schemes using boreholes and open wells. Projects are
identified through a combination of community demand and
consultations with the relevant authorities, and schemes are
handed over to the beneficiaries upon completion. Most projects
are implemented on state land. Where schemes are executed on
or pass through qaumi (tribal) land, compensation is not
awarded to the tribes involved. The reasoning here is that since
the schemes are undertaken in response to local demand and
handed over to the tribes once completed, compensation is
unnecessary.
Twenty model villages in the Khyber and Mohmand agencies
have been selected for water and sanitation schemes. n Bajaur
Agency, meanwhile, drainage and pavement works have been
carried out, and a community park with recreational facilities has
been established. These initiatives need to be replicated in other
agencies.
The directorate was established in 1973. t was shifted to the
Governor's Secretariat in 2000 and to the FATA Secretariat in
2002. t is attached with the office of the political agent, who
acts as project director for all rural development schemes.
Main Issues
ConsoIidation
The main concerns for rural development are the same as those arising with respect to many
other sectors. Water scarcity has long been a chronic problem and sanitation facilities are
inadequate. Access to many rural areas is difficult, with an insufficient number of roads. This
is also an issue in terms of rural livelihoods since access to markets is restricted. Few social
and recreational facilities exist for men, women or children.
n addition to the annual ADP allocation, the sector receives funding from a variety of
sources. Several small-scale schemes have been financed by the Narcotics Affairs Section of
the United States (US) Embassy. Schemes have also been supported through the Barani
Area Development Project, the Khushhal Pakistan Programme, Prime Minister's directives,
and funds provided by members of the Senate and National Assembly. The FRDP has been a
major source of funding in the past, while small-scale projects for water, sanitation and hand
pumps in the Khyber and Mohmand agencies are currently being supported by the United
Nations Children's Fund.
Rural development initiatives involve direct contact with communities, including the poorest
segments of tribal society. As such, any improvement through this sector will directly benefit
those who are most in need. The directorate operates at the grassroots level, has direct
access to communities, and works closely with elders, maliks, counsellors and political
agents. As such, it can serve as a channel through which top-down development approaches
can be transformed into community-based approaches. The directorate can facilitate
community-level organisation and promote participation in public-sector initiatives but lacks
capacity at both the technical and human level.
The SDP aims to provide basic services and facilities to the rural areas. To achieve this
objective, the following strategic measures are recommended:
Supply clean drinking water and provide adequate sanitation facilities at the household
and community level.
Ensure access to markets from agriculturally productive areas.
Provide social welfare services for women.
Establish recreational facilities for men, women and families.
Launch schemes for drinking water supply and sanitation at the household level.
Construct farm-to-market blacktop roads.
Build recreational facilities, including parks, in each agency.
Establish women's welfare centres.
n the consolidation phase, the facilities and services developed in the first five years will be
maintained and successful experiences will be replicated in other areas.
52
53
PUPAL 0EVELDPhENT
Budget
The ADP allocation for rural development in the financial year 200102 was 19.829 million
rupees. For 200405, the ADP outlay is 36.05 million. The proposed budget for SDP
TabIe 16:
RuraI deveIopment (FATA SDP budget, 2006-15)
Water supply schemes
Farm-to-market roads
Public parks
Women's welfare centres
Sanitation schemes and
hygiene education
nstitutional strengthening
Total
150.00
300.00
70.00
100.00
700.00
15.00
1,335.00
50.00
100.00
30.00
30.00
300.00
5.00
515.00
200.00
400.00
100.00
130.00
1000.00
20.00
1,850.00
Machinery, materials, salaries,
design fee, repair works,
management costs
Machinery, materials, salaries,
consultancy and design fee,
repair works, management costs
Construction, materials,
management costs
Materials, salaries, construction,
maintenance of works, equipment,
training
nfrastructure, materials, salaries,
training, consultancy, programme
design fee
Training, equipment
NaturaI Pesource-ased
Sectors
Part
57
A
griculture is the lifeline of the people of FATA and a
pillar of the tribal economy. Small landholders, who
make up the majority of farmers, practise agriculture
mainly at the subsistence level, characterised by the
underutilisation of land and the prevalence of risk-averse
behaviours such as the cultivation of low input crops.
Of the total reported area of 2.7 million hectares, barely 200,000
hectares (a little over 7 per cent) is cultivated (GoNWFP,
2005a). Just half of all potentially cultivable land is used for
agriculture, since the possibility of reclaiming wasteland has
been largely unexplored. The soil and climatic conditions favour
the cultivation of cereals, fruit and vegetables but agricultural
productivity has remained low. n terms of land utilisation as well
as irrigation, FATA lags far behind the NWFP and the country as
a whole (table 17).
ACPCULTUPE
Pakistan NWFP FATA
AgricuIturaI Iand use
(Pakistan, NWFP and FATA, 2003 04) -
Land use
Cultivated area (% of reported area)
rrigated area (% of cultivated area)
Persons per irrigated hectare
37.21
82.0
9
29.80
54.0
24
7.35
43.6
36
Source: GoNWFP, 2005a; GoNWFP, 2005b; GoP, 2006.
TabIe 17:
A little over 40 per cent of the cultivated area in FATA is irrigated, while the remaining
farmland relies exclusively on rainfall (GoNWFP, 2005a). n irrigated areas, water is provided
through a combination of delivery systems, including tube wells, dug wells, lift pumps and
traditional communal canals. (See chapter 11 for details.)
According to figures for the year 2000, the majority of farms (34 per cent) are between 0.4
and 1 hectare (1 to 2.5 acres) in size, followed by smaller agricultural holdings of less than
0.4 hectares (23 per cent), and slightly larger holdings of between 1 and 2 hectares (19 per
cent). Cropping intensity for 19992000 stood at 126 per cent and has fallen since, to 116
per cent in 200304 (GoNWFP, 2005a). This means that most farmland produces a single
crop each year and barely 16 per cent of cultivated land is put to use during two seasons.
By far the largest majority of farms (91 per cent) are cultivated by owners (GoNWFP, 2005a).
Land tenure is governed by customary law and falls under the categories of individual, joint
family or collective ownership of the tribe (shamilat). Land settlement has not been carried
out in FATA, except in Kurram Agency, and no legislation related to agriculture or tenancy
has been extended to the tribal areas (Ali, 2003). A small proportion of farms are in the
hands of tenants or cultivated under an 'owner-cum-tenant' sharecropping arrangement
(GoNWFP, 2005a).
Crops selected for cultivation depend on factors such as topography, rainfall, water
availability, soil quality, land potential and management practices. Most of the cropped area is
planted with cereals, indicating that household food security receives priority. Wheat, barley,
maize and rice are the major cereals, while vegetables and orchards are cultivated to a
lesser extent. The irrigated midland agricultural system is based on wheat, oilseed and
pulses, with some fodder and vegetables, mainly onion in the winter (OctoberMarch), while
maize, sugarcane, rice, potato and tomato are grown in the summer (AprilSeptember).
Household income is supplemented by the cultivation of high-value produce such as apple,
apricot, date, fig, grape, peach, persimmon, plum, pomegranate and walnut. Significant scope
exists to increase off-season vegetable cultivation.
Overall production and per-hectare yields in FATA compare poorly to figures for the NWFP
and the country as a whole (table 18). Yields per hectare for rice and maize are slightly lower
than NWFP and national figures but the per-hectare yield for wheat in FATA is just 38 per
cent of the national average (GoNWFP, 2005a; GoP, 2006). Wheat production falls far short
of needs, and the deficit is imported from other parts of the country or abroad.
Women play a major role in agricultural activities. They work in the orchards and perform
other related tasks, while the men are primarily responsible for land levelling, sowing and
irrigation. n areas where women are relatively more mobile, both men and women share
TabIe 18: AgricuIturaI production and yieIds in Pakistan,
NWFP and FATA (2003 04) -
Crop Production (tonnes) YieId (kg/hectare)
Pakistan NWFP FATA Pakistan NWFP FATA
Wheat
Rice
Maize
Sugarcane
19,500,000
4,847,600
1,897,000
53,419,000
928,260
130,800
799,160
4,691,680
96,872
17,027
68,494
53,889
2,373
1,970
2,003
49,738
1,461
2,120
1,742
45,593
913
1,503
1,467
27,892
Source: GoNWFP, 2005a; GoNWFP, 2005b; GoP, 2006.
58
responsibility for weeding, harvesting, threshing and seed storage.
Poppy is still cultivated in some parts of FATA and remains a major source of income for
farmers in remote areas. Donors are providing assistance in the shape of area development
projects to find alternate means of livelihood support through crop substitution programmes
but such efforts have so far shown low substitution rates of around 9 per cent. This is partly
a result of delays in project implementation, although long-standing tribal land disputes are
also a factor. Dryland agriculture and horticulture is practised in the Khyber, Kurram,
Mohmand and Orakzai agencies.
Agricultural research facilities are available in Kurram, North Waziristan, Orakzai and South
Waziristan, and operate under the aegis of the NWFP agriculture research system. Close to
90 per cent of funds allocated for research goes to pay salaries. Work is restricted to
adaptive research in fruit, except in Kurram, North Waziristan and South Waziristan where
research is also carried out for cereals and vegetables under the Southern FATA
Development Project (SFDP), supported by the nternational Fund for Agricultural
Development.
Agricultural activity in FATA is unfocused. Extension services are inadequate, marked by
inefficiency and a shortage of skilled staff, while research facilities such as laboratories and
experimental farms are lacking (FATA Directorate of Agricultural Research, 2005). There is
poor coordination between various actors involved in land and agriculture management, and
procedural problems arise particularly when it comes to purchasing dryland agriculture
implements and machinery. Funding for extension services is inadequate and the release of
funds is frequently delayed.
Water is also a serious concern, not only in terms of scarcity in general but also because of
inefficient use in areas where it is available. nefficiencies lead to low production. Farm inputs
are another area that require urgent attention. Farmers lack access to improved seed
varieties and do not have the skills to produce high-yield seeds. Other inputs, such as
fertilisers and pesticides, are also in short supply. Where inputs are available, quality is
suspect, and no legislation has been extended to the tribal areas for the purpose of
regulating the standard and reliability of farm inputs. Poverty also plays a part in lowering
agricultural productivity. For example, many households use farmyard manure as fuel for
cooking, instead of using it to fertilise soil.
Credit is not available through mainstream financial institutions. As a result, cash-strapped
farmers turn to private lenders offering highly unfavourable terms. Marketing problems persist
in the absence of adequate infrastructure such as grading plants, cold storage facilities and
farm-to-market roads. This creates waste and lowers the sale price of agricultural produce.
Land use patterns need to be examined as well, to see where inefficiencies are occurring.
The lack of vegetative cover has led to severe soil erosion, while little or no progress has
been made in reclaiming wasteland for agriculture. There is a general lack of preparedness in
the agricultural research system to cope with drought, which also has a detrimental effect on
production. n fact, agriculture research is required at all levels. Laboratories need to be set
up, staffed and equipped, and the scope of research should be broadened to include crops
other than fruit, which is the current focus. Another factor that hinders development of the
sector is the lack of reliable baseline data concerning agricultural production.
The core competencies of all actors in the sector need to be addressed. Capacity constraints
exist at the agency level but farmers also require training. Sustaining soil fertility is another
area where knowledge and skills are lacking.
Main Issues
59
ACPICULTUPE
Over the years, a number of projects have been launched through the ADP. These have
covered a range of activities including the reclamation and development of cultivable
wasteland, off-season vegetable cultivation, fruit nursery farms, grafting wild olives, tea
cultivation, the introduction of cherry and pistachio, block plantation of improved varieties of
dates and jujube, support services for apple orchards, farm services centres, strengthening
agriculture extension, the introduction of beneficial micro-organisms technology, improved
seed crops, seed production and demonstration farms, expanding agricultural activities, the
intensification of horticulture, adaptive research for fruit cultivation, tube wells for irrigation
and drinking water, scholarships for Bachelors and Masters study in the sciences, and two-
year field assistant pre-service courses.
Donors have also supported the sector. The Bajaur Area Development Project, Khyber Area
Development Project and Mohmand Area Development Project, initiated with support from the
Narcotics Affairs Section of the US Embassy, focus on the eradication of poppy cultivation
through crop substitution. The SFDP operates in Kurram, North Waziristan and South
Waziristan, while the ADB launched the Barani Area Development Project in Orakzai Agency
to promote agro-based activities and adaptive research. The main focus of these projects has
been to bring a larger area under cultivation, improve the use of water resources and provide
access to farm inputs.
Similarly, the Sustainable Plains Development Programme (SPDP) is working in the Khyber,
Kurram, Mohmand and Orakzai agencies to control land fragmentation, reclaim wasteland
through collective farming, develop a system for the collective use of physical infrastructure,
and promote collective marketing. Dryland orchards have been established over an area of
about 8,000 hectares (20,000 acres). Land, labour, accommodation and stores are provided
by the community, while the SPDP develops the land. A committee of elders, with
representatives from each khel (clan or tribe), supervises the process and distributes income
from the farms. Developed and established farms are handed over to communities without
recovering the cost of investment. Ongoing initiatives under the SPDP include river training
through vegetative engineering and the 'Green Valley Kurram' project which carries out
agricultural development activities, including the establishment of dryland-appropriate
technology.
Between 1990 and 1995, adaptive research on fruit was carried out in Kurram, North
Waziristan, Orakzai and South Waziristan. This effort was expanded under the SFDP to
include cereals (wheat and maize), off-season vegetables, and training in improved
agricultural practices. The FRDP, meanwhile, provides assistance in the identification,
selection and transfer of agricultural technologies through training and field demonstrations,
with the participation of farmer groups. t has three components: integrated resource
management; community infrastructure development; and project planning, management and
support.
The second phase of the DERA project is being implemented in various agencies. Funded by
the ADB, WB and federal government, DERA focuses on restoring and improving the
productive capacity of drought-affected communities. Other projects in the pipelines cover
agribusiness development and diversification, strengthening crop reporting services,
agriculture sector linkages, land levelling and reclamation, and the conversion of unproductive
land.
Many important lessons have been learned through the experience of past initiatives in the
agriculture sector. Despite efforts to improve irrigation, water conveyance has remained
60
inefficient. Scarcity today is a serious concern, and water conservation and high-efficiency
irrigation systems are required. Vast tracts of cultivable wasteland exist, holding the potential
to increase the livelihood security of many households currently struggling to eke out a living.
This effort needs to be expanded systematically.
With appropriate farm inputs and the careful application of technology, production can be
enhanced significantly. Extension services should focus on key agricultural products that
enjoy a comparative advantage. Value addition will help to create commercial thinking and
practice among farmers. The question of marketing infrastructure will need to addressed as
well, particularly in the case of horticultural crops which have a shorter shelf life. Research
activities, meanwhile, need to be problem oriented, to produce innovative and state-of-the-art
technologies for specific agricultural products.
Reform on a broader level is also required if agriculture-dependent communities are to derive
the full benefits of their labour. n many cases, the fragmentation of landholdings means that
only subsistence-level agricultural activities can be carried out on small parcels of land.
Among other things, this undermines commercial prospects for agriculture. Coordination
among various departments is almost non-existent, resulting in unproductive planning and the
failure to properly manage natural resources.
Agriculture is the mainstay of the rural economy and the primary occupation of the majority of
households. mproving agricultural practice and production can have a direct and dramatic
impact on poverty alleviation. Potential strengths lie in reclaiming cultivable wasteland,
developing off-season fruit and vegetable cultivation, promoting arid agriculture, increasing
the social acceptability of dryland agriculture, and developing efficient systems to utilise water
resources. Opportunities exist in the shift from subsistence agriculture towards market-
oriented production, especially for high-value crops. The possibility also exists to access
markets in Afghanistan and Central Asia.
The SDP aims to increase the contribution of agriculture to the local economy, making it a
key source for sustainable livelihoods in the area. A people-cantered approach is critical, so
that inputs and support can be provided where they are needed most and where they will
provide the most benefit. This plan will be implemented by means of the following strategies:
Support the shift from subsistence agriculture towards market-oriented production.
Adopt a 'pocket area' approach to designate zones where one specific crop with a
comparative advantage will be promoted.
Reclaim cultivable wasteland for the benefit of poor households.
Expand the availability of water and improve the efficiency of supply systems, in
collaboration with the irrigation and water management sector.
ncrease the income of farmers by providing loans, access to markets and quality
agricultural inputs.
Maximise soil efficiency, minimise farm inputs, improve the quality of farm products and
reduce post-harvest losses by introducing environment-friendly and area-specific
research-based technological packages.
mprove agricultural data collection, compilation and analysis for effective planning and
monitoring.
Develop the institutional and human resources of government and non-government
service providers, and improve the working of existing farm services centres.
61
ACPICULTUPE
ConsoIidation
Budget
Adopt the 'pocket area' approach to focus on the production of specific crops in identified
production zones, providing the necessary facilities, inputs and extension services. This
effort will involve collaboration between the government, local farmers and the relevant
industries. n such areas, industries will play a major role in agriculture extension
services, including phytosanitary measures, storage pre-processing and marketing, as
well as the provision of appropriate seeds.
mprove water management practices in collaboration with irrigation and water
management authorities, by introducing efficient water use technologies, and constructing
small dams, ponds and reservoirs. Carry out a technical assessment of groundwater
resources.
Reclaim cultivable wasteland through dryland agriculture.
Provide access to quality farm inputs. n this connection, legislation will be required to
tackle the problem of adulterated agricultural inputs.
ntroduce the use of bio-pesticides.
nvolve women in service delivery.
Ensure the availability of microcredit.
Strengthen and expand agricultural research activities.
Carry out adaptive research to support the shift to market-oriented production.
Promote agro-forestry, off-season vegetable production and olive cultivation.
Provide infrastructure and facilities for marketing agricultural products.
mprove the compilation of agricultural statistics.
Develop linkages for technical assistance.
Strengthen the agriculture extension and agriculture research directorates. ntroduce
performance-based budgeting.
Build the capacity of all players in the agriculture sector. Develop human resources and
up-scale the skills of technical staff.
During the second phase, interventions launched in the first five years will be strengthened.
Based on initial experience, activities such as the reclamation of cultivable wasteland will be
replicated in new areas. n addition, the following activities will be undertaken:
ntroduce extension services for women to enable half of the workforce to contribute to
improving rural livelihoods.
Diversify research activities.
Document processes and results, successes and failures, sharing this information with
the relevant institutions for improved planning.
The ADP allocation for agriculture in the financial year 200102 stood at 9.665 million
rupees. ADP funding for 200506 is 132.974 million rupees. The proposed budget for SDP
62
63
ACPICULTUPE
TabIe 19:
AgricuIture (FATA SDP budget, 2006 15) -
Development of 'pocket areas'
On-farm water management
Land reclamation
Agricultural extension and
institutional support
Women's extension services
Agricultural research
Database, management
information system
Total
700.00
500.00
3,160.00
600.00
250.00
600.00
5.00
5,815.00
300.00
200.00
2,940.00
300.00
150.00
400.00
10.00
4,300.00
1,000.00
700.00
6,100.00
900.00
400.00
1,000.00
15.00
10,115.00
dentification of potential pocket
areas and products, facilitation of
relevant industry. Facilities and
infrastructure. Farmer mobilisation.
Marketing facilities
Demonstrating new technologies
in water management
Agricultural machinery, operation
and maintenance costs. Technical
know-how. Purchase of high-yield
seeds. Establishment of nurseries
for high-yield seeds
ntegrated pest management. Farm
service centres. Microcredit schemes.
Salaries, buildings, maintenance,
transport
Recruitment, pre-service training,
transport, conducive living
environment
Strengthening agriculture research.
Knowledge-based linkages with
national and international research
institutes
Development and management.
Consultant fees, dissemination of
information, new projects
65
L
ivestock rearing is an essential component of the
household economy. Animals are a source of milk and
meat, supply draught power, and provide dung which
serves both as fuel and fertiliser. Hides, skins, wool and
other products are the raw materials for livestock-based industry.
Poultry keeping supplements the diet and provides much-needed
income support to many households.
According to the livestock census of 1996, the number of
ruminants in FATA stands at 4.89 million, consisting of 1.01
million cattle, 0.12 million buffalo, 1.37 million sheep, 2.22
million goats, and 0.17 million camels, horses, asses and mules
(GoNWFP, 2005a). The number of animals belonging to Afghan
refugees and nomads is not documented but is thought to be
considerable.
For most farm households, keeping livestock serves as a buffer
in times of hardship. f crops fail, animals can be killed and
consumed or sold in the market. The size of the herd depends
mainly on the household's capacity to purchase animal feed in
the winter and spring months, when natural fodder is thin on the
ground. Livestock productivity is constrained by feed shortages,
inadequate veterinary cover, inferior genetic potential and poorly
developed marketing facilities. Malnourished animals are less
productive and more susceptible to parasites and disease.
Animals graze on waste and fallow land while some are stall-
fed. Grazing normally takes place on common lands (shamilat),
L7ESTDCK AN0 PDULTPY
where wood extraction is also permitted but no construction of any kind is allowed.
Ownership of livestock is individual, governed by customary law, especially when it comes to
grazing.
Backyard poultry farming is part and parcel of the rural economy, with 6.7 million birds kept
by some 200,000 households (GoP, 1996). Around 400 commercial poultry farms, each with
500 or more birds, are also operating. Conditions for poultry farming are particularly
favourable in the upper reaches of all agencies, with Khyber and Kurram currently home to
the largest number of poultry farms.
Women spend a major portion of their day attending to livestock and poultry. Their access to
the latest husbandry techniques is severely limited because extension services are provided
by men. Currently, a single female veterinary assistant works in the livestock and dairy
development directorate.
The directorate was established in the late 1960s to focus on breed stock improvement
through artificial insemination (cattle and buffalo), the introduction of rams (goat and sheep),
the prevention and treatment of disease, and other similar activities. According to official
figures, services are currently provided through a network of 520 veterinary institutions, 111
of which are equipped for artificial insemination, with a total of 46 posts designated for
veterinary officers. Most such facilities are underutilised for want of inputs, maintenance and
staff. There is one semen production unit for all of FATA, located at Bara in Khyber Agency,
which also lacks adequate inputs and personnel. The artificial insemination programme has a
coverage of just 6 per cent. Extension services are weak in general, partly as a result of
financial constraints. Private veterinary services and feed shops fill the gaps in public-sector
service delivery. Donor-funded projects have also assisted the sector, supporting the work of
community livestock extension workers.
The primary role of the directorate is to file reports and submit 'complaints' (requests) to the
political agent for administrative action to control the outbreak of disease or handle conflict
over livestock, particularly with respect to nomad communities. The political agent also
exercises authority in technical matters, and has at his disposal the services of a quarantine
officer, independent of directorate, who is based in Peshawar and issues animal health
certificates.
n the agencies, the local administration designates sites for animal trading. These market
areas, which are contracted out annually by open auction, lack basic facilities. n rural areas,
hides and skins are collected by commission agents. There is no organised system for the
sale of milk and dairy products. Farmers, small-scale milk sellers and processors, milk and
dairy shops, vendors, and tea stall owners are all involved in milk marketing. Businessmen
are required to obtain permission from the political agent prior to making deals with livestock
farmers.
Livestock and dairy production is low for a number of reasons. Most livestock rearing
activities are carried out by individual households in isolation. Animals are grazed for most of
the year and become severely malnourished in areas where rangeland is degraded. The
shortage of green fodder, especially in the winter, is also a contributing factor, as is the
difficulty in obtaining other types of animal feed. Overgrazing in many areas has meant that
range resources are generally depleted. Livestock belonging to Afghan refugees puts further
pressure on already insufficient resources. With most animals poorly nourished, disease and
parasite infestation are common. Poultry rearing is affected by difficulties in obtaining the
appropriate bird feed.
Main Issues
66
The role of women in the sector has been ignored, largely because negotiating cultural
taboos and restrictions is a challenge. A simple way to address this problem, by employing
more women in the directorate, is an option that appears to have been overlooked until
recently.
Unsustainable livestock and pasture management practices are widespread, and government
initiatives do not seek the participation of local communities. But environmental conditions are
also unfavourable, with prolonged drought and water scarcity over the last decade. The influx
of Afghan refugees and the movement of nomads, with large numbers of animals, has
increased the risk of the trans-boundary transmission of animal diseases.
Support for those involved in livestock and poultry rearing is poor. Marketing services are
disorganised and animal market sites lack the necessary facilities. Farmers do not have
sufficient access to veterinary care and breed improvement, and the outreach of extension
services is restricted. At the same time, existing veterinary facilities and units are
underutilised.
Research and development is another area that requires attention. n the absence of
research facilities, no work can be carried out locally to address local needs. Comprehensive
data for the sector is not available, making planning and monitoring difficult.
n general, institutional capacity in the sector is poor, largely as a result of financial
constraints. Staff, inputs and funds for maintenance are all in short supply, and career
advancement opportunities for directorate staff are few and far between. Where capacities
exist, the security situation in some agencies hinders field service delivery. At the
administrative level, poor control over the cross-border movement of animals also affects the
local livestock economy.
Public-sector initiatives include the establishment of veterinary facilities and a semen
production unit. A model poultry farm was set up in 1992 but later abandoned as a result of
financial constraints. n the past, and particularly during the Afghan conflict starting in the late
1970s, USAD was actively involved in the livestock sector, providing animal health services
to Afghan refugees. t also constructed a civil veterinary hospital at Landikotal in Khyber
Agency.
urrently, the Kurram Rural Support Organisation is working with community-based
organisations in a number of sectors, including livestock. Khwendo Kor, a Peshawar-
based non-governmental organisation focusing on women's issues, also covers
Clivestock keeping and backyard poultry farming. t operates in the Khyber, North
Waziristan and South Waziristan agencies.
The SFDP has to date set up 403 male community organisations with a combined
membership of more that 10,000, along with 97 women's organisations with more than 1,500
members in total. These groups have been awarded 261 schemes. The SFDP has trained
both men and women to act as community livestock extension workers. t has also carried
out work in breed improvement. The ADB-funded Barani Area Development Project conducts
similar activities in Orakzai Agency. t employs women to work as stock production officers
and assistants.
Pasture and fodder development is a major component of the ntercooperation Pakistan-
funded Farm Forestry Support Project which is active in Kurram Agency, where it promotes
silvo-pastoral systems through the use of water harvesting techniques. The project supports
the plantation of fodder tree species and shrubs on farmland. Silvo-pastoral sites consist of
67
LIVESTDCK AN0 PDULTPY
seeding fodder shrubs and grasses. The DERA project also includes livestock and dairy
development in its portfolio.
The FRDP's activities include the establishment of 1,440 fodder production demonstration
plots and the sustainable management of pasture through controlled grazing in communal
land. The European Union-funded Strengthening of Livestock Support Project, which operates
in Bajaur, Khyber, Kurram and Mohmand, is involved in farmer and staff capacity building,
participatory disease surveillance and extension services.
Livestock rearing is one of the few indigenous economic opportunities available to the people.
The sector holds significant potential to improve, in a relatively short period of time, the
livelihoods of a large number of rural households. Scarcity of fodder and feed has been a
major factor in low productivity. ncreasing fodder and feed supply would also pave the way
for commercial development of the sector.
On the ground, there is a high level of interest in improving livestock production. This
demand can serve as an incentive to shift from subsistence-level activities towards
sustainable commercial livestock and poultry rearing. The private sector could assume
greater responsibility for service delivery, particularly in veterinary extension, livestock
production extension and marketing. Dairy development and livestock-based industry are
areas where opportunities for investment exist. There is also potential to improve fodder and
feed supply.
The working approach will need to accommodate the security situation in some areas, and to
take into account tribal customs and traditions. At the same time, customary rights in grazing
areas can serve as a motivational force to encourage resource sustainability.
The SDP aims to improve livestock and poultry production in order to diversify the household
economy, increase income and provide nutritional support to families. Key strategies to
achieve this objective are as follows:
mprove access to services, including animal health services.
ncrease the number of female livestock extension workers.
Make feed and fodder widely available.
mprove the condition and productivity of rangeland, in collaboration with tribes, farmers,
herders, research institutions and the forest directorate.
ntroduce new species of fodder, in collaboration with research institutions, farmers, tribes
and herders.
Enhance livestock production through breed improvement.
Set up marketing facilities for farmers.
mprove rural infrastructure and access to markets.
Declare 'pocket areas' for dairy production, with linkages to agroindustry for marketing
and service delivery.
Ensure that savings and credit services are available to support microenterprise and on-
farm income generation activities.
Enable farmers to improve marketing by providing information.
68
Feed and Fodder
Extension Support
Marketing and Enterprise
Information, Awareness and Research
Strengthen extension services to intensify and diversify production systems by adopting

appropriate technologies and promoting alternative resource management practices.
Mobilise local communities, and establish linkages with public- and private-sector
services for technical assistance and inputs.
Encourage and support the establishment of livestock- and poultry-based industry.
Develop a database, carry out resource mapping and set up a livestock management
information system to assist in planning and monitoring.
Conduct research into animal nutrition and breed improvement, focusing on the specific
needs of farmers in FATA.
Raise awareness both in policy-making circles and at the grassroots level about the
importance of the sector in terms of livelihood security, and lobby for adequate funding.
Strengthen the institutional capacity of the directorate and build the capacity of all
stakeholders.
mprove access to animal and poultry feed.
Develop cross-sectoral remedial measures to overcome feed shortages.
Support farmers in the development and use of high-yield fodder crop varieties and
fodder trees.
Expand the coverage of extension services and input supply, in terms of both area and
the number of animals, and put in place a follow-up mechanism for monitoring.
mprove access to insemination, health and livestock breed improvement services.
Support farmers in the use of improved management practices such as rotational grazing.
Encourage and support local livestock extension workers, including women.
Establish model livestock and poultry farms for demonstration and on-farm training.
Set up a livestock emergency relief cell.
Establish facilities for farmers and entrepreneurs at designated livestock trading areas.
Develop and organise a marketing system for dairy products in pocket areas.
Support market linkages and provide farmers with information on marketing.
Encourage and support the growth of livestock- and poultry-based industry.
Train farmers in enterprise development.
Carry out a detailed livestock inventory, to assist in planning and monitoring.
Develop a database and livestock management information system.
Conduct research into nutrition and breed improvement, focusing on the needs of farmers
in FATA.
Design and launch awareness-raising campaigns to highlight the importance of the
69
sector.
Assess the success and failures of past interventions, and develop a sustainable
approach for priority interventions.
Build the capacity of farmers to improve livestock and poultry production.
Provide support, particularly to women involved in livestock and poultry rearing, with a
special focus on disease control.
Strengthen the capacity of the directorate and induct more staff, particularly women, to
improve both the quality and reach of service delivery.
Develop livestock master trainers to support extension workers.
Widen the coverage of extension services, including animal health services and the
supply of inputs for livestock production.
ntroduce new technologies, adapted to local conditions, to improve livestock and poultry
production.
Replicate success stories that have emerged from priority interventions undertaken in the
first phase.
Encourage and support private-sector activities to transform small-scale poultry farming
into larger, commercially viable operations.
Strengthen cross-sectoral measures to improve feed and fodder supply.
Support farmers in scaling up the cultivation of high-yield fodder crops and fodder trees.
ncrease access to feed, fodder and markets.
Promote the establishment of livestock-based industry, including commercial dairy farms,
and encourage increased private-sector involvement in service delivery.
Update the livestock management information system and database.
Document processes, experiences and success stories, as well as failures, and share this
information with all stakeholders.
Diversify research activities.
Develop and strengthen linkages between local institutions and government and non-
government organisations and institutions for technical and financial assistance.
Support the gradual privatisation of animal health services, with a changed role for the
directorate that involves providing information, and promotional and extension materials.
mprove the capacity of farmers and staff.
Build the capacity of local and other institutions, particularly in project and financial
management, and enterprise development.
Consolidate institutional strengthening.
The ADP allocation for livestock and poultry development in the financial year 200102 was
56.3 million rupees. ADP outlays for 200506 stand at 172.13 million. The proposed budget
Capacity
ConsoIidation
Budget
70
71
TabIe 20:
Livestock and pouItry (FATA SDP budget, 2006 15) -
Extension support services
Feed and fodder development
Marketing and industry
development
information system
Research
Capacity building and
institutional strengthening
Total
300.00
225.00
250.00
20.00
100.00
300.00
1,195.00
200.00
175.00
150.00
5.00
60.00
200.00
790.00
500.00
400.00
400.00
25.00
160.00
500.00
1,985.00
nputs for model farms, livestock
emergency relief cell, breed
improvement. Training of farmers,
community livestock extension
workers. Transport,
Purchase of inputs for new
varieties of fodder and fodder
trees. Demonstration plots (land,
equipment, staff)
nformation support, marketing
facilities. Access to credit, technical
support. Livestock and poultry feed
mills. Establishment of liquefied
nitrogen plant, community dairy
units. Enterprise development
Data collection and processing.
Survey, resource mapping.
Management information system
development
Contracts (research institutions)
Staff recruitment, training,
advanced education. nfrastructure
development and strengthening
(veterinary institutions, semen
production unit). Salaries. Exerts
and specialists
73
F
orests are an integral part of the rural economy, playing
a significant role in local livelihoods particularly in
mountainous areas. Forests meet the fuel, fodder and
timber requirements of the population, besides providing
critical ecological services. Healthy forest cover helps water
retention, controls flash floods and soil erosion, provides a
habi tat for fl ora and fauna, and contri butes to a cl ean
environment. Forests create jobs, particularly in operations such
as felling, transportation, saw mills and sale depots. Commercial
undertakings as diverse as charcoal kilns and furniture factories
also rely on forest resources. At the subsistence level, the
collection and sale of medicinal plants, work generally done by
women, helps provide much-needed income support for poorer
households.
Figures for forest cover in FATA are unreliable. According to the
forest directorate, forests are spread over approximately 215,345
hectares (532,129 acres) or 8 per cent of the total area. Natural
forest covers approximately 126,424 hectares (312,401 acres),
while afforestation has been carried out over 88,424 hectares
(218,500 acres). Other sources show total forest cover to
account for approximately 1.2 per cent of the total reported area
(GoNWFP, 2005a).
Forests in the tribal areas were brought under government
supervision in 1976, with the establishment of the FATA Forest
Circle which operated under the NWFP forest department. The
FDPESTPY
Forest Circle was upgraded and renamed the Directorate of Forests in 2006 and now
functions as an independent entity. Although it is no longer part of the provincial forest
department, professional staff from the provincial department is transferred to the FATA
directorate on a rotational basis. The directorate's activities are restricted to small-scale
interventions, partly as a result of unscientific decision making, as well as the lack of
necessary administrative will and technical ability. Small-scale tree plantation, seed sowing,
sporadic soil conservation efforts and some sericulture- and moriculture-related activities have
been carried out.
With the exception of the Bajaur and Kurram agencies, FATA falls within the dry temperate
zone, experiencing predominantly arid and semi-arid climatic conditions. Forests consist
mainly of conifers and broadleaved species. Among conifers, chilghoza (Pinus gerardiana),
kail (Himalayan pine, Pinus wallichiana), deodar (Himalayan cedar, Cedrus deodara), small
patches of chir (Pinus roxburgii) and associated shrubs are found in the area. Oak (Quercus
ilex, Q. dilatata) is the dominant broadleaved species, with associated species such as ber
(jujube, Zizyphus nummularia), gurgura (Monotheca buxifolia), neem (Azadirachta indica),
amaltas (ndian laburnum, Cassia fistula) and walnut (Juglans regia) also occurring. Cover is
low or thin in drier or more accessible areas, while high-density forests stand in areas that
receive comparatively higher precipitation or are less accessible. Overall, however, forest
cover and biodiversity is declining as a result of prolonged periods of drought, uncontrolled
grazing, hunting, pressure from fuel wood and fodder collection, and unsustainable levels of
timber extraction (legally, for local use and sale, and illegally for export to areas outside
FATA).
To date, no forest legislation has been extended to the tribal areas (Ali, 2003). As a result,
legal categories of forests are not demarcated, and statutory cover does not exist to regulate
extraction and exploitation activities. Land settlement has not been carried out, except in
Kurram Agency, making individual rights over land and forest resources difficult to assess or
protect. Ownership is governed by customary law. Local tribes own all forests and pasture in
their respective areas, with well-defined boundary rights in the form of individual, joint family
or collective (shamilat) ownership. Most unproductive wasteland and dryland is collectively
owned and used primarily as pasture. n general, more influential tribes exercise greater
control over natural resources.
Major concerns related to forestry stem from excessive pressure on forest resources and
unregulated use at all levels. As a result, there has been a noticeable decline in forest
production and range resources. For fuel wood and timber, the gap between production and
use is widening, and current levels of extraction are already unsustainable. llegal felling and
the export of forest products is further damaging forest cover, with no legal mechanism in
place to monitor or regulate these activities. n the past, over-exploitation of forest and range
resources by Afghan refugees has been a serious problem. According to a recent qualitative
assessment provided by the FATA Conservator of Forests, however, use by refugees is
reported to have decreased to 25 per cent of previous levels (interview for SDP, 2006).
Forest resources will nevertheless require considerable time to recover and regain their
previous production potential. Over-exploitation and free grazing of animals have also
affected natural regeneration, resulting in the loss of biodiversity.
With forest resources rapidly disappearing, the environmental services provided by natural
ecosystems have diminished. The water retention capacity of the soil has fallen, the area
suffers from both flash floods and long periods of drought, and the quality and quantity of
fodder have been affected.
Although the rural population depends heavily on forest resources, rights to these resources
Main Issues
74
are unclear and no benefit-sharing mechanism is in place. The exploitation of forests is
controlled by influential tribals for individual gain, while pooper communities are
disenfranchised. Rights of communities are based on local customs and traditions. n the
absence of land settlement, and with no legislative framework in place, it is impossible to
secure statutory rights for individuals. There is no clearly defined system of resource
management and coordination among stakeholders is poor.
n terms of governance, the security situation in some agencies makes forestry initiatives
difficult to implement and monitor. At the institutional level, there are capacity shortfalls to
contend with in terms of skills as well as personnel. Resource allocations for forestry are
insufficient and planning is further hampered by the absence of reliable data.
Activities of the directorate have focused on nursery raising and plantation. While reliable
data is not available on afforestation, it is thought that the survival rate is low as a result of
drought and over-exploitation. nterventions to promote sericulture have been restricted to the
introduction of mulberry plants and the training of farmers.
The ntercooperation Pakistan-implemented Farm Forestry Project and the Kurram Rural
Support Organisation have assisted local communities in establishing household-level
nurseries and carrying out tree plantation on the boundaries of agriculture fields to help meet
domestic fuel wood and fodder needs.
There is a high level of awareness and interest among the tribes regarding improved forest
management and production. At the same time, significant potential exists to expand forestry
initiatives to include pasture management, the promotion of non-timber forest products such
as mazri (Mazari palm, Nannorrhops ritchieana) and medicinal plants, and activities such as
sericulture, moriculture and apiculture, as well as biodiversity and wildlife conservation. The
availability of basic physical assets and the high interest of local communities make it more
than likely that forestry promotion and related activities will be successful, if planned carefully.
Stakeholders lack the capacity to make innovative interventions. The directorate has focused
on timber, fuel wood and sericulture to a limited extent, while other high-value forest products
such as mushrooms, mazri and chilghoza have been overlooked. A working approach needs
to be adopted and adjusted according to the local context, and an economic valuation of
forestry products and services needs to be conducted and disseminated.
Secure rights to forest resources and pasture are the basis for resource sustainability. But
security is also needed in terms of law and order, so that certain areas that are currently off-
limits may benefit from forestry initiatives.
Strengths that can come into play in developing the forestry sector lie in the local tradition of
collective decision making, and in the customary collective ownership of forest and pasture
resources. Unequal distribution of benefits has been a problem but can be remedied by
including ordinary users in existing decision-making mechanisms.
The SDP aims to increase the productivity of forest and pasture to meet the needs of local
communities without sacrificing sustainability. To achieve this objective, the following
measures will be required:
75
FDPESTPY
ConsoIidation
Devise a system for resource access and use that secures the rights of all communities
and allows for an equitable distribution of benefits.
Reverse forest and pasture degradation, in collaboration with landowners and
rightsholders.
ntroduce biophysical measures to minimise flash floods and soil erosion.
ncrease the forested area through reforestation and afforestation, and by protecting
natural regeneration.
Develop innovative systems for wildlife and biodiversity conservation and management.
mplement a systematic management programme for non-timber forest products to
improve livelihood opportunities for poor communities, disadvantaged groups and women.
Reduce the pressure on forest resources by encouraging the use of alternative energy,
improving building design and materials, and introducing fuel-efficient cooking and
heating devices.
Enable decision makers and implementers to improve planning by providing reliable data,
developing a knowledge base (studies, research, resource mapping, indigenous
knowledge) and building capacity.
Assess the success and failures of past forestry programmes, and develop an area-
specific approach with high potential of acceptance and sustainability.
Develop sustainable management practices in forests and pasture.
ncrease forest cover by protecting natural regeneration, and promoting afforestation and
reforestation (including linear plantations along river beds).
Adopt multi-beneficial biophysical interventions that help reduce the impact of flash floods
and soil erosion in catchment areas (watershed management).
Support owners and users (herders) to enhance the productivity of pasture through
improved management practices (rotational grazing, more productive fodder species,
more appropriate animals).
Encourage private-sector involvement to improve building design and introduce fuel
efficient-stoves to reduce the pressure on forest resources.
dentify hotspots for wildlife and biodiversity conservation, and introduce protection
measures which provide tangible returns to local communities (trophy hunting, medicinal
herbs).
Expand successful ongoing initiatives in areas such as sericulture and apiculture.
Explore the market potential of non-timber forest products, and support local communities
in accessing national and international markets.
Develop a sector-specific knowledge generation and management system (statistics,
inventory, resource mapping, research, indigenous knowledge) for decision makers and
implementers.
Design and launch awareness campaigns, including the production of written material on
the tangible and intangible benefits of forest and pasture resources.
Develop the capacity of all stakeholders.
Replicate success stories from the implementation phase.
76
Budget
Develop an extra-fiscal mechanism (forestry pool fund) at the agency and FR level,
through which forestry development initiatives can be financed.
Document ownership and usufruct rights in forests, wasteland and pasture to create
greater investment in the environment and reduce conflict.
Share experiences and learning, successes and failures, with all stakeholders.
n the financial year 200102, the ADP allocation for forestry was 126.908 million rupees.
The 200506 outlay amounts to 287.973 million. The proposed budget for SDP interventions
is shown in table 21.
77
FDPESTPY
TabIe 21:
Forestry (FATA SDP budget, 2006 15) -
Forest and pasture management
Afforestation, soil erosion
prevention, watershed
management
Non-timber forest products
Wildlife and biodiversity
management
Alternate energy
Extra-fiscal mechanism
Documentation, knowledge
management
Capacity building
Total
1,550.00
1,350.00
300.00
350.00
300.00
150.00
30.00
200.00
4,230.00
2,150.00
500.00
250.00
200.00
150.00
0.00
20.00
50.00
3,320.00
3,700.00
1,850.00
550.00
550.00
450.00
150.00
50.00
250.00
7,550.00
Cost of consultancies and initiatives
Plant production, plantation
management. Check dams,
terracing, land levelling, river
bank treatment
Sericulture and moriculture
promotion. Salaries
Consultant, demonstration site,
restocking
Consultant, training, demonstrations
Consultant, pool fund
Field surveys. Documentation of
ownership rights. Research.
Extension and awareness-raising
material
Training, equipment
79
T
he rivers and streams that traverse the land harbour a
variety of fish, depending on the climatic regime. Cold
waters in the upper reaches are suitable for trout, while
warmer waters in the lower reaches favour carp. These
aquatic resources are ideally suited for the development of
pisciculture. Available surface water resources include 934
kilometres of rivers and streams, 1,450 kilometres of irrigation
canals, seven small dams (five of them under construction)
spread over an area of approximately 650 hectares (1,600
acres), six harnessing ponds/reservoirs over an area of 10
hectares (24 acres), 40 hectares (100 acres) of water-logged
areas and 50 springs. Groundwater extracted through 550 tube
wells and 872 dug wells can also be utilised for fish culture.
Except for rivers in which extensive fish farming is already
practised, resources need to be developed for both extensive
and intensive fish culture.
Fish farming is practised mainly at the household level, and
mostly on wasteland and marginal lands. Carp farming was
launched in 200304 and 121 carp farms covering 25 hectares
(62 acres) have since been established. Of these, approximately
100 are in operation at various stages of production. Half the
farms receive water from tube wells while the remainder use
water from streams. n 200405, a total of 22 farms of varying
size were test harvested and yielded 7,680 kilograms of fish.
These farms have been established on the build, operate and
FSHEPES
transfer principle. Farmers contribute land and water, and provide watch and ward, while the
fisheries directorate develops the farm. On the recommendation of the agency administration,
the directorate carries out a suitability survey of the site and floats tenders for construction.
Cost estimates run to 108,680 rupees per hectare (44,000 rupees per acre) of carp farm
established. As an incentive to farmers, the cost of construction and inputs such as seed and
feed is not recovered. More than 1,100 individuals have so far been trained in various basic
disciplines related to fish farming. Fish farms have been constructed for income substitution
in areas where poppy cultivation is popular.
Two trout farms, spread over 0.61 hectares (1.5 acres), are also operating. These were
established without external support. A trout fish hatchery at Malana in Kurram Agency
produces approximately 100,000 eggs and 50,000 fry. A demonstration marketable trout
production unit at Shablan in Kurram Agency was operationalised in May 2006, and is
expected to produce around 1,000 kilograms of fish. Numerous other sites have been found
feasible for trout fishery, especially in the upper reaches of FATA.
Dam fishery is in its infancy. The Kot Ragha dam in Kurram Agency and the Milward dam in
Khyber Agency have been stocked with fish seed, and test harvesting has yielded promising
results. Around 121 additional sites have been identified as being feasible for the construction
of small dams. Eight new dams are already planned in addition to five that are currently
nearing completion. According to conservative estimates, these dams will yield close to
40,000 kilograms of fish annually. This will provide a much-needed boost to fish production.
Additional opportunities will be made available through 800 water harvesting ponds/basins of
varying size which will be constructed under the SPDP.
An overall deterioration in the health of freshwater ecosystems has been witnessed, caused
in large part by insufficient conservation measures. As a result, there are only limited
opportunities to develop recreational fishing and other income generation activities in natural
watercourses. The absence of a legal framework to regulate fisheries (Ali, 2003) makes the
task of conservation all the more difficult.
ndividuals face a number of obstacles in establishing fish farms and fisheries-based
industries. The process of awarding fish farms under various schemes is politically motivated,
whi l e fi nanci al constrai nts hi nder most i ndi vi dual s from taki ng up such acti vi ti es
independently. For those already in the business, fish seed availability is a problem in the
absence of adequate seed production facilities. Access to feed is also difficult. Meanwhile,
prolonged periods of drought have led to water scarcity.
The outreach of extension services is weak, restricted by mobility issues as well as capacity
constraints within the directorate. The security situation in some agencies interferes with
extension activities.
Despite its potential, the fisheries sector has remained underdeveloped and fisheries have
received low priority. The absence of reliable data on land and water resources hinders
development planning. nstitutional strength is an issue, and capacity development is required
for farmers as well as directorate staff.
Fisheries development was introduced to the tribal areas in 1987 through the Development of
Fisheries in FATA project, which was implemented in the Kurram and Orakzai agencies. A
trout hatchery was set up at Malana in Kurram, while in Orakzai a carp hatchery was
established. Seed production was primarily intended for the replenishment and enrichment of
water bodies.
Main Issues
80
Until recently, fish farming was not widely practised. ts popularity has increased with the
implementation of a number of projects aimed at promoting farm fishery, covering six
agencies and three FRs, with a combined financial outlay of 10 million rupees. A trout rearing
facility, with a demonstration centre, has been completed at Shablan in Kurram Agency.
These initiatives are funded from the ADP.
Fish farming has the potential to increase household income and contribute substantially to
food security. Both extensive and intensive fish culture are feasible, providing a range of
possibilities for employment and income generation, and greater opportunities for participation
by groups and individuals.
Fish is becoming an increasingly popular food, and high demand creates further opportunities
to expand production in the sector. Awareness needs to be raised among farmers to take up
fish culture and benefit from this trend. ncreasing fisheries production will have the added
benefit of easing the pressure on natural populations and improving biodiversity in natural
water bodies.
Large tracts of wasteland and marginal land can be put to use for fish production. Dams,
harnessing basins and other closed water systems are also potential sites for pisciculture.
Detailed studies of all water bodies are needed for more accurate planning.
The expansion of fisheries production is linked to the growth and diversification of sectors
such as agriculture, livestock and irrigation. mproved watershed management, in particular, is
critical for the multiplication and production of fish, since a regular and steady supply of
water is required.
The SDP aims to improve fisheries production to increase livelihood opportunities and
diversify income, especially in the case of vulnerable groups and communities. This will be
achieved by focusing on the following strategic measures:
Ensure the participation of local farmers.
dentify poor or disadvantaged groups that are particularly likely to benefit from fish
farming.
Redefine siting and decision-making procedures so that poor and marginalised
communities are able to access resources currently available for the establishment of fish
farms.
Supply seed to farmers in sufficient quantities.
Establish fish seed production facilities to cater to farmers and to enrich natural water
bodies.
Define a role for private-sector involvement in fish seed production.
ncrease water availability.
mprove the condition of watersheds to ensure sustained water supply, in collaboration
with tribes, farmers, public-sector departments and research institutions.
Assist the irrigation department in monitoring and maintaining watercourses.
Conserve natural fisheries resources, focusing on the most vulnerable stretches of rivers
and streams. ncrease the natural fish population in water bodies.
Adopt measures to conserve aquatic biodiversity and improve ecosystem health.
81
FISHEPIES
Fish Farming
Extension Support
Fisheries Resources
Prepare conservation and management plans.

Facilitate the development of fisheries and fish-related industry.
mprove access to markets and develop rural infrastructure.
Provide access to savings and credit services for on-farm income generation activities
and microenterprise.
Explore the possibility of establishing fish feed production facilities, gear manufacturing
units and other industries locally. Explore opportunities to manufacture fish feed from
locally available ingredients such as agricultural by-products.
Support farmers in testing models of integrated fish farming.
Bolster and extend support services to intensify and diversify fish production through the
adoption of appropriate technologies.
Mobilise local communities, and establish linkages with public and private-sector services
for technical assistance and inputs.
Compile data on aquatic resources, develop a fisheries management information system
and knowledge base (studies, research, indigenous knowledge).
Carry out research into farm intensification and production systems.
Raise awareness at both the grassroots and policy levels about the importance of the
sector, and secure funding.
mprove the institutional and human capacities of all stakeholders.
dentify poor communities and disadvantaged groups with the potential to earn a
livelihood from fish farming.
Establish carp seed production, rearing and distribution facilities.
Strengthen existing trout fish seed, rearing and fattening facilities.
Establishment of private fish farms.
Develop dam fisheries and pond/reservoir fisheries.
Support women's involvement in activities such as fish processing, storage and net
weaving.
Promote private-sector involvement in seed production.
mprove the coverage of extension support services and input supply, and establish a
follow-up mechanism for monitoring.
Develop cross-sectoral remedial measures to overcome feed shortages, which will
become especially important once intensive fish culture is expanded.
ncrease access to improved fish seed varieties.
Support and assist farmers in setting up demonstration integrated fish farms.
Conserve and manage aquatic biodiversity.
Develop conservation and management plans for fisheries resources.
Promote community participation in fisheries management.
82
Marketing and Enterprise
Information and Research
Capacity
ConsoIidation
Strengthen watch and ward for natural water bodies.

Stock natural water bodies with fish and fish seed.
Set up marketing facilities, especially at established markets and trading sites.
Develop linkages for access to credit facilities and marketing support.
Provide enterprise development training to farmers and those working in related fields.
Ensure that information support is available to farmers in matters related to marketing.
Carry out an aquatic resource inventory and mapping.
Develop an inventory of wasteland and marginal land suitable for fish culture.
Perform feasibility surveys to select sites where fish farms may be established.
Develop a database and fisheries management information system.
Assess the success and failures of past interventions.
Conduct research in farm intensification and production systems.
Support farmers in improving knowledge about local ingredients for use in the
manufacture of fish feed.
Provide support to farmers in introducing improved management practices for intensive
fish farming.
Strengthen the directorate by inducting staff.
Strengthen fish seed production, rearing and distribution facilities.
Widen the scope and reach of extension services.
Enable farmers to establish large-scale commercial fish farms.
ntroduce new technologies adapted for local conditions to improve and diversify fish
production.
Establish fish disease diagnostic facilities.
Diversify integrated fish farming.
Replicate success stories from implementation in the first phase.
Expand dam and pond/reservoir fisheries.
Bolster the conservation and management of aquatic resources.
Develop fisheries in natural water bodies to provide income-generating activities for poor
and marginalised communities, and to support a recreational fishing industry.
Promote the establishment of fish feed, harvesting and processing gear industries.
Upscale enterprise development training.
Support private-sector involvement in fish seed production and rearing; in the
development of low-cost commercial fish farming; and in service delivery, especially fish
health services.
Creat e l i nkages bet ween l ocal i nst i t ut i ons, government and non-government
organisations, and institutions for technical and financial assistance.
83
FISHEPIES
Budget
Update the database and information management system.
Document processes, experiences, success stories and failures, and share this
information with all stakeholders; diversify research.
Continue to strengthen the capacity of stakeholders.
The ADP allocation for fisheries development in the financial year 200102 was 1.33 million
rupees. ADP funding for 200506 is 5.77 million rupees. The proposed budget for SDP
84
TabIe 22:
Total Years 1-5 Years 6-9
Fisheries (FATA SDP budget, 2006 15) -
Fish seed production and
rearing
Extension support
Dam and basin fisheries
Conservation and management
of aquatic biodiversity
Fish-based industry and
marketing development
information systems
Research
Capacity building, institutional
strengthening
Total
200.00
100.00
30.00
20.00
25.00
05.00
15.00
40.00
435.00
100.00
50.00
20.00
15.00
15.00
05.00
25.00
20.00
250.00
300.00
150.00
50.00
35.00
40.00
10.00
40.00
60.00
685.00
Construction, salaries, machinery,
equipment, gear, transport, fish
feed. Maintenance cost of
infrastructure, operational cost of
hatchery. Fish seed facilitation centres
Survey and feasibility, transport,
extension material, training.
Establishment of integrated fish
farms. Fish disease diagnostic
laboratory
Equipment and gear, seed
transportation, fish harvesting
Watch and ward. Conservation
and management plans.
Transportation, fish stocks, fish
seed. Sport fishing
nformation support. Marketing
facilities. Access to credit, technical
support. Enterprise development,
consultancy services
Data collection and processing.
Survey, feasibility studies.
Management information system
development
Contracts and consultancies
(research institutions)
Staff training, recruitment.
Construction. Salaries
Part 7
CommunIcatIons and
Infrastructure Sectors
87
T
he irrigation, water management and power sector has a
mul t i pl i er eff ect on t he qual i t y of l i f e. Properl y
constructed irrigation networks can make more water
available for agriculture, resulting in higher yields and
immediate financial returns. Efficient water management creates
additional supplies for irrigation and recharges groundwater for
multiple uses. Besides serving existing needs, the development
of the power sector allows industrial and commercial growth to
take place, and helps in the efficient management of water
sources.
Since most of FATA lies in the arid and semi-arid zone, the area
receives little precipitation over the course of a year. This lowers
the recharge rate of the subsoil aquifer, draws down the water
table and reduces the quantity available from surface sources.
Water scarcity is exacerbated by the dry spell that FATA has
been experiencing for the last eight or nine years, which has
depleted water sources. The effects vary from place to place but
are clearly visible in some areas where surface sources carry
very little water or have dried up completely. Elsewhere, the
water table has fallen by several feet. n some cases, low
IPPCATDN, WATEP
|ANACE|ENT AN0
PDWEP
recharge has meant that entire irrigation systems have ceased to function. n South
Waziristan, for example, the karez irrigation system was in use until the 1980s. A karez is an
underground irrigation channel. The system consists of a series of wells and connecting
channels, and uses gravity to bring groundwater to the surface. The low recharge of subsoil
water sources eventually rendered the system inoperable.
Most farmland is irrigated through small watercourses constructed by families, clans or tribes.
Traditional irrigation methods involve temporary arrangements and are subject to frequent
disruption. The topographical characteristics of the land and the lack of technical knowledge
among users render many such arrangements unworkable in the long term.
Today, widespread water scarcity makes irrigation all the more important. Currently, 43.6 per
cent of cultivated land in FATA is irrigated, while the remaining farmland relies exclusively on
rainfall (GoNWFP, 2005a). n irrigated areas, water is provided through a combination of
delivery systems, including tube wells, dug wells, lift pumps, surface irrigation networks and
traditional communal canals.
According to the irrigation and hydel directorate, there are 805 tube wells in all of FATA. Half
of these are, however, no longer functioning as a result of high operating costs, low electricity
voltage and the drawing down of the water table. A small canal irrigation system operates in
parts of Bara in Khyber Agency where sufficient water is available from the nearby Bara river.
n addition to tube wells, 54 schemes have been completed in high mountainous areas to
train rivers, streams (nullahs) and seasonal watercourses (khwars) in order to prevent flood
damage and utilise surface water for irrigation. Some water harvesting has also been carried
out. For this purpose, a detailed study was conducted in 2004 to explore potential sites for
small- to medium-scale dams and 121 such locations were identified. Following detailed
feasibility studies, two small dams have been built, one at Kot Ragha in Kurram Agency and
the other at Milward in Khyber Agency, with an irrigated command area of 283 hectares (700
acres). Construction on five small dams (two each in the Kurram and North Waziristan
agencies, and one in Bajaur) is in progress. Upon completion, they are expected to provide
water for irrigation to an additional 577 hectares (1,425 acres).
nitially, the NWFP irrigation department was charged with the task of developing a
professionally engineered irrigation system in the tribal areas. n 1972, the technical
directorate of the FATA Development Corporation took over responsibility for irrigation. The
Corporation wound up operations in 2002 and since then the irrigation and hydel directorate
has been responsible for the sector. The directorate develops irrigation infrastructure and
hands the facilities over to the beneficiaries for operation and maintenance. t concentrates
on the installation of tube wells in the plains, the construction of small channels from
perennial sources in mountain areas, flood protection works and the lining of watercourses.
Electricity to most of FATA is supplied from the national grid by the Tribal Electricity Supply
Corporation. Figures for 1998 show that electricity supply extends to 62 per cent of
households (GoP, 1998a). Power is provided free of cost to households and at a subsidised
flat rate to industries. While overall coverage is encouraging, low voltage and prolonged
breakdowns are a serious problem, cited as one of the reasons why industrial and
commercial development have remained sluggish.
n Khyber Agency, 67 small hydel power generation units have been constructed, each with a
capacity of 6 kW, which is sufficient to meet the basic requirements of 30 households. These
units have been handed over to village user groups for operation and maintenance, with
basic training provided. Preliminary studies have been carried out to identify potential sites
for hydel generation on a larger scale. Detailed feasibility studies are planned for the 121
sites already identified for small dams, to assess their potential for hydel generation.
88
Water rights in the tribal areas are defined by customary practices, known as warabandi
(rotational water supply) in the north and nikkat (apportionment) in the south. Customary law
provides for water rights on the basis of tribe or clan, with principles for use at the household
level. Generally, the upstream tribe or clan has the first right, while the one downstream has
the second. Where several tribes reside in the vicinity of a water source, each tribe or clan
has a fixed point for water uptake and is not allowed to move upstream or downstream from
that point. f quantities available from a particular source are limited, crops with heavy water
requirements are grown in alternate years by different tribes. Distribution of water to
households and individual farms is determined by tribe, within overall agreed guidelines. The
amount of water distributed depends on the size of the cultivated area but if water is scarce,
a neighbour's right is protected by restricting the quantities available to the larger landowner.
n cases where a water source lies within an individual's land, that person has the first right,
followed by neighbours. The maintenance of channels and watercourses is the responsibility
of the households that use them. Each family provides labour for cleaning and maintenance
according to land ownership. Households that cannot contribute the required number of
hands provide food to others when work is being carried out.
n most areas, access to water is not equitable. n the dry season, for example, outlets at
tail-end distributaries draw a fraction of their intended supply, compared to those located in
the upper portion of channels that irrigate water-intensive crops such as rice, fruit and
vegetables. This is partly the result of inefficient conveyance systems and low irrigation
efficiency. t is estimated, for example, that up to three quarters of the irrigated area serviced
by communal gravity water channels faces high water losses. Other sources are yet to be
explored in a systematic manner. Perennial springs and streams can supplement irrigation
needs, while water from flash floods can be stored to overcome shortages. n the case of
underground water, a detailed survey is needed to ascertain existing levels.
Land erosion has created a serious problem for irrigation infrastructure development. Flash
floods during heavy rains not only pose a risk to human life and property but also cause
severe damage to irrigation and drainage works. High operation costs, low electricity voltage
and a depleted water table have rendered tube wells inoperable in many areas. Farmers lack
the resources, both technical and financial, to operate and maintain irrigation superstructure
such as headworks, diversion heads and cross-drainage works.
Delivery from irrigation systems is inequitable and unpredictable, and many schemes
demonstrate a marked absence of proper planning. n many areas, tube wells have been
installed without assessing the underground water situation. Similarly, there is no inter-
sectoral coordination or consensus in the construction of small dams. Although farmers
constantly battle water scarcity, drought mitigation strategies have not been developed.
Decision making and resource distribution at the government level are carried out on the
basis of resource availability rather than technical requirements, resulting in partial services
with minimal or no benefits to users. There is limited capacity, in terms of personnel and
skills, at the directorate and its field-level offices.
rrigation development projects are mostly funded from the ADP. n the last four financial
years, ADP funds provided for 404 schemes, while in 200607 the ADP allocation will
support 19 new and 44 ongoing schemes.
The federal government's National Drainage Programme aims to improve surface irrigation
Main Issues
89
IPPICATIDN, WATEP hANACEhENT AN0 PDWEP
networks. FATA's share in this programme is 70 million rupees and work will be completed in
December 2006. The federally funded National Programme for the mprovement and Lining of
Watercourses provides 837 million rupees to FATA and is expected to be concluded by June
2008. Other ongoing initiatives supported by the government include the DERA project, with a
provision of 400 million rupees for irrigation, and Federal Flood Commission schemes.
n addition to federal funding, donor-supported irrigation programmes are also operational.
These include the WB-assisted On-Farm Water Management project for the improvement and
development of watercourses and irrigation channels. The WB outlay is 107 million rupees,
with 23 million coming from farmers. The completion date for this initiative is June 2007. The
FRDP, meanwhile, has allocated 742 million rupees for irrigation.
nitiatives taken so far have made a contribution towards promoting agricultural activity,
increasing water supply and protecting productive land from erosion. A number of important
lessons have also been learned from this experience. The water table has fallen in many
areas, and this makes dug wells and tube wells useless. n such areas, other irrigation
systems need to be developed. New techniques such as drip irrigation and sprinkling,
introduced by the SPDP, have shown encouraging results, especially in Kurram Agency. This
model needs to be replicated on a larger scale. Water storage, surface and groundwater
harvesting, and harnessing seasonal run-off in surface storage for multiple uses are all
options that should be explored. River terracing works should cover the entire reach, and not
be confined to a single portion.
The SDP aims to ensure the optimal and equitable use, and sustainable management, of
existing water sources to bring more agricultural land under irrigation, and to develop
potential sites for power generation. To achieve this objective, the following strategies will be
adopted:
Create efficient management systems for water sources and infrastructure.
Conserve and recharge underground water sources.
Harness seasonal run-off to provide additional sources for irrigation.
Harvest surface water for irrigation and power generation.
Scale up existing efficient irrigation works.
Rehabilitate non-operational tube wells in areas where groundwater is available.
Ensure that decision making and resource allocation are based on actual requirements.
Strengthen institutions, and build the capacity of stakeholders and service providers.
Rehabilitate existing irrigation networks including, where possible, those facilities that are
no longer in operation.
Train rivers and streams, and provide flood protection to make optimal use of seasonal
run-off.
Line existing watercourses and channels, and introduce efficient irrigation techniques.
Conduct feasibility studies of potential sites for small- and medium-sized delay action
90
dams, multi-purpose ponds, and small reservoirs; carry out construction and development
at feasible sites.
ntroduce innovative groundwater recharge methods.
Develop hydel power generation units to reduce the pressure on existing power supply
sources.
Provide skills development for the local operation and maintenance of schemes.
Strengthen institutions, and build the technical capacity of all stakeholders and service
providers.
During the consolidation phase, priority interventions will be maintained and more schemes
will be launched, based on experience from the first phase.
The ADP allocation for irrigation, water management and power in the financial year
200102 was 29.95 million rupees. ADP outlays for 200506 amount to 564.97 million. The
proposed budget for SDP interventions is shown in table 23.
ConsoIidation
Budget
91
IPPICATIDN, WATEP hANACEhENT AN0 PDWEP
TabIe 23:
Irrigation, water and power (FATA SDP budget, 2006 15) -
Rehabilitation of surface
irrigation schemes
River training, flood protection
Water management,
high-efficiency irrigation
Feasibility studies, construction
of 20 small dams
Construction of 450 hydel
power generation units
Rehabilitation of tube wells,
installation of new tube wells
capacity building
Total
700.00
800.00
800.00
2,160.00
700.00
40.00
250.00
5,450.00
100.00
250.00
550.00
2,165.00
418.00
30.00
100.00
3,613.00
800.00
1,050.00
1,350.00
4,325.00
1,118.00
70.00
350.00
9,063.00
Design fee, construction cost of
structures
structures
structures
construction cost of structures
structures
machinery, construction works
Salary of additional staff, transport,
office operational expenses
93
C
ompr ehensi ve communi cat i ons net wor ks ar e a
prerequisite for development. Roads and bridges
connect villages, towns and cities with each other, and
bring an improvement to the lives of those who live in
far-flung areas. By providing access to markets and allowing the
transportation of raw materials, they boost the local economy.
Journeys become more comfortable and, in some cases, long
distance travel becomes possible for the first time, enabling
more workers to seek employment far from home without
permanently leaving their families. New areas are opened up
and linkages are created with service providers in health,
education and agriculture, to name but a few sectors. A reliable
communications network also helps to increase human security
by improving law and order. All of this is as true, if not more so,
in the case of FATA.
Between 1901 and 1932, the communications sector in general,
including roads and bridges, was handled by British military
engineering cadres under a garrison engineer. n 1932, a public
works department was established to take over this sector.
Since the area that today makes up FATA was at that time
primarily of strategic importance, colonial-era development
focused on forts and cantonments, and the roads that were
necessary to provide access to these and other installations and
fortifications. As such, until 1947 just 25 per cent of the area
was accessible by road and that too for military purposes alone.
All main roads and buildings were located near or led to forts or
PDA0S AN0 8P0CES
encampments, and power was supplied only to the forts. Since 1973, the sector has operated
under the works and services department.
Compared to other sectors, communi cati ons has al ways recei ved a l arge share
(approximately 40 per cent) of FATA's annual ADP allocation but still lacks the necessary
staff, capacity, equipment and resources. Over the last five years, the allocation for roads and
bridges under the ADP has been nearly 3 billion rupees. According to figures from the works
and serviced department, total coverage extends to 3,390 kilometres of blacktop and another
2,000 kilometres of shingle roads in the year 2006. The cost of laying roads in FATA
(approximately 7.4 million rupees for 1 kilometre of blacktop and 5.2 million per kilometre for
shingled roads) is far higher than in the settled areas because of increased costs for
materials and transportation.
Current practice for the identification, processing and approval of projects involves the
preparation of a 'Planning Commission Pro Forma 1' (PC-1) for schemes under the ADP. The
agency development sub-committee, under the chairmanship of the concerned political agent,
is authorised to approve schemes with an outlay of up to 20 million rupees. Projects costing
more than 20 million but less than 200 million rupees are approved by the FATA Development
Working Party under the chairmanship of the Additional Chief Secretary, Civil Secretariat
FATA. Schemes worth more than 200 million rupees are referred to the federal government
for approval. Road construction contracts for up to 10 million rupees are awarded directly to
nominated contractors, while contracts worth more than 10 million are awarded through
tender. n the case of larger schemes, the same tender procedures apply in FATA as in the
settled areas. n the case of bridges, the construction of which is a highly specialised field, a
pre-qualification process is in place to shortlist candidates.
Schemes are usually identified by the people, through jirgas, or by influential maliks or
elected representatives. n exceptional cases, with the approval of the NWFP Governor,
schemes may be carried out in underdeveloped or remote areas.
Land acquisition laws in force in the rest of the country do not apply to FATA (Ali, 2003). f a
proposed road or bridge is to pass through qaumi (tribal) land, a 'tribal commission'
amounting to 6.25 per cent of the total project cost is handed over to the political agent, to
be distributed among local clans and tribes according to ownership. Where roads or bridges
are to pass through private land, the political administration meets with the local malik and a
settlement is reached through jirga negotiations.
n the absence of a comprehensive roads network, access to a wide range of services and
facilities is restricted. Raw materials are not easily available, making it unfeasible to set up
industries, and marketing agricultural produce is a challenge. Heath care and education are
affected since schools and hospitals are rarely built in remote areas. ssues of access also
create human insecurity, and make the job of law enforcement more difficult.
Most projects are completed without the necessarily formalities for technical feasibility
studies. n many cases, pre-qualification procedures are also sidestepped and contracts worth
up to 10 million rupees are awarded directly to contractors nominated by the political agent.
The execution of projects is further complicated by the fact that land acquisition laws and
rights do not apply in the tribal areas (Ali, 2003).
As far as the repair and maintenance of completed works is concerned, funds are provided
according to fixed rates determined in the late 1960s. This schedule of rates was revised in
1999. Current allocations are insufficient to keep roads operational or increase their expected
life. The works and services department lacks the capacity to carry out on-site quality control.
Main Issues
94
ConsoIidation
Roads and bridges have been the responsibility of the works and services department since
1973, and schemes have been executed mostly under the ADP. Some projects have been
completed through the Khushhal Pakistan Programme or with USAD funding.
Ongoing schemes are funded primarily through the ADP. Some projects are currently being
implemented by the Narcotics Affairs Section, while the DERA project has provided 598.9
million rupees. A few smaller roads are being constructed by the local government and rural
development directorate.
The strengths of the sector, and opportunities for the future, lie in the fact that
communications infrastructure underpins progress in almost every other sector. Focused
attention to communications infrastructure will increase access to a range of other services
and facilities that are currently denied to large segments of the population. Market access, in
particular, can bring immediate and visible gains by increasing household income and
generating economic activity. Opportunities for mineral exploration and access for
infrastructure such as dams and hydropower can be created, and raw materials can be
transported directly to industries. mproving the communications infrastructure will also
increase security, allowing logistical support to be provided to law enforcers and giving
security forces greater control in border areas.
The SDP aims to make remote areas accessible, connect people to large towns and cities
across the country, and improve access to goods and services. n order to achieve this
objective, the following strategic measures need to be adopted:
Maintain and rehabilitate existing roads on a priority basis.
Make remote areas accessible, and create links with provincial and national highways.
Link the centres of agencies with other agencies.
ntroduce a pre-qualification procedure to regulate private-sector involvement, including
for contractor selection, and find ways to ensure the quality of completed projects.
Streamline the decision-making process so that due regard is given to technical feasibility
and economic considerations.
Beef up road maintenance criteria.
mprove existing roads to increase accessibility, facilitate the transportation of goods and
agricultural produce, and promote mineral development.
Rehabilitate roads for better connectivity to strategic locations, and to national and
provincial highways.
Construct new blacktop and shingle roads in remote or underdeveloped areas to generate
economic opportunities and improve security.
Build new bridges and rehabilitate damaged bridges.
n the consolidation phase, the main focus will be on improvement, rehabilitation, the
95
PDA0S AN0 PI0CES
blacktopping of important, strategic or shingle roads, and the construction of new roads in
priority areas.
The ADP allocation for roads and bridges in the financial year 200102 was 303 million
rupees. For 200405, the ADP allocation is 686.084 million. The proposed budget for SDP
Budget
96
TabIe 24:
Roads and bridges (FATA SDP budget, 2006 15) -
Rehabilitation of existing roads
mprovement of roads
New roads
Bridges
Equipment purchase and
maintenance
Total
4,000.00
5,500.00
14,000.00
3,700.00
500.00
125.00
27,825.00
1,000.00
1,375.00
3,500.00
925.00
125.00
30.00
6,955.00
5,000.00
6,875.00
17,500.00
4,625.00
625.00
155.00
34,780.00
Materials, salaries. Consultancy
and design fee. Repair works,
maintenance. Management costs
and design fee. Repair works,
maintenance. Management costs
and design fee. Management costs
and design fee. Repair works.
Management costs
Equipment, vehicles, materials,
laboratories
Staff, salaries, offices, computers.
Database development. Training
Outsiders are not generally welcome to live in the tribal areas.
Even members of one tribe will not take up residence or build
homes in an area controlled by another tribe. Tribals do not offer
their houses or land for rent or use by government personnel.
As a result, the only available office space and housing for
government employees is that which is provided by the
government itself. The term 'physical planning and housing'
ref ers t o off i ci al bui l di ngs and resi dent i al f aci l i t i es f or
government employees.
For reasons of security, government complexes are usually built
in a close cluster. These small complexes include government
offices and staff residences, and are constructed with the
consent of local tribes and the political agent. When a complex
is to be built on qaumi (tribal) land, a 'commission' amounting to
6.25 per cent of the total project cost is paid to the tribes. Since
2002, market rates have been awarded instead.
The sector currently operates under the works and services
department but has a history dating back to 1932, when sub-
divisional offices were set up by the colonial administration in
areas that now make up FATA. After ndependence, executive
engineers operated from the settled areas. Housing activities for
gover nment empl oyees wer e l aunched once agency
PHYSCAL PLANNNC
AN0 HDUSNC
97
headquarters were established in 1973. The political administration allots housing to
government employees. All staff are provided accommodation except for those working in
Khyber Agency, since these workers operate from nearby Peshawar.
Many government employees avoid living in the tribal areas, preferring instead to move in
and out of the area, which is one of the reasons for frequent absenteeism. Available
accommodation is based on staff strength from the 1970s and does not meet current
requirements. Maintenance is an issue, with insufficient funding for routine repairs. Finances
are usually controlled by the political agent, who has discretionary power in such matters.
The political agent also plays a major role in housing allocation and decisions are sometimes
based on personal or political considerations rather than entitlement or actual needs. The
cost of building in the tribal areas is far higher than in the settled areas because of the costs
of bringing in materials. Security is a serious concern.
Physical planning and housing is funded entirely from the ADP, with an amount of nearly 1.1
billion rupees spent between 2002 and 2005.
Current allotment procedures, which centre on the political administration, create mistrust
among government officials. There is a need to adopt rational allotment criteria involving
agency-level line departments. Existing provisions for housing in the agencies were made
according to 1973 requirements. A phased plan to meet growing needs has not been
adopted, creating a huge housing backlog. The strength of the sector lies in the fact that
improving housing and accommodation at the agency level will make the area more attractive
for officials, reduce absenteeism and enable government employees to devote more time to
their designated responsibilities.
The SDP aims to provide safe and comfortable residential and office accommodation for
government servants working in the tribal areas. This involves the following strategic
measures:
Assess current and future needs for government buildings and housing in agency and
tehsil headquarters; identify feasible locations for new development.
Provide residential and non-residential accommodation for government servants working
in remote areas.
Develop the capacity of local residents to take over some government and project
functions.
Facilitate access to government offices for local residents in connection with their daily
routines.
Ensure that hostels for women are incorporated into public housing schemes for
government employees. Specifically, hostels for female educators and health care
providers should be included.
Maintain and renovate existing buildings.
Main Issues
98
ConsoIidation
Budget
Prepare a phased programme for the construction of housing and buildings according to
the needs of government employees in each agency.
Build seven finance and planning cells, and five building divisions of the works and
services department.
Construct residences for government employees.
Build FR official complexes in each FR.
The consolidation phase will focus on the maintenance of residential and office buildings, the
repair and improvement of old buildings, and the construction of new offices and
accommodation.
The ADP allocation for physical planning and housing in the financial year 200102 was
53.00 million rupees. For 200506, the ADP outlay is 180.414 million. The proposed budget
99
PHYSCAL PLANNNC AN0 HDUSNC
TabIe 25:
PhysicaI pIanning and housing (FATA SDP budget, 2006 15) -
Construction of offices
Construction of housing
Repair and improvement of
existing offices and residences
Maintenance of existing offices
and residences
Construction of FATA House in
slamabad. Renovation of
Governor's Secretariat in
Peshawar
Construction of FR complexes,
including residential and office
buildings
Total
150.00
250.00
100.00
100.00
200.00
200.00
1,000.00
25.00
50.00
75.00
75.00
30.00
150.00
405.00
175.00
300.00
175.00
175.00
230.00
350.00
1,405.00
Management costs
Management costs
Works, management costs
Works, salaries, equipment
Management costs
Management costs
Part 7 Part 7
EconomIc 0eveIopment
Sectors
103
ndustries are driven by comparative advantage. n Pakistan,

government strategies to promote industry have involved the
creation of special 'export zones' with subsidies for industrial
operations and a favourable regulatory environment. Yet
Pakistan remains at a comparative disadvantage in relation to
some of its neighbours, owing to poor infrastructure and the lack
of skilled labour. FATA, meanwhile, is at a comparative
disadvantage in relation to the rest of Pakistan.
ndustrial activity in FATA is restricted primarily to small, owner-
fi nanced uni ts, operati ng wi thout government oversi ght.
According to the directorate of industries, 1,082 industrial units
are currently operating in the private sector. Of these, 120 are
located in Bajaur Agency, 200 operate in Darra Adam Khel (FR
Kohat), 237 in the rest of FR Kohat, 207 in Khyber, 28 in
Kurram, 130 in Mohmand, 31 in North Waziristan, 24 in Orakzai,
16 in South Waziristan and 89 in other FRs. These include stone
processing, textile weaving and firearms manufacture, as well as
scattered units producing ghee (clarified butter) and other similar
operations.
Stone processing has seen some improvement in the last two
decades but much of the marble extracted in FATA is still
processed in the settled areas. Stone processing units operate
in the form of clusters, with most located in Ghundi (Khyber
Agency), Jamrud (Khyber), Michini (Mohmand) and Mullagori
(Khyber). These areas are rich in commercially valuable stone
IN0USTPY
and there is potential for further expansion.
Surveys indicate that around 300 textile weaving units are operating in the Bajaur and Khyber
agencies. These are small-scale operations for the most part, with limited capacity for
expansion. A number of small furniture manufacturing units are scattered in different
locations. This is one industry where skilled workers are available, creating an opportunity to
expand operations. The main issue here is the availability of raw materials. Forests in the
region are already under severe pressure. Expansion of furniture manufacturing will require a
comprehensive package, as well as time to develop forests to provide raw materials in
sufficient quantities and in a renewable manner.
There is considerable local expertise in the manufacture of weapons but production is not
regulated and export to the settled areas is illegal. Darra Adam Khel (FR Kohat), which is
known for its firearms, sees a thriving trade in various types of weapons. Small, handcrafted
sporting guns are produced, along with quality hunting arms, and fine replicas of renowned
models and vintage weapons, all of which are likely to be in high demand in export markets.
There are approximately 200 light engineering units in the region. The main issue here is
standardisation and the quality control of metal. The light engineering sector requires
infrastructure and technical assistance for standardisation and scale production.
According to the industries directorate, an estimated 10,000 workers, most of whom are
unskilled, currently find employment in the industrial sector. There is a serious shortage of
skilled labour and trained workers cannot be brought into FATA without an agreement with the
local tribe, which involves the payment of 'compensation'.
The statutory regime regulating industrial activity elsewhere in Pakistan does not apply to the
tribal areas (Ali, 2003). ndustry is not subject to direct taxes or regulation. n this sense, at
least, FATA's industrial sector is the ultimate free-market environment.
n the absence of adequate legal cover, investment is a risky business. Acquiring land is also
an issue since, under the tribal system, outsiders cannot own land in the region. Any industry
that is set up in FATA requires some form of contract with the tribe on whose land it is
established. Where lease agreements are in place, enforcement is only possible through a
jirga. n general, all contracts and agreements are enforced under the Frontier Crimes
Regulation by a jirga, and not through the judicial channels available elsewhere in Pakistan.
The system does not provide a distinct codified framework under which business and
contractual disputes can be resolved. Although a number of scheduled Pakistani banks
operate in FATA (GoNWFP, 2005a), current State Bank of Pakistan restrictions prohibit these
institutions from extending loans to people in the tribal areas. These factors serve as a
disincentive for investment in general, and particularly for corporations and large firms. Under
the circumstances, it is also difficult to employ and retain suitable workers.
At the moment, infrastructure in the region is heavily subsidised by the government.
Electricity is provided free of cost to households and at a flat rate to industries but supply is
subject to frequent disruption and fluctuations in voltage. The dilapidated condition of many
roads in the region hinders the efficient movement of raw materials. Although no taxes are
levied (Ali, 2003), there is little incentive for investment since the returns depend largely on
the goodwill and cooperation of local tribes.
nter-tribal conflict creates a destabilising effect which deters potential investors from outside
the tribal area. For local residents, meanwhile, cross-border trade and the movement of
illegal goods are more profitable endeavours than setting up an industrial operation which
may be confiscated or shut down by the political agent under collective responsibility laws.
Main Issues
104
Two industrial estates have been proposed, one at Bara in Khyber Agency and the other
located between Bara and Darra Adam Khel in FR Kohat. A training centre is proposed to be
established in the Darra Adam Khel light engineering cluster to facilitate local manufacturers
and a PC-1 for the project has been prepared. Establishment of a 'marble city' in Mohmand
Agency is in the pipelines, under the aegis of the Pakistan Stone Development Company.
The government's focus has been on the establishment of 'industrial parks', not only in FATA
but elsewhere in Pakistan as well. These industrial estates receive tax breaks and subsidies
for energy, and benefit from a relaxation of labour laws. Experience has shown that industrial
zones of this sort have not been particularly successful, while subsequent policy changes
have led the majority of industries set up in these estates to fold. The provision of subsidies
for industry and small enterprise has not been particularly successful either, since the
potential to market these products is limited. For the industrial sector in FATA, the focus will
need to be on linking raw materials and processing units in small pockets.
Poor infrastructure, the high cost of doing business and the shortage of skilled labour are key
deterrents to industrial expansion. n the short term, focus should be given to the extraction
of raw materials, the development of a skilled workforce and the provision of reliable
infrastructure. Over the long term, the issue of legal frameworks will need to be addressed,
along with the need to open up the area to direct investment, including the establishment of
large-scale industrial operations.
Unfettered industrialisation comes with its own set of problems, which include environmental
degradation, poor health and safety conditions, and the use of child labour. t is of the utmost
importance to address these issues before opting for large-scale industrial development in the
tribal areas. Under treaties signed by the government of Pakistan, meanwhile, it will be
problematic to export products if they are heavily subsidised or are in contravention of World
Trade Organization (WTO) agreements. These considerations will need to be kept in mind as
well.
The SDP aims to create a favourable investment climate, focusing on the development of
partnerships between entrepreneurs and local tribes. The main elements of the strategy to
promote industrial growth in the region are as follows:
Focus on the processing of locally available raw materials. The strategy does not
promote importing materials to the region in the short term.
Promote investment by locals to stop the flight of capital to the settled areas. There has
been considerable investment by tribals in the settled areas but little investment in FATA
itself.
Work on a legal framework to protect investment. The absence of a well-defined
regulatory regime for industry is a major stumbling block for industrialisation. This is a
long-term objective that will involve the local people in the process of formulating laws to
create a conducive investment climate.
Build capacity through skills development. This includes upgrading the skills of workers
already employed in various industries.
Establish a knowledge base for investors. nformation should be made available
105
N0USTPY
regarding investment opportunities, the cost of doing business, marketing prospects and
export options.
Designate industrial 'pockets' or clusters. The option of establishing clusters or pockets in
industrial parks will be explored. This initiative depends on raw materials available in the
area. n the case of mining, processing units for marble and other stone can be set up.
For agricultural produce, the focus can be on preservation units and processing plants,
such as for juice extraction.
Establish skills development centres. The first priority is to set up training centres within
functioning industrial units, for marble processing, mining, light engineering or footwear
manufacture. These centres will provide training on the use of the latest technology to
boost existing operations.
Organise local craftsmen into trade guilds that will be responsible for promoting best
practice, standardisation and quality control. Guilds will also encourage the adoption of
new technology, identify areas of growth and provide an opportunity to address the issue
of training.
Set up a regulatory authority, charged with the task of formulating investment-friendly
policies and laws through dialogue with stakeholders.
Strengthen infrastructure in the region, including roads, electricity and water supply, and
communications facilities.
Create a FATA industrial/engineering research unit/chair at a major engineering university.
This unit will be linked to the economics faculty to assist in analysis. The unit/chair will
conduct research on raw materials, viable production and processing methods, and
marketing. t will hold regular meetings with local tribes, political agents, and the relevant
directorates of the Civil Secretariat FATA (mining, industries, water and sanitation, health,
education, environment), and will generate quarterly reports. The unit will also produce
an annual report on the state of trade, commerce and industry in the tribal areas.
Hold a regular dialogue with local tribes to promote investment, through seminars held
locally and industrial fairs showcasing the latest technologies. This will allow local
entrepreneurs to share experiences and gain knowledge.
During the consolidation phase, the main focus will be to extend facilities to larger areas,
upgrade facilities on the basis of need and replicate successful models on a wider scale.
The ADP allocation for industrial development in the financial year 200102 was 1.86 million
rupees. For 200506, the ADP outlay is 2.75 million. The proposed budget for SDP
ConsoIidation
Budget
106
107
N0USTPY
TabIe 26:
Industry (FATA SDP budget, 2006 15) -
ndustrial pockets or clusters
Skills development centres
Local guilds
FATA industrial/engineering
research unit/chair
Two 'reconstruction opportunity
Zones' in FATA
Regulatory authority
Total
150.00
100.00
50.00
200.00
1,300.00
25.00
200.00
2,025.00
50.00
50.00
25.00
150.00
1,000.00
20.00
100.00
1,395.00
200.00
150.00
75.00
350.00
2,300.00
45.00
300.00
3,420.00
Advocacy, field visits
Support for upgrading existing
industries, training, stipends for
students. Hiring of subject experts
Database. Training, workshops,
meetings. Experts to assist in
developing standards
Staff, research, dissemination of
findings. Coordination, consultations
Land and infrastructure development
Staff, dialogue with stakeholders
Staff, salaries, establishment cost
109
T
he mountains of the tribal areas yield a variety of
minerals, ranging from marble and granite to copper and
gold. There is also a potential for oil and gas extraction
from the tribal areas which is currently being explored.
Since mineral extraction depends heavily on labour, the mining
i ndust ry can serve as an i mmedi at e means t o creat e
employment in the region. Considering the reserves that have
already been identified, the sector has the potential to become a
major employer in the long term.
Official estimates show significant mining activity in some areas
(table 27). Marble production in particular has seen a significant
increase between 2002 and 2005 (table 28). According to the
mines and minerals directorate, marble quarrying currently
provides jobs to an estimated 2,000 persons. Opportunities exist
to expand this activity. Significant reserves of highly prized white
marble exist at Ziarat in Mohmand Agency, grey marble is found
in Bajaur and other attractive colours have been identified in all
seven agencies.
There i s al so consi derabl e pot ent i al f or soapst one, a
metamorphic rock rich in magnesium and iron, which is found in
FATA and can be used for local industry as well as export.
Currently, soapstone at Ghandhao in Mohmand Agency is mined
and exported to Europe where demand has shown consistent
growth. n North Waziristan, meanwhile, estimated copper
reserves of 35 million tonnes have been identified, with
hNNC
confirmed reserves of 8 million tonnes bearing an
aver age copper cont ent of 0. 8 per cent .
Exploitation of these resources will employ labour
in the thousands, in addition to providing export
revenues.
Significant deposits of high-quality coal have been
identified at Darra Adam Khel in FR Kohat, as well
as in Kurram, North Waziristan and Orakzai. Coal
is already mined in various areas on a small
scale, using outdated techniques. Another area
with potential for growth is gemstones. Geological
studies indicate the presence of precious and
semi-precious stones in the north, where emerald and tourmaline have been found, while
garnet and quartz occur in Bajaur and South Waziristan. These reserves have not been
properly identified or explored.
According to figures from the directorate, between the years 200102 and 200506 the
overall volume of mineral production has increased from 0.55 to 2.40 million tonnes, leading
to a rise in royalty revenues from 8.8 million rupees to 61.5 million. These results have been
achieved primarily through effective technical assistance to the private sector.
Since ownership of all mineral resources vests in the government (Ali, 2003), a no-objection
certificate and mining lease must be obtained from the relevant quarters before commencing
operations. Ownership of land, meanwhile, lies with the tribes and mining activity therefore
also involves an agreement with the group resident in the area. Generally, this only becomes
a problem when feuds break out between tribes, since in such cases the local economy is
one of the first things to be affected. The Ziarat mine in Mohmand Agency has remained
closed for the last three years for just this reason. Despite efforts by the administration, this
mine cannot be brought back online. Other mines have shut down because of local disputes
between contractors and tribes, or between tribes.
The sharing of income from mineral extraction and leasing also creates obstacles. Although
there are formulas for benefit sharing, these are defined only to the level of the clans or
Main Issues
MarbIe production
(FATA, 2002 05) -
Year Tonnes
200203
200304
200405
327,100
257,705
570,519
TabIe 28:
TabIe 27: Estimated production of mineraIs (FATA, 2004 05) -
Agency Quantity (tonnes)
Marble Limestone Coal Chromate Quartz Soapstone Scrap Manganese Fluorite
Bajaur
Khyber
Kurram
Mohmand
North Waziristan
Orakzai
Total
18,973
7,092

543,749
705

570,519
130
453,932

32

454,094
35,505
140
142,725
178,370

3,377
31,830

35,207
29,759
29,759
282
2,370

2,360

5,012
279

279
90

90
90
90
110
tribes involved. Thereafter, elders and maliks are free to distribute the proceeds at their
discretion. This gives rise to the possibility of unequal shares for the disadvantaged and
dispossessed, and has created a general reluctance to allow mining activity since it is not
viewed as beneficial for the majority of the population.
Outdated technology and antiquated methods currently in use are another issue. Marble and
granite are quarried by blasting, which leads to high waste at nearly 75 per cent. Mining is
carried out without the assistance of qualified technicians. The lack of reliable roads and
infrastructure makes both exploration and transport difficult. The majority of the mines in
FATA are not easily accessible by road, resulting in inflated transportation costs.
There is also the issue of bureaucratic red tape. t is thought that many of the parties
currently engaged in mineral extraction may not possess legitimate leases. Obtaining a no-
objection certificate is a long-drawn-out process which discourages potential speculators.
nvestment is also hindered by current restrictions on obtaining credit from scheduled banks
operating in the tribal areas.
The directorate has allocated a total of 100 million rupees for the construction of 45
kilometres of roads in various areas where mineral reserves have been identified. The
establishment of a model quarry in Mohmand is in the planning stage, along with a 'mini
marble city' in the same agency. A joint venture agreement between the Pakistan Mineral
Development Corporation and the Civil Secretariat FATA has been signed for soapstone
exploration in Kurram Agency.
Geological data indicate the existence of large mineral reserves. Further investigation will
lead to the identification of more mineral loads and target areas. The pace of extraction and
revenue generation has increased in recent years as a result of effective technical assistance
to the private sector. Most mining is still carried out informally, however, and these operations
need to be brought under an effective regulatory regime. n addition, extensive awareness
programmes are needed to make workers and mine owners see the benefits of scientific
mineral exploration techniques.
The existence of good mineral deposits and the availability of relatively cheap labour are
strengths than can be capitalised upon to promote growth of the sector. The government is
developing infrastructure facilities in mineral-bearing areas, which should help to encourage
investors. There is also potential for oil and gas extraction, which is currently being explored.
The SDP aims to increase productivity in the mining sector and to improve the quality of the
product in order to create more job opportunities for the local population. To achieve this
objective, the following strategies will be adopted:
Reform the legal framework governing mining activities to encompass leasing, dispute
resolution mechanisms and regulation.
ncrease the productivity of mines by adopting modern methods to boost quality and
reduce wastage.
ntroduce new technologies through joint ventures on the basis of public-private
partnerships.
111
|NNC
ReguIation
TechnoIogy
Human Resources
ConsoIidation
Maintain a healthy workforce by improving safety; develop emergency evacuation
procedures.
nvolve all stakeholders to minimise environmental degradation.
mprove the quality of human resources through intensive training, especially in the use
of modern machinery and techniques.
Establish a dispute resolution and mineral development committee to protect and secure
the investment of mine owners. t is essential to form and properly notify such a
committee, which will be empowered to implement decisions, in order to ensure timely
resolution of disputes and protect the rights of both investors and local tribes. The
committee should be representative, with membership from a cross section of
stakeholders.
Rationalise lease allotment procedures. The procedures should be as simple as possible,
to minimise bureaucratic red tape and facilitate investment. This is a prerequisite for
attracting investment to the area.
Guarantee investment security. Reforming the existing legal and regulatory framework is
necessary to create an environment in which investment is secure and financial
institutions are able to extend credit.
Establish model quarries in various mining clusters. Most mine owners have sufficient
capital to develop their mines on scientific lines but are reluctant to take the lead.
Upgrade existing quarries. While model quarries will take time to develop, existing mines
can be upgraded in a comparatively short period. This work should be taken up
simultaneously, and can be funded through the Pakistan Stone Development Company.
Provide modern equipment on beneficial terms. At present, mine owners either resort to
primitive methods or abandon mines prematurely. n order to facilitate mining, particularly
as an opportunity for locals who may not be able to afford the initial investment,
equipment for extraction and handling should be provided on nominal rental terms. This
can be done through local community organisations.
Establish model mines. The area carries substantial coal reserves which need to be
developed. There are good reserves of copper in some areas which need to be further
explored. The mines and minerals directorate will establish model scientific mines for
potential investors. This will also provide a training opportunity for the workforce.
Train mine workers. This will involve conducting training programmes on basic mining
skills. Short-term training courses can be arranged on blasting and quarry development
techniques, and can be offered by seeking the involvement of the mining department at
the Peshawar University of Engineering and Technology.
n the consolidation phase, model quarries will be replicated. A concerted effort will be made
to ensure that all mines are operating according to modern standards and scientific mining
methods will be pursued aggressively.
112
113
|NNC
Budget
The ADP allocation for mining in the financial year 200102 was 3 million rupees. The ADP
outlay for 200506 is 87.959 million. The proposed budget for SDP interventions is shown in
table 29.
TabIe 29:
Mining (FATA SDP budget, 2006 15) -
Evaluation, exploration and
development of coal
Mechanised marble quarrying,
model quarries
Evaluation, exploration and
development of copper
Establishment of 'mini-marble city'
Development and exploration
of other mineral resources
nfrastructure facilities in mining
areas
Capacity building (mine owners,
workers)
Total
400.00
180.00
500.00
150.00
500.00
900.00
500.00
180.00
3,310.00
200.00
120.00
300.00
100.00
300.00
600.00
300.00
120.00
2,040.00
600.00
300.00
800.00
250.00
800.00
1,500.00
800.00
300.00
5,350.00
Geological exploration, exploratory
drilling. Estimation and
development of reserves
Land, development. Buildings,
machinery and equipment
Regional, geochemical, geological
and geophysical surveys.
Exploratory drilling
Cost of land, infrastructure
development
Geological and geographic surveys,
exploratory drilling. Development
of resources
Cost of small access roads and
other infrastructure facilities
Training, training materials. Stipends
for workers. Short courses for trainers.
Recruitment of experts, logistical
support. Short courses, training
visits. Support for dispute resolution
115
F
ATA is ideally positioned to serve as a hub for trade not
just with immediate neighbours but also with countries
further afield. Historically, the area was situated along
what was then the trade route from Russia to Burma. ts
central location along this route made it a key junction for
traders moving between Central and South-East Asia. An
auxiliary service sector developed to serve caravans passing
through the region, eventually promting the growth of an
indigenous commerce and trade sector.
Even today, commerce and trade are a major source of
livelihood, second only to agriculture. The majority of this activity
is in the form of wholesale and retail trade in consumer goods
and consumer durables, clearance and transportation services,
warehousing, hotels and restaurants, vehicles, used spare parts,
and small-scale establishments providing auxiliary services.
Sectors which appear to hold the greatest potential for further
expansion are wholesale and retail trade in consumer goods and
consumer durables, and used spare parts for vehicles.
Currently, trade is conducted within the tribal areas, with major
centres in Pakistan, as well as with neighbouring Afghanistan
and other South and South-East Asian countries. Goods are
imported and exported through the Peshawar dry port and
Karachi sea port. The Pakistan government has provided a
transit trade facility to Afghanistan, allowing goods intended for
the Afghan market to land at Pakistani sea and dry ports, and
CD||EPCE AN0 TPA0E
travel across Pakistani routes. A large number of tribals, especially from Khyber Agency, are
involved in this transit trade. Most customs clearance of transit goods at sea and dry ports,
and transportation to Afghanistan, is handled by tribal businessmen.
n many cases, goods entering Afghanistan flow back into the tribal areas through the porous
border as de facto duty-free items. These products find their way into markets in FATA and
eventually to the settled areas, where tribal traders have built large commercial centres on
the outskirts of major cities. People from all over the country flock to these markets to
purchase 'imported' items far cheaper than domestically manufactured products. Although this
trade generates employment for tribals, the bulk of the profits accrues to a few business
owners.
Other commercial activities include the transportation and customs clearance of Pakistani
goods intended for export, and trade with the settled areas to meet the needs of the local
market.
The idea of long-term investment with slow but steady returns is not part of the business
culture. Tribals believe in a quick return on their investment and this makes transport a
favoured option. Starting a transport business does not require heavy investment and would-
be transporters are able to pool resources to raise the necessary funds. More importantly, the
pay-off is instant. Across the country, tribals from FATA hold a major share in the transport
business, providing carriage services not only within Pakistan but also across the border.
There is insufficient formal regulation of commerce and trade activities (Ali, 2003), and
disputes between tribal business parties are resolved by a jirga. For outsiders to do business
in the area, an agreement must be signed between the potential business owner and the
local tribe, and countersigned by the local political agent who is responsible for enforcing the
terms of the agreement. n such cases, disputes are also settled by a jirga, presided over by
the political agent. This unique system serves as a disincentive, particularly for non-tribal
investors.
nvestment is in any case difficult in the absence of credit facilities. According to figures for
200203, six scheduled Pakistani banks operate 47 branches across FATA (GoNWFP,
2005a). Under current State Bank of Pakistan restrictions, however, these institutions are not
permitted to extend loans to people in the tribal areas. Several proposals have been floated
for the government to create a special credit line for financing commerce and industry. This
may address immediate problems but does not promise to be a viable long-term solution.
Opportunities in commerce and trade are hampered by many factors. The absence of a
robust legal framework to regulate financial services and commercial transactions makes the
business climate uncertain, prevents small entrepreneurs from expanding their operations and
deters new players from entering the sector. Educated professionals and skilled workers are
in short supply, and bringing labour into the tribal areas is not a viable option. The security
situation adds to the general level of uncertainty, which is exacerbated when conflict erupts
between tribes or clans. Businesses must also contend with bad roads, disruptions in power
supply, inadequate storage facilities, and a host of similar problems arising from poorly
developed infrastructure and insufficient auxiliary services.
For the government, valuable tax revenue is lost. Meanwhile, the lack of reliable statistical
data concerning commercial activity makes it difficult to carry out meaningful planning.
The government has established a dry port at Peshawar to facilitate tribal traders and
Main Issues
116
117
CD||EPCE AN0 TPA0E
business owners. A new dry port at Jamrud in Khyber Agency is planned to relieve the
pressure on the Peshawar facility, and to provide additional services for exports and the
transit trade.
Existing infrastructure facilities, especially the roads network, do not support commerce and
trade in part because the needs of the sector were not considered when infrastructure was
laid down. Skills development is not demand-based and the training available does not cater
to the requirements of the market.
mmediate opportunities lie in goods and services to meet the basic needs of local
consumers as well as those in Afghanistan. Since the neighbouring Afghan valleys are
geographically closer to FATA than to market centres within Afghanistan, the export of
consumer goods to border areas of Afghanistan is likely to offer a competitive edge to traders
in FATA. n the future, opportunities may also arise to establish trade ties with Central Asia.
While commerce and trade have the potential to bring immediate economic returns, over the
long term the sector can also create entrepreneurship and generate employment for skilled,
semi-skilled and unskilled workers. Activities are driven by the private sector and require
minimal capital investment from the government. What the government can provide, however,
is proactive leadership and a favourable regulatory environment.
The SDP aims to develop commerce and trade, while allowing the government to receive its
due share of revenues from duties and taxes. Strategies to achieve this objective include the
following:
Create a conducive framework for the free and competitive marketing of goods and
services.
Prepare and enforce an agreed regulatory framework for commerce and trade, in line
with WTO commitments.
Provide market-based skills development to create employment opportunities.
Facilitate cross-border commerce and trade.
Develop a legal framework in which the formal banking system is able to extend credit
facilities.
Create a business environment that is conducive to private-sector involvement. Since the
private sector plays the lead role in commerce, the government's role is primarily that of
facilitator.
Develop a regulatory framework for commerce and trade, in consultation with the Tribal
Area Chamber of Commerce and ndustry.
Provide market-based skills development, and support skills development to provide
alternate employment options to those who might lose their jobs under the WTO regime.
Build infrastructure and facilities for cross-border trade.
nitiate a multi-partner dialogue with institutions to extend credit facilities to businesses in
FATA.

ConsoIidation
Budget
During the consolidation phase, feasible initiatives will be replicated across FATA and the
scope of services and facilities will be extended.
To date, ADP allocations have not specifically provided for the development of commerce and
trade. This sector is introduced in the FATA SDP and the proposed budget for interventions is
shown in table 30.
118
TabIe 30:
Commerce and trade (FATA SDP budget, 2006 15) -
Development of legal
framework
Construction of warehouse
facilities at three locations
Skills development
Total
5.00
25.00
6.00
36.00
3.00
5.00
2.00
10.00
8.00
30.00
8.00
46.00
Legal advisor fees, consultations,
implementation
land cost, construction, salaries
of basic staff
Course fee, transportation,
boarding and lodging for
participants
119
T
he mountainous terrain of the tribal areas provides
majestic vistas of the surrounding valleys. The land is
traversed by numerous rivers and mountain streams,
while the air is free of pollution. The summers are
pleasant and not troubled by too much rain. The landscape is
unspoiled for the most part, undisturbed by the commercial
development that has marred so many sites of natural beauty
elsewhere in the country. n many ways, FATA could be an ideal
tourist destination.
To turn this into reality will be a challenge. The various tribes of
FATA are insular and prefer to keep to themselves. Although a
strong tradition of hospitality exists, tribals are generally wary of
outsiders. Even between tribes and clans, relations are not
al ways cordi al and host i l i t i es are known t o break out
sporadically. n general, the security situation leaves much to be
desired. The fact that the mainstream legal framework in force in
the rest of Pakistan does not apply to the tribal areas (Ali, 2003)
also creates a climate of fear, if only in the imagination of those
who have never visited the region.
Societal attitudes fuelled by a conservative tribal culture need to
be considered as well. As a first step towards introducing
tourism, social interaction should be encouraged among tribes
and clans. Sporting events, study tours and cultural festivals are
ways for large gatherings to take place in an amicable
atmosphere. Greater social interaction among tribes may help to
TDUPS|
change their attitude towards visitors. At the same time, it will indirectly demonstrate to tribals
the potential and benefits of tourism.
Much of the landscape is unspoiled by urban development and pollution. The snow-capped
mountains dotted with ancient passes are ideal for mountaineering and ecotourism. A number
of locations are already well known and frequented by visitors, and could serve as potential
sites for tourism. These include the Khyber Pass in Khyber Agency for its historic
significance, and Parachinar in Kurram Agency for its pleasant climate and scenic beauty.
The private sector can contribute to tourism development. The government, in partnership
with local tour operators, can organise guided tours to selected locations. This too will have
the added benefit of demonstrating the potential benefits of accepting the tourist trade in the
area. Rest-houses with appropriate security arrangements can be made available at selected
locations to provide residential and dining facilities for visitors.
Security is a key concern. The perception of lawlessness that exists in the minds of people in
the settled areas is difficult to overcome. Societal attitudes prevent interaction with outsiders
and tribals do not see tourism as a viable industry, or as a means to generate income,
particularly in remote rural areas. For visitors, few services or amenities are available.
No coordinated effort has been made to promote tourism in the tribal areas, although
sporadic initiatives have been taken in the private sector. These include limited guided tours
to Landikotal and Jamrud on the Safari Train Service from Peshawar which, incidentally,
proved to be highly popular with both local and foreign visitors.
Tourism can play an effective part in creating jobs in the short term, particularly since
industrial and commercial development will take considerable time to bear results. Each
agency has something unique to offer, and all have the potential to attract tourists from
Pakistan and abroad. Promotion will require a proactive approach from the government, and
private-sector involvement should be encouraged.
The SDP aims to promote tourism as a means to create employment. Strategic
recommendations in this regard are as follows:
Develop tourist facilities and services at selected locations.
Facilitate private-sector involvement.
Promote areas that already witness some degree of tourist activity.
Encourage and facilitate inter-agency exchange visits and tours.
Carry out research on the cultural and natural heritage of the area, and make this
information widely available.
Forge partnerships with commercial operators for guided tours to selected locations.
Main Issues
120
121
ConsoIidation
Budget
Launch a publicity and awareness campaign, highlighting heritage and tourism sites.
Sponsor inter-agency exchange visits, study tours, sporting events and festivals.
Upgrade government rest-houses to provide comfortable accommodation, dining facilities
and other services.
Prepare an inventory of cultural and heritage sites, and publish the results to create
interest among potential visitors.
During the consolidation phase, initiatives launched in selected areas will be extended,
successful experiences will be replicated, and new tourist facilities will be developed, along
with the necessary services and infrastructure.
To date, separate funds have not been set aside in the ADP for tourism development. This
sector is introduced in the SDP and the proposed budget for interventions is shown in table
31.
TDUPS|
TabIe 31:
Tourism (FATA SDP budget, 2006 15) -
Publicity for heritage and tourist
sites
nter-agency exchange visits,
study and sports tours, festivals
Residential facilities and services
for tourists (selected locations)
nventory of heritage sites,
publication
Total
10.00
70.00
200.00
5.00
285.00
5.00
30.00
100.00
5.00
140.00
15.00
100.00
300.00
10.00
425.00
Material design, resource persons
Boarding, lodging and transportation
of participants. Event organisation
mprovement of existing facilities,
construction of new facilities
Cost of research and publishing
material
123
S
ki l l s trai ni ng enhances producti vi ty and sustai ns
compet i t i veness i n t he gl obal economy. Ski l l s
development for the workforce assumes even greater
urgency in the changing context of global trade, where
the focus is increasingly shifting to high technology. For less
developed nations, training is of paramount importance in
poverty alleviation. n areas where large segments of the
population cannot afford higher education, vocational training
increases the earning power of individuals.
The FATA workforce is comprised mainly of unskilled and semi-
skilled workers, most of whom are employed in low-paid manual
jobs in the industrial and commercial sectors. Unemployment
and under-empl oyment are hi gh, parti cul arl y si nce l ocal
industrial and commercial operations have limited absorption
capacity. As a result, many are migrating out of the area in
search of work. Meanwhile, the dearth of skilled labour within
the tribal areas is one of the reasons why industrial development
cannot go forward. Efforts to increase economic activity will
need to focus on general education as well as sector-specific
technical and vocational training.
There are few skills development opportunities in FATA, with
current services focused narrowly on a limited number of
subjects. Figures for the year 200405 show nine government
vocational institutes (now known as government technical
institutes, or GTs) in operation: one each in Bajaur, Khyber,
SKLLS 0E7ELDP|ENT
Kurram, Mohmand, North Waziristan, South Waziristan and FR Kohat, and two in Orakzai
(GoNWFP, 2005a), along with a metal centre at Darra Adam Khel in FR Kohat. Currently,
GTs at Jandola (FR Tank), Landikotal (Khyber) and Wana (South Waziristan) are non-
operative. A metal centre and a wool centre, both at Miranshah (North Waziristan), are also
not functioning at the moment, although staff salaries and overheads are being incurred.
GTs offer six-month to two-year courses in subjects such as welding, tailoring, surveying,
carpentry, auto mechanics, machining and electrical work. Courses are also offered, in
affiliation with the NWFP Board of Technical Education, for a Diploma of Associate
Engineering in telecommunications, electronics, computer information and electrical
technology. The minimum qualification to register for these courses is matriculation, except in
the case of six-month courses which admit students who have completed middle school.
The number of students at GTs for the year 200203 stands at 736, rising to 965 by
200405 (GoNWFP, 2005a). The GTs do not admit women. Teachers number 103 in
200203, increasing to 143 in 200405. With this increase, an already uneconomical
student-teacher ratio of 7:1 moves to a highly unfeasible ratio of 6:1. At certain GTs, such as
those in North Waziristan and Orakzai, there are 18 and 17 teachers, respectively, for only 42
and 30 students, with a student-teacher ratio of 2.3:1 and 1.8:1.
There are six commerce colleges/ commercial training institutes (now called government
colleges of management sciences, or GCMSs) in all of FATA: one each in Bajaur, Khyber,
Kurram, Mohmand, North Waziristan and South Waziristan (GoNWFP, 2005a). These
colleges, which admit no women, show a combined student population of 482 in 200203,
growing to 711 in 200405, with 41 teachers in 200203 and 95 in 200405 (GoNWFP,
2005a). Here too an uneconomical student-teacher ratio of 11.8:1 in 200203 is made all the
more irrational with an unjustified increase in staff which brings the ratio down to 7.5:1 in
200405.
GCMSs offer a Diploma in Commerce (DCom), the minimum entrance requirement for which
is matriculation. The programme lasts for two years and has two main streams, accounting
and shorthand. The heavily theoretical curriculum is taught in a teacher-centred manner and
examined traditionally by the NWFP Board of Technical Education. No practical work or
internships are required. The Bachelor of Business Administration and Bachelor of nformation
Technology, also offered at GCMSs, are two-year undergraduate programmes that require a
DCom, Fellow of Arts (FA) or Fellow of Science (FSc) for enrolment. The course content is
fairly balanced with a wide range of optional subjects but the language of instruction and
examination is English, and the success rate in examinations is low.
The skills gap is more apparent among women, who are generally poorly educated to begin
with. There are no vocational or commerce colleges for women to address this problem.
Partly for this reason, women engaged in small enterprise find it much harder to seek the
training and vocational development they require.
Currently, 70 women's skills development centres (WSDCs) have been approved, of which 57
are operating (table 32). Each centre has one teacher and an assistant, with a group of
about 20 students, most of whom are illiterate. The centres offer certificate-level courses in
tailoring, knitting and embroidery. Students are not taught to market products, nor is training
available for other income-generating activities. nitiatives for literacy and health care have
not been incorporated into the workings of the WSDCs.
During training, work materials are provided by the Civil Secretariat FATA, along with a
monthly stipend of 200 rupees for each student. Every student receives a certificate on
successful completion of the course, along with a manual sewing machine. So far,
124
125
approximately 2,500 women have completed the
course.
Existing GTs and GCMSs are insufficient in
number, underutilised and gender biased. There
is a mismatch between available jobs and the
training on offer. Vocational centres focus on
outdated ski l l s, teachi ng i s theoreti cal , no
worthwhile hands-on experience is provided to
st udent s and no t rai ni ng i s avai l abl e f or
employed unskilled workers.
Employment opportunities may be scarce within
the tribal areas but many workers migrate to
other parts of the country. n those areas, the
economy is moving towards sectors such as
telecommuni-cations, information technology,
fi nanci al servi ces and engi neeri ng goods.
Workers from the tribal areas are unprepared to
meet these demands.
The WSDCs focus on a single subject and fail to
address issues such as marketing. The syllabus
i s i n t he Engl i sh l anguage. Al t hough t he
document i s wel l devel oped, wi t h cl ear
objectives, chapter details and lists of practical
work, it is of no use to teachers or students
who, with the exception of girls at the Parachinar centre in Kurram Agency, are nearly all
uneducated. There is no system to follow up with women who have completed the course
and there are no other institutions providing skills development training to women.
Resources for the sector are inadequate. Most institutes are short of funds and operate
without support, undermining the quality of training. This lowers the confidence of those who
have completed a course and discourages others from opting for similar training. Elsewhere,
resource constraints have forced centres to shut down altogether, as was the case with metal
and carpet centres in Miranshah which folded as a result of funding difficulties.
While public-sector institutes and colleges struggle to remain operational, there has been no
private investment in the sector. Skills development is not profitable in an area like FATA,
where the majority of the population is poor and cannot afford to pay the fees charged by
private-sector institutions.
Official data concerning skills development is inconsistent, making it difficult to assess needs
and carry out planning. The disbursement of funds and supplies, staff hiring, promotions,
equipment and furnishing are all handled centrally by the directorate, along with monitoring.
Standards, support and supervision have been adversely affected by limited staff and
inadequate capacity. Keeping in mind the new demands that SDP implementation will put on
the directorate, the number and competence of staff requires enhancement.
Two new courses have been introduced recently. One, on instrumentation, is offered at the
Main Issues
SKLLS 0E7ELDP|ENT
Women's skiIIs deveIopment
centres (FATA, 2004)
Agency/FR Number
Bajaur
Bannu
Dera smail Khan
Khyber
Kohat
Kurram
Lakki
Mohmand
North Waziristan
Orakzai
Peshawar
South Waziristan
Tank
Total
Source: FATA Directorate of ndustries,
Mineral and Technical Education.
5
4
4
4
2
5
6
5
3
3
2
10
4
57
TabIe 32:
Darra Adam Khel metal centre, while a course on electronics and telecommunications is
available at the technical training college at Wana. A committee has been formed on the
directives of the Additional Chief Secretary FATA to review other courses.
Recent plans to establish 'reconstruction opportunity zones' are likely to have a positive
impact on the economy of the tribal areas. The availability of trained workers will, however,
be one of the key factors in determining the success or failure of these zones, making skills
development all the more important.
At the same time, existing indigenous skills can be expanded and institutionalised. There is a
strong local culture of commerce and trade. This knowledge can be used to devise more
carefully targeted skills development and vocational training programmes. Similarly, local
artisans produce firearms of exceptional quality. These and similar strengths should be
actively promoted and developed.
The government has adopted a piecemeal approach to skills development. As a result, such
programmes have failed to improve job prospects for graduates or increase the pool of skilled
labour. The existence of GTs and GCMSs, including closed facilities, provides ready and
available infrastructure for future development. WSDCs are operating in rented premises or
temporary facilities provided by maliks but other facilities are housed in comparatively
spacious buildings.
The SDP aims to increase job opportunities for skilled workers from the tribal areas.
Strategies to achieve this objective are as follows:
Develop market-oriented, area- and sector-specific skills focusing on the youth, to
increase their employment prospects within the area, country and abroad.
Equip men and women with the skills needed to start, run and expand their own
businesses.
mprove the quality of skills development training, and introduce modern courses.
Upgrade the skills of employed workers through on-the-job training, along with literacy
programmes.
ntegrate skills development with secondary education.
Collect data on labour market demands, skills requirements and available training.
Run public-sector institutions efficiently.
Seek government funding for skills development initiatives. This is necessary in the initial
stages, because of the absence of private-sector involvement.
dentify potential investors to promote public-private partnerships.
Build the capacity of the directorate, as well as training institutes and centres.
Conduct short-term, on-the-job training for workers, in partnership with the private sector.
Upgrade and equip workshops and laboratories.
Make skills training meaningful, with hands-on practical experience at institutes and
colleges.
Improvement and Expansion
126
127
Gender Equity
DecentraIisation and Empowerment
Information and Research
Offer a monthly stipend of 500 rupees to all students achieving high marks (a 'First
Division' ranking) in their examinations.
Revise the criteria for awarding degrees and make practical training compulsory. High-
achieving students on scholarships will be sent to training centres across the country
(Karachi and Lahore for textile design, knitwear, light engineering, agricultural tools and
auto parts; and Karachi, Kot Lakhpat and Lahore for marble products). The opportunity
will also be taken to send students to attend post-matriculation wood technology courses
offered free of cost at the Pakistan-German Wood Centre in Peshawar
Review the syllabus of GTs, GCMSs and WSDCs, and add new subjects. n particular,
focus on areas and sectors that will see expansion during SDP implementation.
Overcome the problem of low enrolment at technical and vocational institutes by laying a
strong foundation for technical and vocational learning at the secondary school level.
mpart technical education along with basic education. The recently revised syllabus of
the Board of ntermediate and Secondary Education includes a long list of technical
subjects, from which two optional subjects are chosen instead of the sciences. Selection
from this list of technical subjects, according to the student's aptitude, community needs
and gender preferences, will be made so that students have a base for further skills
specialisation.
Expand skills development services in line with market requirements, based on data from
a skills development management information system. Services will be expanded in
designated 'pocket' areas, with each area focusing on area- and industry-specific skills.
Expansion will address the needs of all members of society, with special focus on
women, people with disabilities and the rural poor.
ncrease the number of vocational and technical centres for women to provide market-
relevant training (computer programming, food processing, wool and leather goods
manufacture, tailoring, glass making, textile printing, dairy production) as well as gender-
appropriate skills suited to the cultural context (nursing, health care, midwifery).
Establish adult literacy centres, focusing on women at WSDCs.
Build institutional capacity for gender mainstreaming.
Seek local inputs wherever possible. Minor repairs and maintenance, and the purchase of
learning materials, will be carried out locally. This will also release the directorate for
more strategic activities.
Provide funding for recurrent expenditures with clear institutional budgetary allocations.
Appoint coordinators for each agency and FR to better support and monitor skills
development units.
Carry out a skills audit for the tribal areas. Compile information about existing skills
requirements and future needs; identify needs by sector, industry and geographical
location.
Gather and update statistical data about the workforce, including qualifications, past
experience, acquired training, age, gender, availability and expected salary.
Develop a built-in assessment system, to match the skills of would-be employees to the
requirements of employers.
SKLLS 0E7ELDP|ENT
Capacity
ConsoIidation
Budget
Train the faculty of GTs and GCMSs to keep them abreast of the latest technological
innovations, and to improve their English language and communication skills. Teachers at
WSDCs will be trained by mobile teams. The minimum qualification for teachers at
WSDCs will gradually be raised, since they will also be in involved in adult literacy
programmes.
Strengthen the professional capacities of directorate staff. Employees will be required to
complete specialised training. Two deputy directors will be inducted to manage
administration and academics separately.
Enhance skills development opportunities in a needs- and gender-sensitive manner.
Focus on the development of indigenous human resources.
Upgrade training institutes.
Seek private-sector involvement in the sector.
Establish linkages with local industries to create opportunities for internships.
Continue training students.
To date, skills development has not been funded separately under the ADP. This sector is
introduced in the SDP and the proposed budget for interventions is shown in table 33.
128
TabIe 33:
Total
SkiIIs deveIopment (FATA SDP budget, 2006 15) -
Upgrading and improving
institutes and centres
Student incentives
Female technical and
management institutes (Kurram)
ntegrating vocational training
with secondary education
Skills development management
information system
Faculty training
Total
Years 15 Years 69
39.00
252.00
120.00
50.00
43.00
25.00
100.00
629.00
Review of courses, introduction of
new courses. Equipment for
laboratories. Workshops, skills
development centres, new courses
Scholarships, apprentice stipends
Buildings, staff at head office and
field cells
Vocational and technical units at
nine boys' and three girls'
secondary schools
Database. Office and field staff.
Training and set-up. Equipment
Technical, communications and
management courses. Subject
experts. Mobile teams for WSDC staff
Deputy directors (head office).
Coordinators in five agencies. Staff
training. Consultants
29.00
140.00
100.00
40.00
30.00
15.00
65.00
419.00
10.00
112.00
20.00
10.00
13.00
10.00
35.00
210.00
Part 7
ImpIementatIon
Framework
mplementation of the SDP raises certain challenges that

cannot be addressed at the sectoral level alone. These
cross-cutting issues will be addressed through a coordinated
mechanism, funded separately, and administered by the Civil
Secretariat FATA's planning and development department.
Data available from various official sources are often unreliable
and frequently contradictory. Statistics used to compile the SDP
suffer from the same problem. t goes without saying that this
makes the task of planning difficult. For this reason, one of the
first interventions in most sectors is to establish a reliable and
authentic set of baseline data. The monitoring and evaluation
unit at the Civil Secretariat FATA is responsible for supervising
data collection and compilation, and for updating information.
The Secretariat is in the process of carrying out a multiple
indicators cluster survey to establish benchmarks in the social
sect ors. A si mi l ar survey shoul d be conduct ed f or al l
development sectors.
For effective implementation at the grassroots level, it is always
Database
SociaI Organisation
CPDSSCUTTNC
NTAT7ES
131
best to work with well-organised communities, and with clear and transparent decision-making
mechanisms. The unique organisation of tribal society may be helpful in the execution of
certain types of projects but for most development activities a strong clan structure is a
hindrance since it shifts the focus onto clan interests rather than the good of the community
as a whole. For this reason, it is important to invest in appropriate social structures, creating
new ones and strengthening those that exist, to allow development issues to be addressed
separately from tribal or clan interests.
A first step in this direction is the formation of users groups or interest groups in sectors such
as education, health, forestry, water and agriculture. These groups should have a clear
mandate, a democratic decision-making system and legal recognition. At the same time,
social organisation needs to be addressed as part of ongoing governance reform. The
proposed rural support programme for FATA will help in the establishment and strengthening
of community organisations. The SDP also foresees the creation of savings and credit
facilities at the grassroots level to serve as an incentive for community organisation, and to
help the poor access small but vital credit without being dependent on unscrupulous
moneylenders.
Development initiatives in the past have benefited influential elements in FATA rather that the
poorest segments of the population. n some cases this has simply been a matter of
convenience, since it is often easier to work with the more influential members of a
community. But influentials have also exerted undue pressure to skew priorities in public-
sector development planning. For the future, as the tribal areas become the focus of
sustained and systematic development planning, it is critical to ensure that poor and
disadvantaged groups are not left behind.
The SDP makes a concerted effort to identify projects that are likely to benefit the most
disadvantaged segments of the population, and to include in all projects components that
specifically address the needs of disadvantaged groups, including women. mplementation,
too, will be carried out with a pro-poor focus. The planning and development department of
the Civil Secretariat FATA will ensure that this focus is built into all development programmes.
t will also monitor the impact of development programmes on the poor.
Commerce and industry are expected to play a critical role in the development of the tribal
areas. As these sectors grow and expand, they will create much-needed employment and
provide a boost to the local economy. Poverty alleviation and economic empowerment will
depend on the success of industrial and commercial development.
The absence of an adequate regulatory framework to govern commerce and industry serves
as a disincentive for investors in general, and entrepreneurs are barred from accessing
institutional credit. A number of remedial measures have been proposed to address this
issue, including the establishment of a regulatory framework. But such efforts will take time.
To meet the immediate needs of entrepreneurs, an nvestment Risk Guarantee Fund is
proposed. This Fund, to be operated by the FATA Development Authority (FDA), will provide
risk guarantees to financial institutions. This should allow entrepreneurs to access credit for
industrial and commercial expansion. The FDA will chalk out detailed criteria, terms and
conditions for access to the Fund.
One of the stumbling blocks for development is the influence of tribal customs and social
Poverty and Equity
Investment Risk Guarantee Fund
Awareness and AttitudinaI Change
132
133
attitudes. Many tribals fail to see the importance of education (especially for girls), health
care (especially for mothers), women's rights and environmental conservation. Members of
the elite classes may be more worldly, but resist change nonetheless. n many cases, tribal
elites manipulate the common people, while enmities spanning generations and sporadic
disputes of more recent origin disturb the smooth functioning of everyday life.
This state of affairs hampers progress. Local professionals such as doctors, engineers and
teachers who have settled elsewhere in the country are reluctant to return to FATA and
participate in the development of the area. This is felt most acutely by women, with many
qualified professionals hailing from the tribal areas unwilling to return to serve their own
communities.
A gradual change in mindsets is already starting to take place, partly as a result of greater
access to knowledge and information. This change needs to be supported through
development initiatives undertaken by line directorates under the SDP. At the same time, the
media cell at the Civil Secretariat FATA will use community-appropriate channels, including
the print and electronic media, mosques, hujras, and sports and cultural events, to create
awareness. To take on this task, the media cell will need to be reorganised and strengthened.
Tribal society is dominated by men. Cultural tradition, social practices and low female literacy
have left women in a vulnerable position. They are for the most part restricted to performing
household work, and are excluded from decision-making both on the domestic front and at
the community level. Women's access to education and health care is limited because such
services are not available close to home.
The SDP aims to enhance the status of women through education and training. Women form
an integral part of all SDP interventions, from agriculture to industry and from health care to
skills development. A separate unit will be created at the Civil Secretariat FATA to launch
focused awareness-raising campaigns related to gender-specific issues.
n many parts of the world, development has put excessive pressure on the environment.
ndustrial pollution, toxic waste, and the indiscriminate use of fertiliser and pesticides, are but
a few of the hazards that accompany progress in any society. Land becomes degraded, water
unsafe, and the sky dark with smog. These risks are no less serious in a place such as
FATA. n fact, many of the development proposals laid out in the SDP risk causing damage to
the fragile ecology of the area. Cognizant of this fact, the SDP makes every effort to ensure
that development is carried out in a manner that causes minimal adverse environmental
effects.
There is a close link between poverty and the environment. Poverty often leads to the over-
exploitation and unsustainable use of natural resources. At the same time, it is the poorest
communities who depend most intensely on natural resources for their survival. As such, they
are also the ones who suffer directly as a consequence of environmental degradation.
Although FATA lags far behind the rest of the country in terms of development, it has not
escaped the ill-effects of environmental degradation. Widespread deforestation has led to a
scarcity of fuel wood and timber, while denuded hills are unable to retain soil or water.
Erosion increases the incidence of flash floods which wipe away crops, farmland and
valuable infrastructure, while low water retention has led to a drawing down of the water
table, creating scarcity where none existed a few generations ago. For the growing
population, it is today becoming increasingly difficult to obtain water in sufficient quantities to
Gender Issues
Environment
CPDSSCUTTNC NTAT7ES
irrigate crops and meet domestic requirements. Rangeland is also becoming degraded, partly
as a result of pressure from overgrazing but also because of extended periods of drought.
For more effective environmental control, the traditional system of natural resource use and
management must be documented, analysed and used to build awareness. At the same time,
appropriate regulatory measures should be developed and institutionalised. Where possible,
formal regulation should evolve on the basis of traditional practices. As a first step,
environmental management and assessment capacity should be established at the Civil
Secretariat FATA to ensure the integration of environmental concerns into the planning,
design, implementation and monitoring of development programmes.
mplementation of the SDP will take place through a unique, three-pronged mechanism
involving the Civil Secretariat FATA, the private sector and civil society. (See chapter 21 for
details.) This approach requires innovative arrangements and partnerships that will need to
be tested. To this end, research and development studies need to be conducted in order to
assess the relevance of innovation in the context of the tribal areas. This specialised
research will be carried out by the planning and development department at the Civil
Secretariat FATA in partnership with academic and development institutes.
There is limited conceptual, managerial and technical capacity within the directorates and
departments of the Civil Secretariat FATA. Already, most offices find it difficult to meet their
targets for assigned development responsibilities. The scale and scope of the SDP, and the
challenges of effective implementation, require a well-equipped, professional workforce that is
technically proficient. The mechanisms that will be developed for execution and monitoring
will founder if the requisite capacity is not available, both in terms of human resources as
well as institutional strength.
DFD is already providing support to build the capacity of the Civil Secretariat FATA and its
line directorates. Additional support is needed for on-the-job training, exposure visits and
refresher courses; to strengthen the directorates with additional field-level staff; and to hire
short-term technical experts, advisors and resource persons.
The cross-cutting initiatives proposed here are areas for which no specific ADP funds have
been allocated in the past. These initiatives are introduced by the SDP and the proposed
budget for interventions is shown in table 34.
Research and DeveIopment
InstitutionaI Capacity
Budget
134
135
CPDSSCUTTNC NTAT7ES
TabIe 34: Cross-cutting initiatives (FATA SDP budget, 2006 15) -
Database
Social organisation
Poverty and equity
nvestment Risk Guarantee Fund
Awareness and attitudinal change
Gender issues
Environment
Research and development
nstitutional capacity
Total
Years 15
20.00
250.00
5.00
400.00
80.00
5.00
30.00
20.00
150.00
960.00
Years 69
10.00
200.00
5.00
100.00
50.00
10.00
20.0
15.00
50.00
460.00
Total
30.00
450.00
10.00
500.00
130.00
15.00
50.00
35.00
200.00
1,420.00
Surveys, compilation of data
Establishment and strengthening
of social organisations. Seed
capital for microcredit
Research studies
Establishment of fund
Materials development and
publication. Publicity campaigns
Workshops, seminars, training
External expertise, studies, training
Research studies
Training, workshops, exposure
visits, scholarships
137
D
evelopment does not occur in a vacuum. Nor, for that
matter, does any broad-based development strategy
have a realistic chance for success unless it includes
all members and segments of society. The context in
which development is to take place is as important as the
sector-specific proposals that form the heart of the SDP.
Certain aspirations are common to all people, no matter where
they live or how privileged or poor they may be. Peace, equity
and justice are fundamental requirements for any civilised
soci et y, and i n nat i ons or r egi ons t hat ar e poor or
underdeveloped, they serve as the building blocks for social and
economic progress.
Good governance is a key prerequisite for achieving the goals
set out in the SDP. Governance in the tribal areas is currently
undergoing fundamental reform. This is an opportunity to ensure
that, in the future, governance is participatory and reform is
supported by a robust legal framework.
Prerequisites for DeveIopment
Governance
0E7ELDP|ENT
CDNTEXT
During public consultations held for the preparation of the SDP, participants were vocal in
their criticism of elite-dominated decision making that has characterised past development
initiatives. They pointed to the waste and inefficiency of the system, and to the rampant
corruption that has marred many projects.
The SDP will bring significant development resources to FATA and with increased funding will
come added pressure to deliver results. Expectations will be high not just on the part of
donors but also among the people who are targeted as beneficiaries. Failure at this critical
stage will not only mean that an opportunity has been lost but will also do irreparable harm to
the people's trust and faith in development initiatives generally. t is therefore imperative to
draw lessons from the past, and to formulate transparent and equitable decision-making
procedures.
Another basic requirement for socio-economic development is human security. This is of
course a critical issue for the people but security is equally important to service providers and
government officials who travel to and work in the area. At the moment, access to many parts
of FATA is restricted. n such areas, government officials and service providers cannot move
freely without a local escort. This creates difficulties on a number of levels, from the
performance of field duties to inspection and monitoring.
From the views that were expressed at public consultations, it is clear that the people are
themselves deeply aware that security and stability are prerequisites for development. Not
only the younger generation but even many tribal elders explicitly stated their desire for
strong measures to curb lawlessness and violence. Moreover, they assured their full
cooperation in such matters, including for the resolution of long-standing disputes.
The people of FATA have long been accustomed to witnessing violent conflict between the
members of different tribes and clans. nter- or intra-tribe conflict may range from minor
family disputes that create tensions and uncertainty to full-blown armed clashes that result in
irreparable losses. While for many generations the people have managed to build their lives
in this climate of instability, today there is growing awareness that internecine conflict of this
sort is a major obstacle in the way of development.
Besides the pervasive hostility and insecurity that is created, persistent conflict is also a
waste of resources. With the government and tribal elders required to concentrate on
resolving disputes, there is little opportunity to focus on development activities. Although an
indigenous mechanism for conflict resolution already exists in the form of the jirga, there is
perhaps a need to find ways to prevent conflict from occurring in the first place. n this
connection, it is worth exploring the possibility of a set of rules and regulations, arrived at by
mutual consensus, to serve as a basic charter or code of conduct for peaceful coexistence.
The traditional jirga mechanism is increasingly out of the reach of common people. During
public consultations, it became evident that in many cases the jirga fails to provide justice to
poorer segments of the population. Many also blame the system for fuelling tribal enmities
that have in some cases persisted over several generations.
There are no separate civil courts to provide the people with an alternative means to address
grievances. With many now accusing the jirga of being biased in favour of the rich and
Law and Order
ConfIict ResoIution
Access to Justice
138
139
influential, this in effect leaves ordinary people with no access to justice of any kind, whether
in a traditional forum or through a formal judicial system. The ongoing reform process in
FATA envisions a strengthening of governance, and this will need to be accompanied and
supported by robust and equitable legislative and judicial mechanisms.
The SDP commitment to the people of FATA has already been spelled out in the initiatives
proposed in earlier chapters. mplementation of these initiatives will, however, require the
active participation of a variety of actors. While the people are the prime engine for
development, the SDP envisions implementation to take place in partnership with a number of
key players.
A people-centred approach informs all the strategic interventions outlined in the SDP. The
men, women and children of the tribal areas young or old, student or farmer, labourer or
parliamentarian are the driving force for development.
The population is divided along the lines of traditional clan and tribe loyalties. But for many
people, belonging to a tribe or clan is not simply a question of identity. Ownership of natural
resources is also determined according to clan or tribe, with each group controlling resources
within its own area and making decisions about management and use. Membership in the
tribe is therefore essential for access to resources. For poorer segments of the population,
moreover, membership in and protection of the tribe is often the only safety net that is
available. This is perhaps one reason why the tribal social structure has survived for so many
centuries and continues to exert its influence on the lives of the people today.
Religious leaders are a prominent part of society in the tribal areas. They enjoy the respect
of the people, and their frequent interaction with local communities makes them important
players in development. Maliks serve as a link between tribals and their government. Within
communities, maliks are also instrumental in convening jirgas to reach consensus on a wide
range of issues. Parliamentarians and senators who represent FATA in the nation's capital,
and elected councillors who play a similar role closer to home, are also an important part of
the development paradigm because of their influence on policy decisions and implementation.
Agency councils have an additional role to play both in facilitating development and in
regulation, since they are actively involved in preparing ADP drafts, which are reviewed and
forwarded by their respective political agents in the form of consolidated sector proposals.
The government serves as the major service provider, regulator, policy maker and financier
for FATA. ts role is also to create a favourable working environment for the private sector
and to regulate private-sector operations within a legal framework. The government, which
includes both the federal and provincial levels, operates in the tribal areas through the
Ministry of States and Frontier Regions, as well as the Civil Secretariat FATA, its directorates
and other functionaries.
As service providers, the directorates and their field offices are responsible for the
implementation of development plans and the provision of technical services. The
identification of potential sites for projects is carried out by the directorates in consultation
with local tribes and the political agent. The Civil Secretariat FATA is the main planning and
coordination body for overall development. t sets development priorities, approves ADPs,
provides funds and supervises the progress of schemes.
Partners in DeveIopment
The PeopIe of FATA
Government Institutions
0E7ELDP|ENT CDNTEXT
Private Sector
CiviI Society
DeveIopment Organisations and Donors
Linkages and Coordination
Entrepreneurs in FATA are loosely organised under the aegis of the Tribal Area Chamber of
Commerce and ndustry, and can provide valuable input at the policy level. Professional
organisations of this sort can also be instrumental in channelling services to their members.
mplementation of the SDP will create ample space for private-sector involvement in the form
of contractors, consultants, materials suppliers and service providers. Already, sectors such
as transport, commerce and trade are dominated by successful private enterprise. This role
will be supported by SDP initiatives.
Opportunities exist in a number of areas where FATA enjoys a comparative advantage. t is
strategically located between South and Central Asia (cross-border trade), possesses a
wealth of untapped resources (minerals, agricultural produce), and has high levels of
expertise in light engineering (firearms manufacture). t will be important to capitalise on
these strengths, and to build on the gains by encouraging private-sector involvement on a
larger scale and in a wider range of activities. For this to happen, an appropriate legal
regulatory framework will be necessary, which will have the added benefit of enabling
institutional financial services to be offered to businesses.
Various ideas are currently being explored to strengthen private enterprise and create an
environment where greater private-sector involvement becomes possible. Heavy investment
by the government, tax exemptions, subsidies and other favourable terms for entrepreneurs
are all thought to be viable options. n fact, measures of this nature may help in the short
term but are not sustainable, particularly since they may be in contravention of WTO
agreements and treaties. f government intervention and assistance is to take place, it must
be accompanied by a clearly defined strategy to gradually but steadily transform a subsidised
system into a market economy.
While people are the driving force of development, civil society offers the structures and
support mechanisms that help bring their efforts to fruition. The SDP will require the
involvement of civil society in a number of areas, from technical and social services to social
organisation and awareness building. This will involve the active participation of non-
government organisations already working in the area, in conjunction with rural support and
development projects and schemes. At the village level, too, social organisation will be
needed in the form of users groups and other similar grassroots social formations based on
common interests and needs.
Development organisations and the donor community have recognised the need to support
development in Pakistan's tribal areas. They have welcomed the formulation of the FATA SDP
as an instrument to bring about development in a systematic and coordinated fashion. Their
continued support will be expected during implementation.
Linkages, coordination and synergies are the lifeblood of a multi-sectoral development
package. n order to bring about meaningful change on the ground, it is important that sector-
specific actors are brought into contact with those working and operating in other sectors. Not
only does this allow individual initiatives to benefit from the collective knowledge gained in
140
141
other areas, it also prevents the duplication of activities and, more importantly, ensures that
all actors are pursuing common goals while focusing on their own spheres of influence and
interest.
For implementation of the SDP, coordination forums will be established in each agency and
FR, comprising the staff of line departments, representatives from development agencies and
members from local communities. Operating under the guidance and supervision of their
respective political agents and district coordination officers, these mechanisms will provide an
opportunity for the exchange of ideas, knowledge and experience.
The key coordination role will be played by the Civil Secretariat FATA. t will ensure internal
consistency in activities taking place within each sector, and see that these activities are in
tune with the wider, integrated vision.
0E7ELDP|ENT CDNTEXT
143
ncreased allocations for FATA over the coming years

promise to usher in a new era of development and progress.
A clearly defined, integrated plan drawing strength from the
principles of equity and social justice will ensure that the
benefits of development are within the reach of the poorest,
most disadvantaged segments of the population. Effective
implementation of the SDP will lead to a change in the mindset
of the people, and help restore their confidence in their
government as well as in their own abilities.
The approval of the SDP by the Governor of the NWFP makes it
mandatory that all new development initiatives in FATA conform
to the recommendations set out in the SDP. The Civil Secretariat
FATA will issue a notification, announcing approval of the SDP,
with instructions that all future projects and schemes across the
board must be i n l i ne wi th the di recti ons and pri ori ty
interventions specified in this document.
The broader goal of the SDP can onl y be achi eved i f
implementation of the strategic measures outlined for various
sectors takes place in a fair, transparent and efficient manner.
Monitoring will allow the success or failure of initiatives to be
assessed, and will provide the data needed to revise strategic
directions where necessary. t will create in the SDP the
I|PLE|ENTATDN AN0
|DNTDPNC
flexibility to respond to changes on the ground, while remaining a coherent articulation of
collective goals for the development of the tribal areas.
The SDP will be translated into individual sector-level development plans. These plans will
cover the five-year intervention phase and will translate the necessary interventions into
concrete projects that can be sequenced into the ADP and other programmes.
The scale, scope and challenges of the SDP require an innovative institutional arrangement
for implementation. A triangular mechanism is proposed, consisting of the Civil Secretariat
FATA, the private sector and civil society organisations.
The Civil Secretariat FATA and its line directorates play the lead role in SDP implementation.
Their mandate is to regulate, plan, execute, supervise, coordinate, finance and monitor
development activities. The line directorates and their field offices in each agency and FR are
the implementation arms of the Secretariat. The Secretariat and directorate heads play a
proactive role in guiding implementation at the field level.
The Secretariat ensures that all future ADPs and other programmes for individual sectors
conform to the standards spelled out in the SDP and contribute towards its overall goal and
sectoral targets. t also has the critical responsibility of mobilising resources for
implementation.
The private sector plays a crucial role in achieving the targets of the SDP. The government
will improve the framework conditions for the development of the private sector, and will
encourage public-private partnerships for the implementation of the SDP.
The FDA, established in October 2006, is responsible for promoting public-private
partnerships. As a semi-autonomous corporate body, the FDA operates under the supervision
of a board of directors. ts chief executive, in his ex officio capacity, chairs the board,
assisted by directors drawn from the federal government, Civil Secretariat FATA and private
sector. Overall policy guidance and direction for the FDA is provided by a steering committee
under the chairmanship of the NWFP Governor, and comprising members from the federal
government, provincial government, Civil Secretariat FATA, private sector and civil society.
The FDA will initially execute schemes related to development in the minerals, industry, small
dams, skills, and commerce and trade sectors. Funds for these schemes are to come from
SDP sector budgets. Working in partnership with the private sector, the FDA will mobilise
additional human, financial and technical resources. t will also facilitate private-sector
operations by carrying out investment trend surveys, feasibility studies and cost-benefit
analyses. The FDA will enter into partnerships with private-sector developers through
contracts and agreements for the execution of specific projects and schemes. t will also
enter into agreements and contracts with the private sector for technical services and
expertise to supervise projects.
Development work in FATA so far has been undertaken by public sector institutions, with little
or no involvement from civil society organisations or local communities. Not surprisingly, this
one-dimensional approach to planning, design and implementation has failed to deliver the
desired results.
ImpIementation Arrangements
CiviI Secretariat FATA
Private Sector
CiviI Society
144
145
Alternatives are, however, available. 'Rural support programmes' represent a distinct group of
non-profit non-government organisations committed to poverty alleviation, with a livelihood-
centred approach to rural development. The idea behind rural support is that communities
carry within themselves the capacity for self-help. This strength can be brought out by a
catalyst organisation, which assists communities with technical and material support.
Similarly, 'area development projects' are based on the active involvement of the local
population in the identification, planning and implementation of development initiatives
through community-level social organisation. This model has already been pilot tested in
North Waziristan and South Waziristan by the Special Development Unit of the NWFP
planning and development department. Currently, the Civil Secretariat FATA is implementing
the FRDP in the Bajaur, Khyber and Mohmand agencies. The results so far have been
encouraging.
This positive response has encouraged the Civil Secretariat FATA to extend the area
development project and rural support programme models to FATA in implementation of the
SDP. A decision in this regard was taken in September 2006 by the Civil Secretariat FATA
with the approval of the NWFP Governor. Responsibility for a FATA rural support programme
will initially be taken by the Sarhad Rural Support Programme, which will set up a tribal unit,
working towards the long-term objective of establishing a separate rural support programme
in the tribal areas.
The interest and response of the international development organizations during the
formulation of the FATA SDP show their willingness to participate in the implementation of the
plan. There is therefore a potential to take benefit from reputed national and international
development organizations and research institutes for complementing the locally available
capacity with international expertise, cutting edge knowledge and technology. The
international organizations will work in close collaboration with line directorates and local
organizations under supervision of the Civil Secretariat FATA.
Effective implementation of the SDP requires a well-coordinated monitoring mechanism at the
Civil Secretariat FATA, to encompass the operations of line directorates at the field level. The
monitoring cell at the Civil Secretariat FATA oversees implementation of the SDP.
n order to accurately assess SDP implementation, a development matrix covering key
sectors and sub-sectors, along with individual targets, has been prepared (table 35). This
matrix provides baseline data prior to SDP implementation, specifies targets for the five-year
intervention and four-year consolidation phases, and shows expected improvements at the
end of the nine-year implementation period. Each project or scheme is expected to contribute
towards the targets specified in the matrix. Monitoring will cover four key criteria: quality,
financial utilisation, physical progress and attainment of development matrix targets.
Only key development sectors have been selected for inclusion in the matrix. For other
sectors, it may not be possible to collect authentic data for monitoring purposes. Even within
key sectors, baseline data is not currently available for certain indicators. n such cases,
targets have nevertheless been specified with the understanding that data will be collected in
the near future.
n the past, FATA has not received its share of development allocations according to
population, area or requirements. Until 2001, the annual ADP allocation for the tribal areas
Monitoring
FinanciaI PortfoIio
|PLE|ENTATDN AN0 |DNTDPNC
stood at less than 1 billion rupees. Over the last few years, however, funding has grown. ADP
allocations were increased to 1.18 billion in the financial year 2001-02 and have gradually
risen in successive years (table 36), reaching 6.2 billion rupees in 2006-07. The Civil
Secretariat FATA, its line directorates and their field offices have an impressive record of
146
TabIe 35: FATA SDP deveIopment matrix (2006 15) -
Sector indicators BaseIine
Targets Progress
2006 5 years 9 years 9 years
Education
Literacy ratio, total (per cent)
Male literacy (per cent)
Female literacy (per cent)
Primary school enrolment, total (per cent)
Male enrolment (per cent)
Female enrolment (per cent)
HeaIth
nfant mortality (deaths per 1,000 live births)
Maternal mortality (deaths per 100,000 live births)
Water supply and sanitation
Access to improved sources of drinking water (per cent)
Access to improved sanitation (per cent)
AgricuIture
Cultivated area (hectares)
Agriculture pocket areas (number)
Livestock and pouItry
Meat production, ruminants and poultry (per cent)
Milk production (per cent)
Livestock pocket areas (number)
Forestry
Forest cover (hectares, as percentage of total area)
Survival rate of tree plantations
Fisheries
Fish production (tonnes)
Irrigation, water management and power
Land under irrigation (hectares)
Roads and bridges
Road density (kilometre per square kilometre of area)
NA = not available
Source: Civil Secretariat FATA.
16
29
3
50
70
30
22
38
6
60
80
40
31
50
12
75
90
60
+ 94
+ 72
+ 300
+ 50
+ 28
+ 100
87
600
NA
54
10
83
500
NA
65
17
77
400
NA
75
25
- 10
- 200
NA
+ 39
+ 150
200,000
0
NA
NA
0
7.8
NA
100
83,000
0.20
240,000
3
+ 5
+ 7
2
10
60%
400
120,000
0.24
265,000
4
+ 10
+ 15
3
12
60%
1,000
160,000
0.27
+ 65,000
+ 4
+ 10
+ 15%
+ 3
+ 54
NA
+ 900%
+ 93%
+ 35%
147
|PLE|ENTATDN AN0 |DNTDPNC
development fund utilisation. Analysis for the years 200102 to 200506 shows an average
annual utilisation of over 80 per cent.
The proposed financial portfolio for the SDP is divided into two parts: the five-year
intervention phase and the four-year consolidation period (table 37). The majority of fund
utilisation is expected to take place in the intervention phase, since this is when new facilities
will be completed. The consolidation phase allows time to monitor impact, strengthen the
services and facilities provided, and assess their suitability for wider replication. The figures
shown in the financial portfolio are based on preliminary cost estimates derived from similar
initiatives already undertaken in specific sectors, and are subject to variation.
Estimated financial requirements for the SDP stand at approximately 124 billion rupees over
nine years. This figure does not include the salaries of existing staff of the Civil Secretariat
FATA and line directorates. The SDP requirement will be met through the federal PSDP,
ongoing donor-assisted programmes and projects, and additional donor assistance (table 38).
The unfunded portfolio of the SDP will be offered to donors for aid and grant assistance.
Amount
(biIIion rupees)
ADP aIIocations for FATA
(2001-02 and 2005 06) -
Sector
Education
Health
Rural development
Agriculture
Livestock and poultry
Forestry
Fisheries
rrigation, water management and power
Roads and bridges
Physical planning and housing
ndustry
Mining
ADP total
2001 02
456.029
118.782
19.829
9.665
56.300
126.908
1.330
29.950
303.000
53.000
1.862
3.000
1,179.655
NR
2005 06
1,103.000
993.202
353.876
36.050
132.974
172.130
287.973
5.772
564.970
686.084
180.414
2.750
87.959
4,607.154
TabIe 36:
148
TabIe 37:
Sector
Budget (miIIion rupees)
ConsoIidated budget for the FATA SDP (2006-15)
Years 15 Years 69 Total
Education
Health
Rural development
Agriculture
Livestock and poultry
Forestry
Fisheries
rrigation, water management and power
Roads and bridges
Physical planning and housing
ndustry
Mining
Commerce and trade
Tourism
Skills development
Cross-cutting initiatives
FATA SDP total (200615)
15,604.00
8,300.00
2,385.000
1,335.000
5,815.000
1,195.000
4,230.000
435.000
5,450.000
27,825.000
1,000.000
2,025.000
3,310.00
36.000
285.000
419.000
960.000
80,609.000
12,041.00
5,400.00
1,655.000
515.000
4,300.000
790.000
3,320.000
250.000
3,613.000
6,955.000
405.000
1,395.000
2,040.00
10.000
140.000
210.000
460.000
43,499.000
27,645.00
13,700.00
4,040.000
1,850.000
10,115.000
1,985.000
7,550.000
685.000
9,063.000
34,780.000
1,405.000
3,420.000
5,350.00
46.000
425.000
629.000
1,420.000
124,108.000

Funding arrangements, FATA SDP
(2006 15) -
Item
Total financial requirement
Total committed finances
Government of Pakistan
Foreign-aided projects
Unfunded financial portfolio
Amount
(biIIion rupees)
124.108
63.600
60.508
60.000
3.600
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Annex 1
PubIIc ConsuItatIons
157

Meeting
Location Date
September 23, 2006
September 30, 2006
October 2, 2006
October 5, 2006
October 6, 2006
November 1, 2006
Public consultations for Kurram Agency, Orakzai Agency
Public consultations for Khyber Agency, FR Kohat,
FR Peshawar
Public consultations for Bajaur Agency, Mohmand Agency
Public consultations for North Waziristan Agency,
FR Bannu, FR Lakki
Public consultations for South Waziristan Agency,
FR Dera smail Khan, FR Tank
FATA SDP consultative seminar

Parachinar
Peshawar
Ghalanai
Bannu
Tank
Peshawar
PubIIc ConsuItatIons
Annex 2
hap of FATA
hap of FATA
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SustainabIe

Devise an intensive programme to develop the English language proficiency of teachers.

EmpIoyment Prospects for Students

AvaiIabiIity of LocaI ProfessionaIs

HeaIth System Strengthening

Marketing and Enterprise

Information, Awareness and Research

Strengthen extension services to intensify and diversify production systems by adopting

Prepare conservation and management plans.

Marketing and Enterprise

Information and Research

Strengthen watch and ward for natural water bodies.

ndustries are driven by comparative advantage. n Pakistan,

FATA SUSTANA8LE 0E7ELDP|ENT PLAN 2006 2015

DecentraIisation and Empowerment

Information and Research

mplementation of the SDP raises certain challenges that

ncreased allocations for FATA over the coming years

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