Standard-­‐  
 
 
 

Setting  
 
 

Guidelines  
Early   Recovery   of  
Agriculture   for  
population   and  
areas   affected   by  
2010   Pakistan  
floods    

FINAL  DRAFT    
 
  

   
Contents  
 

1.   Introduction  .....................................................................................................................................  5  

2.   Overview  of  the  Disaster  and  its  Impact  ...........................................................................................  5  

2.1   Characteristics  of  the  Floods  ......................................................................................................  5  

2.2   Flood  Damages  ..........................................................................................................................  6  

2.3   Availability  of  Information  .........................................................................................................  9  

3.   Humanitarian  Response  to  the  Floods  of  2010  ...............................................................................   12  

3.1  Pakistan  Relief  and  Early  Recovery  Response  Plan  ......................................................................   12  

3.2   Coordination  of  Humanitarian  Response  ..................................................................................   13  

3.2.2.  Cluster  System  ............................................................................................................................................  14  

3.3  Activities  Conducted  During  the  Relief  Phase   ..............................................................................   14  

3.3.1   Key  Areas  of  Intervention  ........................................................................................................................  14  

3.3.2  Agriculture  Support  outside  the  UN  Cluster  ................................................................................................  16  

4.   Lessons  Learned  .............................................................................................................................   16  

5.   The  Early  Recovery  Framework  ......................................................................................................   18  

5.1  Aims  of  Early  Recovery  in  the  Agriculture  Sector   ...............................................................................   19  

5.2.   Summarizing  Agriculture  and  Livelihood  Support  Interventions  ................................................   20  

Capacity  Building  and  Institutional  .......................................................................................................................  21  

5.3.   Guiding  Principles  for  Early  Recovery  .......................................................................................   21  

5.3.1.   Plan  interventions  on  a  thorough  understanding  of  the  context  ...........................................................  21  

5.3.2.   Participation  and  Ownership  ..................................................................................................................  22  

5.3.3.   National  Agriculture  Policy  and  Strategy  ................................................................................................  23  

5.3.4.   Social  Equity  Principle  to  address  Vulnerable  Population  ......................................................................  23  

5.3.5.   Rebuild  Peoples’  Livelihoods  ...................................................................................................................  24  

2  

 
  

5.3.6.   Disaster  Risk  Management  and  Reduction  .............................................................................................  24  

5.3.7.   Monitoring,  Accountability  and  Transparency  ........................................................................................  25  

5.3.8.   Cross  Cutting  Issues  ................................................................................................................................  25  

ANNEXES  ..............................................................................................................................................   27  

Annex  1:   References  for  Minimum  Standards  in  Agriculture  ..........................................................   27  

Annex  2:   Strategy  for  the  Control  of  Water  Logging  .......................................................................   27  

Annex  3:   Disaster  Risk  Management   .............................................................................................   29  

   

3  

 
  

ACRONYMS  
AJK     Azad  Jammu  &  Kashmir  
DCO     District  Coordination  Officer    
DNA     Damage  and  Needs  Assessment  
EAD     Economic  Affairs  Division  
FAO     Food  and  Agriculture  Organization  of  the  UN  
GB     Gilgit  Baltistan  
GoP     Government  of  Pakistan  
IASC       Inter-­‐Agency  Standing  Committee    
IDP     Internally  Displaced  People  
IRSA     Indus  River  System  Authority  
MDG     Millennium  Development  Goal  
MINFAL   Ministry  of  Food,  Agriculture  and  Livestock  
NDMA     National  Disaster  Management  Authority  
NRSP     National  Rural  Support  Programme  
NWP     National  Water  Policy  
PARC     Pakistan  Agriculture  Research  Council    
PaRRSA   Provincial  Reconstruction,  Rehabilitation  &  Settlement  Authority  
PDMA     Provincial  Disaster  Management  Authority  
PIDs     Provincial  Irrigation  Departments  
PIFERP     Pakistan  Initial  Floods  Emergency  Response  Plan    
R&R       Relief  and  Early  Recovery    
SOPs     Standing  Operating  Procedures  
UNOCHA   United  Nations  Office  for  Coordination  of  Humanitarian  Affairs  
WAPDA   Water  and  Power  Development  Authority  
 
 
 
 
 
 
 
 
 
 
 

4  

 
  

 
 
 

1.   Introduction    
 

This   document   is   prepared   keeping   in   view   NDMA’s   mandate   and   its   role   stated   in   the  
National   Disaster   Management   Act   of   2010,   to   provide   direction   to   the   Early   Recovery   (ER)  
interventions   in   the   aftermath   of   the   2010   flooding   disaster,   which   affected   the   lives   and  
livelihoods  of  about  three  million  households  in  Pakistan.  While  the  flood  damages  are  multi-­‐
sectoral,  agriculture  is  the  backbone  of  the  economy  in  the  flood-­‐affected  areas  and  pivotal  on  
the  path  towards  livelihood  recovery  and  normalcy.    

The  assessment  of  flood  damages  and  the  selection  of  appropriate  interventions  are  building  
blocks   of   the   Early   Recovery   phase.   The   Strategy   and   guidelines   presented   in   this   document  
aims   to   guide   interventions   in   the   agricultural   sector.   Given   the   enormous   scale   and   impact   of  
the  flooding,  it  is  important  that  the  provision  of  assistance  is  carried  out  in  the  best  possible  
targeted  and  most  cost-­‐efficient  manner.    This  requires  a  good  grasp  of  the  overall  context,  a  
well-­‐articulated  institutional  framework  and  good  coordination  amongst  the  partners.    

The   first   section   of   the   document   is   devoted   to   background   information   on   flood   damages,  
assessments   taken   place   to   date,   which   at   the   same   time   also   provides   the   basis   for   the   ER  
response   actions.   The   section   also   looks   into   institutional   arrangements   and   coordinating  
mechanisms.   The   early   recovery   interventions   are   discussed   briefly,   followed   by   a   more  
detailed  listing  of  the  potential  activities  relevant  to  achieving  early  recovery  aims.  The  section  
on  lessons  learned  sketches  the  mechanisms  to  learn  from  experience  in  order  to  improve  the  
effectiveness,  efficiency  and  sustainability  of  ER  interventions.      

Considerable   attention   is   devoted   to   the   aspect   of   disaster   risk   management.   Gender   and  
environment   are   two   cross-­‐cutting   subjects   considered   in   the   formulation   of   different  
interventions.  The  vulnerability  criteria  used  for  the  humanitarian  assistance  is  in  the  process  
of  being  strengthened  for  a  more  comprehensive  livelihood  analysis.  

   

2. Overview  of  the  Disaster  and  its  Impact    

2.1 Characteristics  of  the  Floods    

 

5  

 
  

The   monsoon   floods   of   summer   2010   were   exceptional   in   their   nature,   geographical  
coverage,   and   damages.   A   rare   combination   of   hydrological   processes,   strong  
monsoon   from   the   Bay   of   Bengal,   westerly   depression,   and   stream   jet,   triggered  
heavy   rains   during   three   weeks   of   July   and   August,   2010.   Prolonged   cloudbursts   in   the  
northern  region  generated  heavy  flash  flows.  During  the  same  period,  higher  monsoon  rains  
across  the  country  and  coastal  regions  generated  high  drainage  volumes.  An  equally  important  
role  was  played  by  reduced  conveyance  capacity  of  the  rivers  due  to  multiple  obstructions  and  
non-­‐optimal   operation   of   the   structures.   It   leads   to   historically   low   velocity   of   flood   flows   in  
the   Indus   River,   causing   heavy   pressure   on   the   canal   and   drainage   system   leading   to   the   over-­‐
topping  or  breaching  of  the  protection  bunds.  
 
The  torrential  floods  in  the  northern  region,  especially  in  Khyber  PukhtunKhwa  (KPK),  washed  
away   major   parts   of   the   infrastructure   and   caused   maximum   human   misery.   In   Peshawar  
valley,  combined   peak  flows  of  Kabul  and  Swat  rivers  were  the  main  cause  of  floods.  Damages  
by  the  flash  floods  were  aggravated  by  deforestation  and  lack  of  land  management,  which  has  
eroded   water   retention   capacity   of   the   catchments.   The   extension   and   design   of   agriculture  
and  other  infrastructure  has  further  reduced  natural  resilience  and  protective  capacity  of  the  
steep  topographic  valleys  of  the  north.    
 
The  Indus  River  received  higher  than  average  flows  from  its  Western  and  Eastern  tributaries.  
Additionally,  hill  torrents  from  the  Sulaiman  Mountains  range  hit  the  Rajanpur  and  D.I.  Khan  
districts  from  the  west.  The  river  floods  and  breaches  in  protection  bunds  caused  damages  in  
highly   inhibited   flood   plains   and   adjacent   areas   in   four   districts.   The   area   has   intensive  
cultivation   by   the   forest   department   and   individual   farmers.   The   capacity   of   the   drainage  
systems  provided  to  carry  over  flash  floods  across  the  Kachi  canal  proved  insufficient,  as  well  
the  emergency  flood  management  capacity  of  the  Taunsa  barrage.  
 
The  lower  Indus  system  faced  supper  floods  and  an  exceptional  slow-­‐down  of  the  flows  due  to  
reduced   flood   management   capacity   of   the   river.   The   public   and   private   infrastructure  
constructed  within  the  flood  plains,  close  to  the  major  structures  and  along  the  water  bodies  
have   reduced   the   physical   capacity   of   the   system.     The   ambiguities   about   flood   carrying  
capacity  of  the  system  made  its  regulation  far  from  the  optimal.    It  caused  the  large  breaches  
in   the   main   river   system   and   numerous   secondary   breaches   in   the   irrigation   and   drainage  
networks.   The   large   areas   became   under   water   in   Sindh   and   Baluchistan   and   remained  
inundated  for  three  to  four  months.  After  six  months  of  floods,  water  is  still  standing  in  low-­‐
lying  areas  because  of  mild  natural  slope  and  limited  drainage  potential.    
 

2.2 Flood  Damages  

 

6  

 
  

The  major  agriculture  losses  by  floods  were  caused  by  the  full  or  partial  damage  of  
about  2  million  hectare  crop  land  in  Pakistan,  followed  by  the  loss  of  livestock  (table  
1).   Physical   damage   to   the   farmland   and   irrigation   facilities   occurred   on   relatively  
smaller   portion   of   the   flooded   land,   but   remained   critical   in   nature.   The   flash   floods   in   the  
north,   river   surge   in   heavily   inhibited   flood   plains   and   long   inundation   in   the   south   caused  
these   damages.   The   heavy   silt   deposits,   damaged   on-­‐farm   water   channels   and   tube   wells  
needed   to   be   restored   to   resume   the   agriculture   activities.     In   addition   to   that,   household  
stocks   of   food,   seed   and   animal   feed   were   destroyed   (table   1),   causing   substantial   indirect  
losses.  

7  

 
  

Table  1:    Damages  Sustained  by  Agriculture  and  Livestock  Sectors  

Descriptions   AJK   Balochis FATA   GB   KPK   Punjab   Sindh   National  

tan  
Flood  Affected  Area  (Sq.  Km)   1800   322   7.2   7500   4996   14047   30132   58797  
Flood   Affected   Population  
0.20   0.7     0.1   3.8   8.2   7.2   20.2  
(millions)  
Crop   Area   Damaged   (thousand   121.
33   132.5   7.22   7.9   746.9   1,044   2,093  
ha)   5  
Large  Animals    (thousand)   0.3   139.6   6.2   1.3   72.4   2.3   93.7   316  
Small   Animals   (sheep,   goat)  
0.3   1,037   8.4   10.8   67.8   2.5   81.9   1,208  
(thousand)  
621.
Poultry  Perished  (thousand)   11.7   625.5   101.2   12.9   2,012   6,895   10,280  
3  
1 13.0
Fishery  /Ponds  Lost    (PKR  million)    n/a     14.3      -­‐      n/a     319.07   48.9   381  
3  
1,79
Water-­‐courses  Damaged     657   47    n/a     960   2,598   6,990   13,042  
0  
Household   Stocks   of   Food,   Seed,   6,72 10,48
75   1,590    n/a     19.1   35,805   54,699  
Feed  (PKR  million)   2   8  
Govt.   buildings,   Infrastructure   247.
 n/a     15    n/a      n/a     1,463.8   1.2   1,727  
(PKR  million)   2  
Source:  Disaster  Need  Assessment  (DNA  Oct.  2010,  WB&ADB)  
 
Table  2:  Estimated  Direct  and  Indirect  Losses  

As   shown   above   in   Table   2,   the   total   damage   in   crop   and   livestock   subsectors   expressed   is  
estimated   at   $5.1   billion,   of   which   74%   is   in   the   form   of   direct   damage   and   26%   is   in   the   form  
of   indirect   losses.   Among   the   provinces,   Sindh   suffered   most   with   46%   of   total   damage,  
followed  by  Punjab  (36%),  Khyber  Pakhtunkhwa  and  Balochistan  (8%  each),  and  the  remainder  

                                                                                                                       
1
PDMA  Balochistan
8  

 
  

shared   by   FATA,   Gilgit   Baltistan   and   AJK.   The   losses   were   largest   in   the   crops   sector,  
which   includes   estimates   of   damages   to   Kharif   crops;   food   and   seed   stocks;  
irrigation  facilities;  and  support  services  for  crops,  as  well  as  indirect  damages  to  the  
forthcoming   Rabi   2010/11   and   Kharif   2011   crops.     Livestock   damages,   which   include   loss   of  
animals,   distress   sales,   and   destruction   of   animal   health   support   services,   as   well   as   indirect  
damages  due  to  reduced  milk  production,  accounts  for  11%  of  total  damages.  Fisheries  losses  
are  estimated  at  around  $4.5  million.2      

2.3 Availability  of  Information    

 
The   proposed   relief   and   early   recovery   interventions   by   the   agriculture   cluster   are   largely  
based  on  the  assessment  of  damages  and  recovery  needs  at  the  formulation  of  the  response  
plan  in  September  2010.  While,  plans  of  the  Provincial  Governments  are  largely  based  on  DNA  
October  2010  .  The  gross  damages  and  needs  in  the  agriculture  sector  have  been  assessed  by  
three  major  initiatives,  using  to  some  extent  different  methodologies.    
 
-­‐ The  first  set  of  rapid  multi-­‐sector  needs  and  vulnerability  assessments  was  carried  out  in  
August   2010   through   two   sample   studies;   the   initial   Vulnerability   Assessment   (by   WFP’s  
Vulnerability   Analysis   and   Mapping   Unit   in   Balochistan,   KPK,   Sindh,   and   Punjab)   and   the  
Multi-­‐Cluster   Rapid   Assessment   Mechanism   (MCRAM)3   of   2800   households   in   28   flood  
affected   districts.   The   survey   data   was   extrapolated   over   the   whole   flood   affected   area  
using  baseline  data  of  the  Provincial  Governments.    
 
-­‐ The   satellite   images   by   SUPARCO   and   NASA   (MODIS)   indicated   an   increase   in   flood  
affected   areas   due   to   breaches   in   the   primary   and   secondary   network   until   September  
2010.   The   assessment   of   damages   by   the   provincial   line   departments   also   showed   an  
increasing   trend.   Some   of   this   information   has   been   published   by   the   line   departments  
(National   Agriculture   Research   Council   (NARC)   and   the   Provincial   Agriculture  
Departments).    
 
-­‐ The   World   Bank   and   ADB   finalized   the   final   and   officially   accepted   comprehensive  
assessment   of   damages   and   costs   in   different   sectors   in   October   2010   (called   Disaster  
Need  Assessment-­‐DNA).  The  revenue  and  provincial  irrigation  departments  collected  the  
                                                                                                                       
2
 Page  13,  Pakistan:  2010  Flood  Devastation,  Damage  and  Needs  Assessment  Report  for  Agriculture  
Sector,  31,  October  2010.  
3
McRAM  took  place  in  four  flood-­‐affected  provinces  from  August  24-­‐31.  The  aim  of  the  assessment  was  
to  reach  a  purposive  though  not  statistically  representative  sample  of  the  most  affected  districts    

9  

 
  

field   data   on   agriculture   losses   that   appear   to   be   10%   higher   compared   to  

SUPARCO  satellite  imagery.    
 
Based   on   McRAM,   the   Agriculture   Cluster   identified   around   2.3   million   hectare   of   cultivated  
land  damaged.  The  cluster  targeted  about  1.3  million  hectare  crops  land  and  more  than  one  
million   rural   households   for   the   early   recovery   support.   The   projects   submitted   by   the  
response   plan   in   September   2010,   targeted   these   households   for   crop   and   livestock   input  
packages,   recovery   of   fisheries   and   agriculture   infrastructure.   Delay   in   agriculture   activities  
due   to   prolonged   standing   water   in   parts   of   the   four   provinces   and   gaps   between   earlier  
assessments   and   DNA   needed   special   efforts   to   support   the   areas   that   are   expected   to   miss  
winter   crops   (Rabi).   More   than   one-­‐hundred   and   fifty   thousand   (150,000)   households   have  
been  added  by  the  new  projects  including  the  sunflower  initiative.    Preference  to  the  twenty  
eight   (28)   worse   affected   districts   and   the   vulnerability   criteria   guides   the   focus   of   recovery  
activities.  
 
The  relations  between  affected  households  and  crop  damages  vary  over  a  wide  range  owing  
to  the  intensity  of  farm-­‐level  damages  and  the  land  holding  size.  The  average  damaged  crop  
land  per   flood  affected  household  is  only  0.25  ha  in  Gilgit  Baltistan  and  maximum,  2.56  ha/hh,  
in   Baluchistan.   To   set   the   homogeneous   and   equitable   tasks   at   the   household   and   district  

Damaged Cultivated Area (2010) as a Percent of total

Cropped Area (2010)
Cropped Area 2010/damaged Area

100%

75%

50%

25%

0%
Jacobabad

Naushehro

Benazirabad
Ghotki

Dadu
Larkana

Shahdakot

Thatta
Sukkur

Khairpur
Qambar

feroze

S.

levels   would   require   clearly   defined   beneficiary   selection   criteria.   The   provincial   crop   land  
damaged  against  the  total  population  affected  is  only  indicative  of  the  regional  variations.  To  
standardize  these  numbers,  in  addition  to  reliable  filed  data,  demographic  information  –  such  
as  population  percentage  inside  the  agriculture  sector  and  land  holding  patterns  -­‐  should  be  
available.    

10  

 
  

 
The  need  for  having  reliable  base-­‐line  data  at  the  district  level  is  critical  to  put  the  
estimated   damages   in   a   proper   context   and   plan   efficient   and   effective   flood  
assistance.  Without  reliable  district  level  land  use  data,  certain  variations  cannot  be  properly  
explained.  For  example,  the  range  of  land  damages  is  10%  to  100%  of  the  cultivated  areas  in  
2010   (DNA   October   2010,   P&D   Sindh   November   2010),   figure-­‐1.   The   authenticity   of  
“maximum   or   full   damages”   is   questioned   by   the   later   field   information.   Based   on   available  
information,   it   could   not   be   ascertained   that   the   both   areas   are   measured   within   the   same  
boundaries.  The  gross  damages  include  all  type  of  cultivated  land;  canal  irrigated,  rain-­‐fed  and  
flood   plains.   While,   the   normal   seasonal   recording   of   cultivated   areas   outside   the   canal  
irrigation  system  is  very  weak  and  limited.      
 
Figure  1:  Damaged  cultivated  Area  as  a  percent  of  total  cultivated  area  in  2010  –  data  provided  by  
Planning  and  Development  department  Sindh  
 
 
The  importance  of  complete  base-­‐line  land  use  data  is  further  emphasized  in  Figure  2.  A  crude  
classification   of   cultivated   land   based   on   satellite   imagery   shows   eight   major   categories   of  
land   use   (Pie   percentage   graph).     Among   the   groups   shown   in   the   figure,   irrigation   and  
revenue  departments  monitor  only  canal  irrigated  land,  which  is  a  large  fraction  but  not  all  of  
the   cultivated   land.   The   district   level   cropped   areas   may   extend   into   four   land   categories  
(including  forest,  barrani  and  range  land).  Cultivation  in  the  Katcha  areas  is  principally  outside  
the   “irrigated   agriculture   category”.   While,   some   of   the   districts   have   a   large   share   of  
damaged  land  in  the  Katcha  belt  (flood  plains).  

Land  Use  Classification  of  the  Gross  Affected  Area

6% 5%
1%3%
13%

9%
4% 59%

Forest Irrigated Agriculture Rainfed/Rod-Kohi Rangeland

Bare Soil Settlements Un-Cultivated land Water Bodies Bodies
 

11  

 
  

Figure  2:  Gross  categories  on  the  Flooded  Land  -­‐  National  level  (SUPARCO,  NARC  October  2010)  
 

3. Humanitarian  Response  to  the  Floods  of  2010  

3.1  Pakistan  Relief  and  Early  Recovery  Response  Plan    
 
On   4   August   2010,   the   Government   of   Pakistan   requested   the   UN   Office   for   Humanitarian  
Affairs  (OCHA)  in  Geneva  for  humanitarian  assistance  and  coordination  support  to  respond  to  
the  effects  of  the  monsoon  floods.  Large  displacements  of  the  population,  heavy  damages  to  
Infrastructure,   agriculture   and   property   and   severe   disruption   of   local   livelihoods   across   the  
country  pressed  UN  to  launch  an  Appeal  for  Pakistan.  
 
The   Pakistan   Initial   Floods   Emergency   Response   Plan   (PIFERP)   was   launched   on   11   August  
2010,     seeking   an   initial   $459   million   to   respond   to   the   immediate   relief   needs   of   the   flood-­‐
affected   people.   The   revised   Response   Plan     -­‐   “Pakistan   Relief   and   Early   Recovery   Response  
Plan”   requested   $1.9   billion   on   17   September   2010.   The   PRERRP     document,   “takes   into  
account   fresh   needs   assessments,   fluctuating   beneficiary   figures,   and   an   extended   planning  
and  budgeting  horizon,  seeks  to  enable  international  partners  (UN  organizations  and  NGOs)  to  
support  the  Government  of  Pakistan  in  addressing  the  residual  relief  needs  and  early  recovery  
needs  of  flood-­‐affected  families  for  the  next  twelve  months”.  A  mid-­‐term  revision  is  planned  
to  take  place  in  the  first  quarter  of  2011  to  provide  more  refined  data  and  analysis  on  early  
recovery  needs.  
 
In   setting   the   overall   targeted   population   of   the   agriculture   component   of   the   appeal  
(PRERRP),  the  leading  agency  –  FAO  and  the  Agriculture  Cluster  members  were  challenged  by  
the  lack  of  detailed  information  on  affected  population,  by  the  evolving  dynamics  of  the  crisis  
and  by  its  size.    
 
Several  assumptions  determined  the  selection  of  the  target  population;  
-­‐ The  affected  rural  population  was  estimated  at  14  M  people,  although  accurate  data  
were  still  missing;  
-­‐ 50%  of  the  affected  rural  population  was  considered  the  most  vulnerable  group  of  the  
rural  affected  population;  
-­‐ The  delivery  capacity  of  the  organizations  active  in  the  agriculture  sector  was  limited  
due  to  the  low  number  of  active  organizations;  
-­‐ The  geographical  coverage  of  most  organizations  at  the  time  of  the  crisis  was  widely  
unknown.    
 
Based   on   such   assumptions   the   total   number   of   beneficiaries   in   the   agriculture   sector   was  
established  at  1.1  M  farmer  households  equivalent  to  approximately  7  M  people.    
12  

 
  

The   Response   Plan   utilized   the   following   criteria   for   prioritization   of   projects   to   be  
included  in  the  appeal.    

§ Projects  that  support  restoration  and  improvement  of  basic  conditions  for  the  displaced  
and  affected  populations  to  return  and  rebuild  their  lives,  in  particular  access  to  basic  
services,   transitional   shelter   and   means   to   repair   houses,   and   food   security,   with  
attention  to  increasing  equality  for  the  most  marginalized  population  segments.  
§ Projects  that  support  spontaneous  recovery  initiatives  by  affected  women  and  men.  
§ Projects   that   aim   to   support,   restore   and   improve   livelihoods,   access   to   services,   local  
economy  and  coping  mechanisms  of  affected  populations.  
§ Projects   that   address   the   protection   of   returnees,   non-­‐displaced   affected   women   and  
men,  as  well  as  their  properties  and  their  rights.  
§ Projects   that   reduce   disaster   risk   through   immediate,   short-­‐term   disaster   protection  
measures.    
§ Projects  that  reduce  reliance  on  relief  assistance  
 

NDMA   developed   and   applied   nine   gross   project   evaluation   criteria   to   streamline   the   early  
recovery  objectives,  individual  project  modalities  (budgeting,  costs,  staffing)  and  to  check  the  
overlaps  of  areas  and  activities.  These  principles  have  been  applied  to  screen  the  projects  for  
financing.    

3.2 Coordination  of  Humanitarian  Response    

 
Under   international   humanitarian   response   arrangements,   UN   agencies,   national   and  
provincial   governments   are   partners   in   a   relatively   complex   setup.   During   the   flood  
emergency,   the   national   and   provincial   governments,   Pakistan’s   army   and   the   international  
community  were  able  to  provide  quick  emergency  response.  The  NDMA  not  only  coordinated  
relief  efforts,  but  also  acted  as  an  active  partner  in  the  distribution  of  food,  shelter  and  other  
aid-­‐items   including   non-­‐food   inputs,   winter   clothes   and   direct   cash   inputs.   NDMA   is   equally  
involved   in   developing   the   guidelines   and   criteria   for   early   recovery   interventions.   The  
Strategic  Planning  Unit  (SPU)  of  NDMA  is  represented  in  all  clusters,  for  the  technical  support  
and  two-­‐way  feedback.    

The   National   Disaster   Management   Commission   was   established   in   2006,   under   the  
chairmanship   of   the   Prime   Minister   of   Pakistan.   As   an   executive   arm   of   the   NDMC,   the  
National   Disaster   Management   Authority   (NDMA)   has   been   made   operational   to   coordinate  
and   monitor   implementation   of   national   policies   and   strategies   on   disaster   management.  
Provincial   Disaster   Management   Commissions   (PDMCs)   and   Authorities   (PDMAs)   have   been  
established   in   KPK,   Punjab,   Sindh   and   Baluchistan,   while   similar   arrangements   have   been  
made   in   AJ&K   and   Northern   Areas.   The   District   Disaster   Management   Authorities   (DDMAs)  
have   been   notified   across   the   country.   The   National   Disaster   Risk   Management   Framework  
13  

 
  

was   formulated   to   guide   the   disaster   risk   management   activities.   The   district   and  
provincial   governments   have   played   a   key   role   in   the   collection   of   damage  
assessment  data  at  the  provincial  level  and  distribution  of  agriculture  inputs.  For  the  
field   implementation,   UN   clusters   work   with   provincial   line   departments,   Provincial   Disaster  
Management  Authorities  (PDMAs)  and  District  Disaster  Management  Authorities  (DDMAs).    
 
3.2.2.  Cluster  System  
The   UN   humanitarian   assistance   is   organized   under   eleven   clusters   for   Relief   and   Early  
Recovery   assistance.   The   IASC   Cluster   Approach   has   been   adopted   for   the   Relief   and   Early  
Recovery  Period.  The  overall  leadership  for  donor  coordination  rests  with  the  Economic  Affairs  
Division   (EAD),   whereas   the   NDMA   is   responsible   for   overall   coordination   of   disaster   response  
efforts   by   both   the   government   and   the   international   community.   Provincial   Disaster  
Management   Authorities   (PDMAs)   play   a   critical   role   as   an   interface   for   the   humanitarian  
community.
 
The  Food  and  Agriculture  Organization  of  the  United  Nations  (FAO)  is  the  lead  agency  for  the  
Agriculture  Cluster.  As  of  August  2010,  the  Agriculture  Cluster  is  present  in  Islamabad,  while  
the   provincial   AC   in   KPK   was   active   since   2009   and   in   the   Punjab   and   Sindh   since   December  
2010.  Once  the  agricultural  system  was  fully  established  it  managed  to  achieve  the  following:  
 
▫ Creation  and  management  of  the  Agriculture  Cluster  Database.  
▫ Development  of  Agricultural  Guidelines  
▫ Constant  updates  to  humanitarian  community  on  funding  and  response  
▫ Initiated  gap  analysis  
▫ Support  to  NGOs  in  the  agricultural  sector  
▫ Constant  lobbying  with  donor  community  
 

3.3  Activities  Conducted  During  the  Relief  Phase    

3.3.1 Key  Areas  of  Intervention  

 
The  response  from  members  of  the  agricultural  cluster  has  focused  on  three  main  pillars:    
▫ Support  to  crop  production  
▫ Support  to  livestock  
▫ Rehabilitation  of  irrigation  infrastructure  (cash-­‐for-­‐work)  
 
Most  of  the  organizations  have  developed  assistance  plans  in  line  with  agriculture  intervention  
strategy   presented   in   the   PRERRP   and   according   to   the   needs   identified   by   their   local   staff.  

14  

 
  

The   cluster   has   assisted   members   with   general   recommendations   on   “packages”,  

giving   details   on   the   inputs   needed   per   household   in   the   different   provinces   and  
relative  costs.    
   
As   the   crisis   progressed,   affected   households   shifted   their   needs   from   emergency   and   life-­‐
saving  to  early  recovery.  At  the  time  of  planning  for  the  2010  Rabi  season,  some  areas  in  Sindh  
and  Baluchistan  were  still  flooded  and  not  ready  yet  for  agricultural  programmes.  Moreover,  
the   limited   availability   of   financial   resources   prevented   distribution   of   more   consistent  
packages,   limiting   the   impact   on   the   households   that   were   reached.   Consequently,   not   all  
affected   households   were   reached   during   the   initial   stages   of   the   relief   phase   and   the  
packages   distributed   were   often   insufficient   to   allow   an   optimal   recovery   of   the   assisted  
households.  
 
 
Crop  production  sub-­‐sector  
The  main  interventions  under  this  component  have  been  the  distribution  of  agricultural  inputs  
for   the   2010   Rabi   season   and   2011   Kharif   season.   The   average   package   was   sufficient   to   cover  
about  1  acre  of  land,  and  included  cereal  seed  (e.g.  wheat,  rice,  maize,  sorghum)  and  fertiliser.  
Some   organizations   also   distributed   a   range   of   agricultural   tools.   The   choice   of   crops  
considered   selection   of   the   appropriate   crop   varieties   suitable   to   the   agro-­‐economic  
conditions,   certified   seeds   and   recommended   fertilizers.   Technical   guidance   about   minimum  
standards   in   agriculture   is   expected   to   come   out   during   the   process,   however,   some  
references   are   provided   in   Annexure   1.   As   up   to   date   the   approximately   600,000   HH   were  
assisted  with  crop  and  vegetable  packages  for  the  Rabi  season.  Approximately  120,000  HH  are  
planned  for  oil–crop  packages  during  Zeid  Rabi.  The  provision  of  certified  seeds      
 
Livestock  
The   rationale   of   livestock   support   was   based   on   the   objective   of   keeping   existing   livestock  
healthy   in   an   extremely   difficult   environment,   characterized   by   unavailability   of   clean   water  
and  pastures.  Interventions  focused  on  the  provision  of  fodder  to  large  livestock,  de-­‐worming  
treatments,  provision  of  clean  water.  At  times,  livestock  restocking  programmes  (chickens  or  
small  ruminants)  were  also  employed  as  a  quick  livelihood  restoration  strategy.    It  is  estimated  
that  400,000  HH  have  benefited  from  livestock  packages  of  different  composition.        
 
Rehabilitation  of  irrigation  infrastructure  (cash-­‐for-­‐work)  
The   agricultural   economy   of   Pakistan   relies   heavily   on   a   sophisticated   irrigation   system.   The  
level   of   destruction   on   irrigation   channels   and   watercourses   requires   considerable  
investments  on  the  rehabilitation  of  infrastructure,  with  particular  emphasis  on  the  irrigation  
system.   A   number   of   cash-­‐for-­‐work   programmes   have   been   initiated   with   the   multiple  
objectives  of  making  agricultural  land  available  to  irrigation  and  injecting  vital  amount  of  cash  
into  communities  participating  into  the  rehabilitation  work.  
15  

 
  

3.3.2  Agriculture  Support  outside  the  UN  Cluster  

 

The   provincial   governments   commenced   a   major   wheat-­‐support   program   during   November  

2010   to   January   2011.   The   wheat-­‐support   scheme   announced   provision   of   wheat   seeds   and  
urea  fertilizers  to  the  full  farm-­‐unit  if  the  land  holding  size  is  less  than  10  acres.  The  large  farm  
owners   (holdings   >   25   acres   in   Punjab   &   KPK,   >40   acres   in   Sindh   and   Baluchistan)   could   get  
subsidized  loans.  While  the  middle  farmers  are  entitled  to  the  both  subsidies.  According  to  the  
information  provided  by  the  Federal  Minister  MINFA  in  the  national  assembly  on  26  January  
2011,   the   federal   government   has   contributed   4   billion(b)   Pak   Rupees   (Punjab=1.44b,  
Sindh=1.68b,   KPK=0.24b,   Balochistan=0.638b,   AJK=0.077b,   G/B=0.26b).   According   to   the  
Minister,  against  the  Federal  package  Provincial  Governments  have  allocated  in  billion  Rupees;  
Punjab   2.603,   Sindh   3.36,   and   KPK     0.48,   while   Baluchistan   has   distributed   0.101   billion  
Rupees.    

In   addition   to   the   government,   key   donors   are   funding   crop   inputs   and   special   initiatives  
through   the   Rural   Support   Programs   and   NGOs.   The   contribution   from   a   third   group   is  
substantial.  Local  philanthropist  and  non-­‐governmental  organizations  have  also  run  the  large  
agriculture  input  programs.  

For  the  aid  effectiveness  and  understanding  of  the  local  potential  of  the  sector,  it  is  critically  
important  to  have  a  coordinated  response  mechanism  and  its  complete  monitoring  from  the  
beginning.    

4. Lessons  Learned    
 
The   consistent   challenges   and   recovery   trends   shown   during   the   relief   phase   provide   an  
opportunity  to  extract  some  lessons  and  take  them  forward.  
 
There   are   still   pockets   of   standing   water   five   months   after   floods   and   returned   rural  
population   in   need   of   humanitarian   assistance.   Physical   damages   such   as   standing   water,  
siltation   and   smashed   infrastructure   will   be   responsible   for   non-­‐revival   of   agriculture  
activities   during   Rabi   2010.   Water   logging   may   continue   for   a   longer   period   in   the   saline  
areas.     These   factors   may   affect   the   efficiency   of   irrigated   agriculture   even   after   the   revival  
of  the  agriculture  activities.  
 
Early  and  substantial  financial  support  to  achieve  the  agriculture  targets  by  the  Provincial  
Governments   indicates   that   agriculture   and   livelihoods   is   an   important   priority   in   the  
overall   humanitarian   response.   Early   interventions   in   the   agriculture   sector   assisted   in  
facilitating   recovery   of   farming   systems.   Recovery   of   the   agriculture   sector   is   generally  
16  

 
  

satisfactory  as  more  than  95%  of  the  previously  cultivated  gross  areas  are  expected  
to   be   revived   during   the   early   recovery   phase.   The   sector   has   shown   a   positive  
response   in   a   relatively   short   period  for  resumption  of  the  cultivation  activities.   For  
a  complete  recovery,  donor  funding  will  be  critical  to  sustain  the  gains  made  so  far.  
 
Cooperation  and  coordination  between  the  Government  of  Pakistan  and  the  humanitarian  
community   worked   well.   The   GoP’s   national   and   provincial   disaster   management   systems  
and  the  humanitarian  community  support  played  constructive  role  in  supporting  the  recovery  
process.  Because  of  multiple  direct  and  indirect  assistance  packages  and  subsidies,  the  sector  
has   been   able   to   receive   substantial   support.   For   rest   of   the   recovery   phase,   higher  
coordination  at  the  local  level  will  enhance  outcomes  of  the  interventions.  
 
The  high  recovery  cost  of  the  agriculture  and  irrigation  sectors  is  an  important  factor  to  be  
considered,   especially   for   the   disaster   preparedness   and   protection   through   enhanced  
resilience.   A   comprehensive   analysis   of   all   strategic   issues   involved   in   the   sector   planning,  
disaster   needs   assessment   procedures,   prioritization   of   assistance   and   the   role   of   cross-­‐
cutting  sectors  should  be  carried  out.  Along  with  lessons  learned,  it  will  provide  guidance  to  
the  recovery  phase.    
 
The   aid-­‐effectiveness  is  influenced  by  the  project  design,   funding   process   and   efficiency   of   the  
field   activities.   The   knowledge   of   the   existing   system   and   capacity   to   accommodate   new  
developments  helps  in  designing  effective  interventions.    A  vigilant,  interactive  and  responsive  
planning  mechanism  should  be  able  to  monitor  and  accommodate  feedback  during  the  revival  
process.  A  static  approach  based  on  the  first  assessment  of  quantitative  damages  and  costs  is  
not  recommended,  because:  
§ The  damages  have  high  geospatial  variation  across  the  sectors  and  sub  sectors,  a  fact  not  
fully  understood  in  the  early  rapid  assessments.    
§ Local  institutional  setups  and  capacities  are  limited  to  provide  quick  and  correct  feedback.  
§ Households  suffer  to  different  level  within  and  outside  the  agriculture  sectors.  
§ The   resilience   and   preparedness   level   of   the   natural   systems   and   communities   vary   in   a  
large  range.    
 
Different   agricultural   sub-­‐systems   have   shown   highly   varied   recovery   potential   based   on  
physical,   economic   and   social   factors.   A   part   of   the   flooded   land   has   recovered   with   better  
opportunities   (mostly   informal   agriculture).   Seed   and   fertilizer   support   by   the   Government  
and   NGOs   has   facilitated   the   farming   community   with   investment   cost.   The   soil   and   water  
availability  are  supportive  and  farmers  have  selected  short  duration  cash  crops  (for  example  
onions).  Changes  in  the  cropping  pattern  can  be  expected  without  a  big  upset.    
 
Preliminary   trends   show   that   the   demand   side   influenced   like   local   livelihood   needs   and  
markets   play   important   role   in   agriculture   response.   The   supply-­‐side   interventions   are  
refined  at  user’s  end  to  accommodate  multiple  factors,  hence,  needs  to  be  well  documented.  

17  

 
  

No  good  documentation  is  available,  yet  though  there  are  several  assessments  that  
are  planned  in  the  upcoming  months  by  the  humanitarian  community.    
 
Early  recovery  choices  by  the  farmers  may  impact  overall  productivity.  Sowing  of  the  small  
duration     crops   in   some   of   the   flood   affected   areas   and   about   four   months   long   sowing  
period   of   wheat   (across   the   country),   indicates   potential   of   the   local   farming   systems.  
However,  higher  risk  is  attached  with  this  pragmatic  approach.  The  large  oil-­‐seed  promotion  
campaign  is  not  received  with  a  fervor.  The  actual  Rabi  performance  will  determine  success  
of   the   intervention   strategies.   However,   a   need   for   comprehensive   understanding   of   the  
cropping   systems,   feasibility   of   the   alternate   crops   and   the   local   market   factor   cannot   be  
underestimated.    
 
Leverage   other   livelihood   schemes   by   the   federal   and   provincial   governments.   National  
Rural  Support  Program  (NRSP)  and  others  are  examples  of  strategies  by  the  Government  of  
Pakistan  that  already  have  a  presence  in  the  most  rural,  underserved  areas.  Their  presence  
and  programming  has  to  be  integrated  into  the  next  phase  of  interventions.  
 
Cash  for  work  is  a  viable  option  for  providing  communities  with  income  in  the  short  term  to  
help  with  their  livelihoods  needs.  The  majority  of  the  work  is  envisaged  as  labor  support  for  
the   rehabilitation   of   agricultural   and   community   infrastructure,   closer   inter-­‐cluster  
coordination  at  the  field  level  will  be  necessary  to  implement  cash/food  for  work  projects.  
 
Some  interlinked  areas  can  highly  influence  sustainable  agriculture  revival  
§ The   forest   department   has   the   main   responsibility   for   the   Katcha   (riverine)   area   and   flood  
plains   management.   The   rapid   development   of   agriculture   in   Katcha   areas   is   not   well  
monitored  and  recorded.  The  long-­‐term  institutional  arrangements  are  required  between  
the  Forest,  Agriculture,  Irrigation  and  Revenue  departments.          
§ The   maintenance   of   irrigation   network,   drainage   and   SCARP   tubewell   directly   influence  
the   fresh   water   availability   and   aquifer   management.   In   the   saline   groundwater   zone,  
raised   aquifer   levels   can   cause   both   salinity   and   water-­‐logging,   especially   in   case   of  
deferred  functioning  of  surface  drains  and  SCARP  wells.  See  Annexure  2  for  some  referring  
guidelines  to  manage  the  salinity  and  water-­‐logging.  
§ Water   quality   of   the   water   bodies   and   rivers   may   have   higher   link   with  
wastewater/sewage  management  in  the  post  disaster  scenario.  
 
 

5. The  Early  Recovery  Framework    

 

This   section   is   divided   into   three   parts,   the   first   part   list-­‐out   a   generic   list   of   activities   in  
agriculture   sub-­‐sectors   corresponding   to   three   general   aims   of   the   early   recovery.   These  

18  

 
  

activities   include   the   planning   process,   risk   reduction   measures   and   cross   cutting  
areas.  The  second  section  presents  interventions  carried  out  during  Rabi  2010-­‐11  .  
The   3rd   section   briefly   describes   the   guiding   principles   to   select   and   prioritize   the  
interventions.      

5.1  Aims  of  Early  Recovery  in  the  Agriculture  Sector

 

1. Provide  emergency  assistance  to  restore  normalcy  in  agriculture  sector  by  bringing  back  
flood-­‐affected   people   to   the   crop   and   livestock   systems,   while   ensuring   their   self-­‐
reliance.  

To   plan   accurately   is   the   first   task   for   effective   emergency   assistance.   The   need   assessment   in  
agro-­‐livestock   sectors   have   three   distinct   features;   mapping   of   reliable   base   line   for    
agriculture   and   support   sub-­‐sectors,   assessment   of   the   damages   and   recovery   needs,   and  
identification   of   the   vulnerability   parameters   for   the   affected   communities.   After   a  
widespread  disaster,  crop  inputs  and  livestock  protection  become  the  early  demands  linked  to  
the   onset   of   a   cropping   season.   The   rehabilitation   of   the   farm   land   and   infrastructure   is   a  
prerequisite  to  start  cultivation  in  heavily  damaged  areas.  The  horticulture,  small  local  systems  
support  livelihood,  which  could  be  more  vulnerable.    

2. Support   local   recovery   initiatives   by   building   capacities   and   identifying   measures   for   the  
risk  reduction  
 
Restoring   the   institutional   capacities   of   local   governments   will   enable   them   to   become   rapidly  
operational   within   the   context   of   appropriate   institutional   policies   and   legal   frameworks.   In  
order   to   effectively   manage   the   recovery   process,   it   is   essential   to   empower   communities,  
restore   the   capacities   of   Local   and   National   authorities   and   determine   the   root   causes   and  
vulnerabilities   that   make   societies   disaster-­‐prone.   External   support   should   build   on   the  
existing  capacities,  knowledge  and  strengths,  and  fill  gaps  where  needed.      

 
3. Support   the   stakeholders   in   building   foundations   of   long-­‐term   recovery   and  
rehabilitation  in  line  with  the  long-­‐term  development  agenda.  
 
In   order   to   plan   Early   Recovery   Interventions,   which   take   into   consider   different   needs,  
resources   and   vulnerabilities   of   women   and   men,   area   specific   assessments   should   be  
conducted   at   the   early   stages   of   the   Early   Recovery   phase.   The   assessment   will   also   help   to  
identify   National   and   Local   stakeholders   that   should   take   part   in   the   planning   and  
programming   initiatives   and   that   can   lead   the   development   of   early   recovery   policies.  
Coordination   mechanisms   in   an   Early   Recovery   situation   should   cast   on   the   local   authorities  
and   should   take   into   account   different   self-­‐established   and   non-­‐governmental   community  
institutions.    

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5.2.  Summarizing  Agriculture  and  Livelihood  Support  Interventions    

 

The   following   section   groups   the   response   activities   and   interventions   to   be   carried   out   in   the  
relief,  early  recovery  and  transitional  phases.    

Assessment  of  needs  and  mid-­‐course  gaps  

§ Preliminary  assessment  of  the  agriculture  damages  and  assistance  needs  

§ Refine  situation  analyses  and  response  plans,  with  a  gender  perspective  and  a  special  
focus  on  vulnerable  groups  such  as  orphans  and  the  elderly.  
§ Help  local  partners  to  carry  out  areas-­‐specific  need  assessment  surveys  
§ Focused  livelihood  survey.  
 

Crop  Supports  

Major  Rabi  Activities  

§ Distribute   critical   agricultural   inputs,   including   seeds   and   fertilizers   inputs   for   the  
major   Rabi   crops;   wheat,   vegetables   and   fodder,   and   small   agricultural   tools   The  
selection   criteria   for   the   package   consider   certification   of   seeds   and   quality   of  
fertilizers.      
§ Technical  support  during  the  cultivation  season.  
§ Protect  and  restore  livestock  productivity  of  surviving  animals  through  the  provision  of  
animal  feed,  medication,  and  shelter.  
§ Provide   vegetable   seeds,   particularly   focusing   on   women   and   female   heads   of  
households,  to  support  immediate  resumption  of  kitchen  gardening  activities  in  order  
to  respond  to  immediate  food  security  requirements.    
§ Provide,   oilseeds   package   and   technical   capacities   through   traininfs   to   the   areas,   have  
missed  Rabi  crops.    
§ Support  small/family  scale  vegetables  cultivation  with  initiatives  like  kitchen  gardening  
§ Support   livelihood   revival   and   local   markets   by   introducing   especial   initiatives   like  
food  or  cash  for  work    
     
Kharif  Activities  

Provide   crop   inputs,   seeds   and   fertilizers   for   cotton,   vegetables   and   fodder   to   the  
§
small  and  vulnerable  farmers.  
§ Support  small/family  scale  vegetables  cultivation  with  initiatives  like  kitchen  gardening  
§ Design  special  initiatives  for  the  cash  and    food  for  work  programs    
Livestock  Support  

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§ Provision  of  life  saving  supplementary  feed/fodder,  

§ Transitional  and  emergency  animal  shelters  
§ Veterinary  care  
§ Public  awareness  campaigns  
§ Restocking  of  small  ruminants  and  poultry  
§ Support  revival  of  the  fish  farms  and  hatcheries    
 
Agriculture  lands  and  infrastructure  

§ Support  clearance  and  de-­‐silting  of  the  critical  on  farm  irrigation  infrastructures    
§ Repair   on-­‐farm   infrastructure   -­‐   water   courses,   tube   wells,   water   harvesting   structures,  
drainage  structure  
§ Land  rehabilitation/preparation  

Capacity  Building  and  Institutional  

§ Support   to   farmer’s   associations,  water  management   groups,  producer’s  groups,  women  
groups  
§ Strengthening   resilience   and   preparedness   of   farming   community   to   flood   and   natural  
disasters  by  putting  into  place  disaster  risk  reduction  measures.  
§ Support  improved  market  information  to  small  and  medium  scale  producers.  
§ Help   improving   agricultural   support   services   including   farmer   field   schools   and   training  
bodies.  
§ Support  rural  financial  services.    
§ Emphasize  regulatory  frameworks  for  agriculture  development  in  flood-­‐prone  and  riverine  
areas.    
 

5.3.Guiding  Principles  for  Early  Recovery  

 
The   Early   Recovery   Framework   is   guided   by   a   set   of   basic   principles   working   towards  
equitable,  inclusive  and  sustainable  human  development.  These  principles  are  embedded  in  a  
rights-­‐based   approach   that   embraces   non-­‐discrimination.   In   addition,   all   recovery  
interventions   will   reflect   the   articulated   priorities   and   needs   of   the   affected   communities  
through   existing   and   innovative   forms   of   participation.   The   guiding   principles   should   be  
applied   during   the   planning   and   implementation   of   early   recovery   interventions   in   flooded  
affected  areas.    

5.3.1. Plan  interventions  on  a  thorough  understanding  of  the  context    

As  a  first  step  in  formulating  the  Early  Recovery  Framework,  all  relevant  stakeholders  should  
undertake   assessments   of   early   recovery   needs   in   affected   areas.   Objectives   of   the   early  
recovery   needs   assessment   should   be   to   assess   key   needs,   resources   and   vulnerabilities   of  
women,   men,   and   other   vulnerable   groups   (Children,   youth,   elderly   and   disabled).     It   must  
identify   targeted   interventions   to   address   these   vulnerabilities   over   the   next   12   months;  
anticipate   spontaneous   early   recovery   needs   of   the   affected   communities;   and   identify   key  
program   areas   to   facilitate   early   recovery   and   transition   from   relief   in   different   geographic  

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locations.   It   is   essential   that   recovery   strategies   and   programs   adopt   appropriate  

mechanisms  to  immediately  contain  and  address  these  emerging  risks  while  at  the  
same  time  addressing  the  longer-­‐term  needs.  
 
Assessments   rely   on   a   combination   of   primary   and   secondary   information.     Analysis   of  
secondary   information   is   important,   particularly   from   information   sources   including  
development  actors  working  in  the  affected  areas  prior  to  the  floods;  assessment  reports  from  
humanitarian   organizations   and   national   authorities;   and   semi-­‐structured   interviews   with   all  
relevant   stakeholders.   A   comprehensive   understanding   of   the   socio-­‐economic   and   cultural  
conditions   of   the   affected   areas   prior   to   the   floods   is   essential   in   determining   viable   and  
enduring  options  for  early  recovery  interventions.  
 
For   primary   information   collection   assessment   teams   specialized   in   livelihoods,   agriculture,  
should  conduct  the  interviews,  including  semi-­‐structured  interviews  with  affected  populations,  
local   government   officials,   NGO   representatives   and   members   of   community   organizations.  
Assessments   should   use   standardized   sets   of   sector-­‐specific   questions   that   guide   the   data  
collection   process.     Assessments   reports   developed   per   sector   should   follow   a   format   to  
facilitate  a  comparative  analysis  of  results  across  districts  and/or  regions  and  the  development  
of  a  comprehensive  early  recovery  framework.    
 
Finally,   assessments   can   assess   the   use   of   natural   resources   by   local   populations   as   coping  
mechanisms   in   post-­‐crisis   situations   to   supplement   normal   forms   of   income,   and   be   used   to  
recommend   measures   for   sustainable   management   of   resources,   for   reduced   reliance   on  
natural  resources  for  income  and  for  rehabilitating  impacted  areas.
 

5.3.2. Participation  and  Ownership  

     
Agriculture  activities  in  early  recovery  should  have  the  participation  and  ownership  of  a  wide  
group   of   stakeholders   particularly   all   levels   of   government,   the   international   humanitarian  
community,   civil   society   and   the   beneficiary   communities.   Consultation   with   stakeholders  
should   be   intrinsic   from   assessments   to   program   implementation   to   monitoring   and  
evaluation.   Coordination   structures   should   be   as   much   as   possible   area   based   to   reflect  
stakeholders   participation   in   early   recovery   activities   and   the   geographical,   social,   economic  
peculiarities  of  each  province.  
 
Information   exchange   among   stakeholders   involved   in   implementation   of   early   recovery  
programs   and   existing   coordination   mechanisms   established   during   the   emergency   phase  
must   be   maintained   and   enhanced   during   the   recovery   process.   Strong   coordination   within  
the   agriculture   sector   and   in   the   agriculture   cluster   in   particular,   should   constitute   a  
permanent   dialogue   and   consensus   building   mechanism   with   government   agencies   (NDMA  
and   MINFAL),   civil   society   organizations,   nongovernmental   actors,   donor   and   other   lending  
institutions.   An   organizational   development   capacity   approach   will   be   adopted   for  
restoring/developing   strong   partnerships   between   the   affected   communities,   community  
based   organizations   (CBOs)/NGOs,   private   sector   and   government   institutions   in   all   aspects   of  
farm  household  restoration.    
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An   action-­‐oriented   integrated   participatory   approach   needs   to   be   adopted   for   the  
restoration   of   agricultural   lands   and   infrastructure,   the   repair   of   fish   farms   and  
hatcheries  and  reviving  on-­‐farm  and  fisher  livelihoods,  and  the  restoration  of  forestlands  and  
stabilization   of   landslide   prone   areas.     Experience   has   shown   that   gender   analysis   can   help  
planners  and  policy  makers  improve  the  performance  of  their  endeavors.  
 

5.3.3. National  Agriculture  Policy  and  Strategy  

 
Early  recovery  efforts  in  agriculture  should  lay  the  foundation  for  the  medium  and  longer  term  
strategies  for  crops,  livestock,  irrigation  and  infrastructure,  forestry  and  fisheries  that  are  in-­‐
line  with  the  National  Agriculture  Policy  (NAP).  The  Ministry  of  Food,  Agriculture  And  Livestock  
(MINFAL)   sets   out   four   main   focus   areas   in   NAP   that   include   food   security,   enhanced  
productivity  of  the  crops  and  livestock  sectors,  profitable  farming  and  improved  marketing  of  
the   agricultural   produce.   The   policy   targets   to   keep   agriculture   growth   rate   higher   than   the  
population  growth  rate.  During  the  last  two  decades  livestock  and  fisheries  have  emerged  as  
big  sub-­‐sectors.    
The  Medium  Term  Development  Framework  of  the  Planning  Commission  proposes  several  key  
strategies   including   introduction   of   new   high   yielding   varieties,   new   techniques   to   enhance  
productivity,   high   export   varieties   including   oilseeds,   horticulture   and   tea,   better   on-­‐farm  
practices   and   increased   water   use   efficiency   through   land   leveling,   watercourse   lining,   and  
promotion  of  modern  irrigation  systems.    The  crop  sector  is  sensitive  to  the  global  and  local  
markets.  The  support  price  mechanism  is  effective,  as  shown  by  an  increase  in  wheat  area  and  
production  after  an  increase  in  support  price  in  2009.  
 

5.3.4. Social  Equity  Principle  to  address  Vulnerable  Population  

 

The  early  recovery  process  faces  a  major  challenge  of  providing  equitable  support  services  to  
the   households   having   inequitable   resource   base.   The   concept   of   social   equity   in   public  
services   was   introduced   by   H.   George   Frederickson   in   1968,   basically   to   surpass   the  
inequitable  ownership  of  the  resources.  While  possession  of  natural  and  economic  resources  
is   unequal   in   all   societies,   the   access   to   livelihood,   education   and   other   services   is   highly  
unequal   in   rural   Pakistan   like   other   third   world.   The   post   flood   recovery   of   agriculture   and  
livestock  requires  providing  fair,  just  and  equitable  provision  of  services  to  those  having  small  
or  no  direct  possessions.    

Within   agriculture   community,   flood   affected   farmers   are   predominantly   tenants   (land   less  
sharecroppers  or  farm  labor)  followed  by  small  land  owners,  while  the  highest  percentage  of  
the   land   is   owned   by   a   small   percent   of   big   land   holders.   The   women   and   children   form   a  

23  

 
  

group   more   vulnerable   during   and   after   disaster,   because   of   their   lack   of   mobility  
and   limited   involvement   in   production   and   economic   processes.   The   vulnerability  
criteria   ensure   an   access   to   the   marginal   rural   communities   and   households.   In  
addition   to   the   mainstream   agriculture,   livestock,   and   horticulture,   women   focused   and  
community  oriented  projects  are  important.  The  disaggregated  data  collection  and  differential  
monitoring  and  evaluation  should  be  integrated  into  proper  M&E  procedures.  

5.3.5. Rebuild  Peoples’  Livelihoods  

 
Before   the   floods,   the   agriculture   and   livestock   sectors   were   and   continue   to   be   the   backbone  
of  national  economy  and  the  rural  social  structure.  The  sector  supports  about  40%  of  the  work  
force,   provides   24%   of   the   national   GDP   and   have   critical   role   in   livelihoods   and   food   security.  
‘Livelihoods’   refers   to   the   capabilities,   assets,   activities,   and   strategies   required   and   pursued  
by  households  and  individuals  for  a  means  of  living.  The  livelihood  assets  (financial,  physical,  
social,  human,  and  natural)  not  only  include  those  owned  or  controlled  directly  by  households  
or   individuals,   but   include   publically   owned   assets   and   more   intangible   assets   related   to   social  
and  cultural  relations.      
 
A   livelihood   is   sustainable   when   it   can   cope   with,   and   recover   from,   stresses   and   shocks.     This  
entails  the  ability  of  affected  population  to  quickly  re-­‐engage  in  economic  activities  (maintain  
and   enhance   its   capabilities   and   assets),   while   not   undermining   the   natural   resource   base.  
Livelihoods   programming   should   be   designed   and   implemented   following   an   analysis   of   the  
link   between   power   and   vulnerability   and   the   relationship   between   the   economy   and  
livelihoods  in  order  to  understand  and  simultaneously  address  both  the  short  and  long  term  
dimensions   of   the   crisis,   as   well   as   the   immediate   and   underlying   causes   and   structural  
deficiencies.      
 
A  consultative  approach  is  required  to  involve  to  help  improve  and  diversify  livelihoods.  In  this  
prospect   programs   should   not   focus   only   on   agriculture   but   also   to   stimulate   economic  
recovery  and  development  to  create  an  enabling  environment  for  investment  that  will  result  
in  equitable  dividends  (market  led  approach).  
 

5.3.6. Disaster  Risk  Management  and  Reduction  

 

The   level   of   risk   during   a   disaster   and   its   management   has   physical,   institutional,   and  
environmental   properties.   These   characteristics   evolve   during   pre-­‐flood   developments,  
response  to  the  floods  and  post  flood  behavior  of  the  hard  and  soft  systems.        

The   Risk   Management   during   and   after   a   disaster   is   closely   linked   with   capacities   and  
preparedness  of  the  institutions,  communities  and  physical  systems.  The  acquired  resilience  of  
a   system   or   sector   depends   upon   many   factors   including   good   knowledge   of   the   disaster  
24  

 
  

impacts   and   management   skills   of   the   institutions.   To   control   and   minimize   the  
disaster   impacts,   effective   response   and   recovery   is   the   central,   which   to   a   large  
extent   depends   upon   the   national   capacity   to   plan   and   to   guide   the   recovery  
process.  The  quantification  of  risks  includes  two  important  components,  quantification  of  the  
vulnerabilities   and   the   gap   analysis.   Actions   in   the   agriculture   sector   can   be   divided   into   three  
groups,  as  listed  in  Annexure  3.      

In   the   shorter   term,   practices   to   maximize   use   of   natural   resources/assets   such   as   reduce  
water   wasteage   (i.e.   use   of   run-­‐off   in   small   scale   vegetable   gardening),   improved   irrigation  
methods   that   minimize   evaporation   and   building/rehabilitation   of   water   harvesting   structures  
in   rain   fed   areas   are   just   a   few   examples.   In   the   medium   term,   available   information   (i.e.  
advanced   satellite   imagery,   measurement   of   rainfall,   changing   meteorological   maps)   should  
be  used  to  provide  farmers  with  coping  mechanisms  for  droughts,  floods  and  other  inevitable  
natural  disasters  and  phenomena.  The  introduction  of  cropping  methods  that  are  resistant  to  
diseases,   pests   and   droughts,   as   well   as   crop   varieties   with   shorter   cycles   of   maturation,   are   a  
few  ways  to  help  farmers  to  weather  climate  change.

     

5.3.7. Monitoring,  Accountability  and  Transparency    

 
A   monitoring   system   should   ensure   effective   multi-­‐stakeholder   monitoring   of   activities  
supported   under   the   Early   Recovery   framework.   It   will   also   foster   accountability   and  
transparency   in   the   use   of   financial   resources.   Due   to   the   nature   of   early   recovery   it   is  
recommended  to  monitor  both  activities  and  results.    
 
Monitoring   activities   will   include   on-­‐site   surveillance,   regular   reporting,   and   financial  
expenditure   tracking.   The   monitoring   of   field   responses   from   the   beginning   is   important   to  
identify  corrective  measures  and  improve  original  planning.  Evaluation  of  the  recovery  pattern  
of   different   sub-­‐sectors   of   the   rural   economy   is   important   to   plan   long   term   actions.  
Monitoring  of  results  refers  to  the  monitoring  of  outcome  and  priorities,  which  may  need  to  
develop  additional  outcome  indicators.    
 
The   progress   reporting   as   a   part   of   agriculture   cluster   will   be   based   on   the   Single   Reporting  
Format     (SRF).   The   SRF   is   launched   as   the   main   tool   to   monitor   the   progress   or   issues  
concerning;   project   budgets   and   expenditures,   partners,   project   locations,   beneficiaries,  
activity   types   and   key   performance   indicators.   The   monitoring   mechanism   has   been   with  
consideration   to   the   indicators   included   in   the  Appeal   by   a   specialized   agency   IMMAP   and   the  
support  of  the  Agriculture  Cluster.    
 

5.3.8. Cross  Cutting  Issues  

Gender  is  recognized  as  an  important  cross-­‐cutting  issue  within  agricultural  livelihoods.  Issues  
such   as   land   ownership/access,   available   assets,   ability   to   have   credit,   general   mobility   are  
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some   of   the   key   considerations   that   need   to   be   addressed   within   livelihoods  

programming.   Gender   programming   in   agricultural   livelihoods   is   important   in   the  
context  of  access  to  inputs,  land,  water,  information/techniques,  markets,  credit  and  
technology.   Gender   disaggregated   data   provides   insight   to   livelihoods   to   address   the   needs   of  
vulnerable   populations.   The   vulnerability   criteria   in   the   response   plan   are   made   gender  
sensitive.   However,   planning   of   livelihood   activities   need   to   analyze   gender   issues   in   more  
details.  

Environment:   The   vast   agriculture   areas   of   Pakistan   face   multiple   environmental   challenges,  
from   the   old   issues   of   water   and   land   quality   to   the   emerging   challenge   of   Climate   Change.  
Current  super  floods  just  eight  years  after  a  prolonged  draught  of  two  years,  are  an  example  
of   increased   frequency   of   extreme   events.   In   both   cases   agriculture   has   been   the   major  
sufferer.  Current  glacier  melt  and  monsoon  patterns  indicate  higher  probability  of  erratic  and  
intensive  rains,  late  monsoons,  dry  winters,  and  prolonged  dry  spells  are  expected.    

The   environmental   sustainability   of   water   bodies   is   threatened   on   multiple   accounts,   some  

fragile   ecosystems   like   mangroves   are   already   at   stake,   endangering   livelihood   of   the   local  
communities   and   resilience   of   the   water   bodies.   The   deteriorating   groundwater   quality  
directly   influences   coping   potential   of   the   agriculture   systems   and   freshwater   access   to   the  
communities.  A  substantial  flood  affected  agriculture  areas  lie  in  saline  groundwater  zone,    

 
 

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ANNEXES    
Annex  1:   References  for  Minimum  Standards  in  Agriculture    
 
Major  Crops  
• Wheat  and  Rice  Advisory  Boards.    
• Standing  Committees  of  Agricultural  Prices  Commission  on  various  crops.  
• Governing  Board  of  Pakistan  Agricultural  Research  Council.  
• Governing  Body/Standing  Committees  of  Pakistan  Central  Cotton  Committee.  
• Board  of  Directors  of  Pakistan  Cotton  Standard  Institute.  
• National  Seed  Council.  
 
Fertilizers  and  Pesticides  
Agricultural   Pesticides   Ordinance   (APO)   was   promulgated   in   1971.   A   registration   policy   was  
introduced  in  1992.  
The  Government  has  enforced  following  laws  to  regulate  the  quality  of  the  agriculture  items:  
• Pakistan  Animal  Quarantine  (Import  and  Export  of  Animal  Products)  Act,  
• 1985.  
• Pakistan  Plant  Quarantine  Act,  1976.  
• Pakistan  Fish  Inspection  and  Quality  Control  Act,  1988.  
• Seed  Act,  1976.  
• Pakistan  Standards  and  Quality  Control  Authority  Act  1994.  
• Agricultural  Produce  (grading  and  marking)  Act,  1937.  
• Pakistan  Pure  Food  Laws  1960.  (Provincial)  
 
 
 

 Annex  2:   Strategy  for  the  Control  of  Water  Logging  

 
Some  salient  steps  to  manage  and  control  the  water  logging  and  salinity.  
• Encouraging  the  installation  of  small,  shallow  tubewells  to  pump  groundwater  wherever  it  
is  useful  for  irrigation.  
 
• Effective  control  of  irrigation  in  the  permeable  soil  areas,  controlling  cultivation  of  rice  and  
sugarcane  wherever  it  is  already  not  allowed.  
 
• Improvement   and   extension   of   the   drainage   system   wherever   required   (preferably   with  
open  ditches)  in  the  waterlogged  areas.  The  bed  and  furrow  (an  approximate  depth  of  1  to  
1.5  meters)  cotton  growing  areas  has  been  helpful  in  the  field  drainage.      

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• Guiding   farmers   to   adjust   field   size   and   irrigation   timings   according   to   the  
physical   properties   of   the   soil:   a   smaller   field   size   for   relatively   sandy   or   more  
permeable   soils   and   larger   fields   for   clayey   or   less   permeable   soils;   short   watering   periods  
to  check  flooding  in  the  more  permeable  soils.  
 
• Temporarily   embanking   and   slightly   lowering   the   level   of   small   saline   patches   within  
cultivated   fields   would   effectively   leach   their   excess   salts;   for   the   reclamation   of   slick  
spots,   gypsum   would   have   to   be   used   (1-­‐1.5   kilograms   per   square   meter   of   the   affected  
area)  alongside  the  above  practice.  
 
Use  of  Saline  Groundwater  (Tubewell)  in  Irrigated  Areas  
• Testing  of  quality  of  groundwater  used  for  irrigation:  The  maximum  permissible  Electrical  
Conductivity  (EC)/salt  concentration,  Sodium  Absorption  Ratio  (SAR)  and  Residual  Sodium  
Carbonate   (RSC)   values   of   irrigation   water   for   different   kinds   of   soils   have   been  
standardized   by   WAPDA   and   PARC.   However,   new   standards   are   required   by   keeping   in  
view  extended  uses  by  the  saline  groundwater.      
• Disposal   of   poor   quality   groundwater   pumped   by   tubewells   through   drainage   ditches   or  
canals  and  distributaries,  instead  of  use  for  irrigation,  locally.  This  water  may  be  used  for  
the  irrigation  of  sandy  soils  and  for  growing  a  few  salt  tolerant  crops.  
 
• Amelioration   of   soils   affected   by   poor   quality   water   through   the   application   of   gypsum   (2-­‐
3   tones   per   ha)   since   most   of   these   soils   are   afflicted   only   by   sodicity.   Popularizing   the  
continuous   use   of   gypsum   on   soils   already   affected   by   poor   quality   water   or   where  
irrigation  with  poor  quality  water  is  unavoidable.  
 

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Annex  3:   Disaster  Risk  Management    

 
1. Assessment  of  Risks    
§ Identify  key  risks:  physical  and  social  economic,  like  hydro-­‐meteorological  (flood  and  
draughts)  events,  food  insecurity  profile,  social  and  legal  insecurity.    
§ Identify  key  DR  indicators  and  areas,  like  frequent  flood  prone  areas,  low  lying  areas  
having  drainage  problems,  socially  vulnerable  areas.  
§ Hazard   mapping   at   different   levels   using   an   appropriate   set   of   technical   and   socio-­‐
economic  indicators,  national,  provincial  and  below.  
 
2. Preparedness  and  Warning:    
• The  preparedness  has  to  take  care  of  not  only  potential  risks  but,  also  the  resilience  
level  and  available  cushions  of  the  system.  The  enhancement  of  capacities  and    
§ Sharing  DR  data  with  stakeholders.  
§ Technical   safeguards   and   standard   criteria   in   recovery   process,   for   example   avoiding  
farm  structure  and  check-­‐dams  within  high  flood-­‐risk  area.  
§ Promoting  programs  of  contingency  crop  planning;  like  crops  having  low  financial  risks  
and  shorter  duration,  crop  diversification.  
§ Trainings  and  institutional  settings  from  National  to  the  Village  level.  
 
3. DRR  measures  during  Response  and  Early  Recovery  
• Providing  certified  seeds,  fertilizers  and  pesticides      
• Improve  agriculture  services.  
• Follow   design   and   resource   use   criteria   developed   by   the   NDMA   or   line   agencies   (exp.  
constructions  inside  flood  plains  or  Katcha  areas.    
• Develop  and  implement  flood  resilient  structure  for  food  and  feed  stocks.        
• Supplementary  income  generation  from  off-­‐farm  and  non-­‐farm  activities.  
• Revival   of   ecological   sites   and   water   bodies.   There   is   a   scope   to   do   better   in   case   of  
some  water  bodies.  
 
 
 
 
 
 

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