Pakistan
Ex-post monitoring for ODA loan project“Metropolitan Water Supply Project (Kanpur Water Supply Project Phase I)”
Evaluator: Momota Kenji (I.C. Net Ltd.)
Field Survey: July 2008
1. Outline of the Project and Japan’s ODA Loan

China

Turkmenistan

Islamabad

Peshawar

Afghanistan
Project site
QuettaMultanIranPakistan

India

Location of the project

Kanpur Water Purification Plant

1.1 Purpose of the Project
The purpose of this project is to meet an increasing demand for water in the Islamabad
metropolitan area including Rawalpindi and villages in its neighborhood by developing andimproving a water purification plant and water supply facility which depends on the Kanpur
Dam as the source of water, thereby contributing to urban development.
1.2 Outline of the Loan Agreement（Refer to “Comparison between major plans and performance” on page 12 about the scope of
the project.）
Loan Amount/Disbursed Amount

12,518 million yen / 12,442 million yen

Date of Loan Agreement /March 1989

Final Disbursement Data

October 2000

Ex-post Evaluation

Fiscal 2002

Executing Agency

Capital Development Authority (CDA)

Main Contractor

Taisei Construction Corporation (Japan), Mitsubishi
Corporation (Japan) (JV)/Taisei Construction
Corporation (Japan), etc.

Consulting Services

NJS Company, Ltd. (Japan)

11.3 Background and reasons for conducting ex-post monitoring survey
According to the ex-post evaluation carried out in fiscal 2002, the effect of the project was
not necessarily high.

The reasons were several: the water storage of the Kanpur Dam which

was the source of water purification plant declined; the overall amount of daily water supply
was 41% of the plan; the amount of water supply to Islamabad was 73% of the plan; and theamount of water supply to Rawalpindi was 20~30% of the plan.

At the same time, theevaluation report pointed out various problems with the executing agency such as the scarcity of
personnel, underdeveloped institutions, and the shortage of active efforts, thus expressing
concern over the sustainability of the project.

Therefore, in order to reexamine the

manifestations of effects and the project’s sustainability after the ex-post evaluation, we carriedout this field survey.

We outline the survey, review the result per item and draw conclusions.

2. Findings of monitoring
2.1 Effectiveness (Effect)
Overview of the relevance
Although the necessity of the Kanpur purification plant to catch up with an increasing demand
for water remains high, due to the influences of lack of financial resources and underdeveloped
infrastructure, the amount of water supply still remains lower than the original plan1.

No

noticeable improvements have been made.
2.1.1 Amount of daily water supply
As described in Table 1, the amount of water supply2 marked 41% of the plan at the time of
ex-post evaluation.

In the original plan, it was designed to distribute one third of its capacity

to Islamabad, and the remaining two thirds to Rawalpindi.

However, water supply to

Rawalpindi marked only 20~30% of the plan.
The current amount of water supply (in 2008) slightly improved to 47% of the plan (55% forIslamabad and 43% for Rawalpindi), though, it has still not reached 50% of the plan.
Compared to the figure in the ex-post evaluation, water supply to Rawalpindi has improved
slightly, whereas that to Islamabad has declined.
According to an interview with WAPDA3 which is responsible for the management of the1

The effectiveness is evaluated based on the following criteria: 80% of the plan is “high;” 50% or more and below
80% of the plan is “moderate,” and less than 50% of the plan is “low.” (For details, refer to the Ex-post Evaluation
Report on completed ODA Loan Projects 2007 (p 22))2
The executing agency of this project is the Capital Development Authority (CDA), which is responsible forsupplying water to Islamabad. Water supply to Rawalpindi is under the control of the two organizations,
Rawalpindi Water Sanitation Authority (WASA) and Rawalpindi Cantonment Board (RCB). For more details, referto the section, “2.3.1.1 Operation and maintenance system.”
3
Water and Power Development Authority

2

dam, compared to the ex-post evaluation (2002), the water storage capacity of the Kanpur Damand precipitation in its neighborhoods are stable enough to supply water at its designed capacity.
Table 2 supports this view, whereby it is confirmed that there are no problems in terms of thephysical capacity of the Kanpur Dam and its water source.
The following are presumably the reasons that the water supply is lower than the plan
despite the fact that a sufficient amount of water is stored.
(1) For Islamabad: Underdeveloped infrastructure for water distribution and a problem with the
distribution cost

1) Originally it was planned that the Kanpur Dam would supply water to nine districts4 inIslamabad.

However, subsequent development of water conveyance/distribution

infrastructure (mainly water conveyance/distribution pipe networks) has been slow, andonly five districts out of the nine districts are installed with the infrastructure.

4

Islamabad consists of districts, each of which has an area of approximately 2km2. Each district is equipped withliving infrastructure such as commercial facilities and mosque. The districts to which the Kanpur Dam supplies water
are five (G-10, G-11, F-10, F-11 and E-10).

3

Table 1: Change in the amount of daily water supply(In m3 per day)At the time of ex-post evaluation (November 2002)
Agency in thetarget area

Plan

Actual figure
2000
2001
2002

For Islamabad
CDA
75,075 27,300 36,400 54,600
For Rawalpindi
RCB
89,635
18,200 27,300
WASA
67,34013,650Total 232,050 27,300 54,600 95,550(Source) CDA/RCB/WASA
At the time of ex-post monitoring (July 2008)
Actual
2004
2005
2006
2007
2008
For Islamabad
CDA
75,075 41,000 41,000 41,000 41,000 41,000 41,000
For Rawalpindi
RCB
89,635 31,822 31,822 36,368 36,368 38,641 40,914
WASA 67,340 27,276 27,276 27,276 27,276 27,276 27,276
Total 232,050 100,098 100,098 104,644 104,644 106,917 109,190(Source) CDA/RCB/WASA
Plan

2003

Table 2: Amount of water storage of the Kanpur Dam/Change in rainfall
2002
2003
2004
2005
2006
2007
2008
Mean monthly
6,298 18,801
9,483 24,464 11,566 20,329 12,189
flow rate(acre-ft)
Design
1,982
1,982
1,982
1,982
1,982
1,982
1,982
maximum waterlevel (ft)Maximum water
n.a
1,965
1,940
1,964
1,943
1,976
n.a
level (ft)Minimum water
n.a
1,956
1,934
1,956
1,935
1,970
n.a
level (ft)Average
637
1,054
1,093
1,042
977
1,307
472
precipitation(mm)(Source) WAPDA / (Note) The data of 2008 are for six months till June.

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Figure 1: Kanpur Dam at present

Figure 2: Water gate of the Kanpur Dam

2) The following table is a list of major sources of water under the control of CDA that is
responsible for water supply to Islamabad.
approximately 13% of the total supply.

The Kanpur Dam accounts for only

On the other hand, the availability of the Simly5

Dam , the major source of water of Islamabad sustains a high rate of 80%.
behind these gaps is the cost of water distribution.

The reason

According to CDA officer, the water

distribution from the Kanpur Dam costs more than double the cost that from the Simly Dam.
Hence, in principle, CDA gives priority to using the more economical Simly Dam.
Table 3: Major sources water of Islamabad and amount of water supply(In m3)
Source of water
Simly Dam
Kampur Dam
Other sources
Total(Source) CDA

Supply capacity

190,932
75,009188,659454,600

Actual amount

150,018
40,914125,470
316,402

Design ratio

79%
55%
67%
70%

The reason for the difference in the water distribution costs between the two said dams
largely derives from geographic conditions.

The Kanpur Dam needs to use pumps to send

water inducing the electric power cost, whereas the Simly Dam can send its water by gravity.
(2) For Rawalpindi (area under the jurisdiction of WASA): Unpaid water charges andinsufficient inter-organizational coordination
The WASA purchases water from CDA which is in charge of the management of Kanpur
purification plant.

In order to meet an increasing demand for water in Rawalpindi and reduce

5 It is the source of water located in the eastern part of Islamabad.

project (Metropolitan Water Supply Project).

5

It was constructed under the Japan’s ODA loan

the use of water from high-cost tubewells6, WASA has repeatedly requested CDA to increase theamount of water supply. However, CDA claims that WASA has a delinquent account andexpresses a view that it will not increase its water supply as long as the problem remains
unsolved.

This problem also lies behind a low level of water supply.7 (Therefore, WASA iscompelled to use tubewells to cover the demand. Since groundwater costs more than surface
water, WASA expresses its urgent need for water supply from CDA.)
On the other hand, the person in charge at CDA has left the official requests from WASA
unanswered for several months.

Such lack of inter-organizational communication andcoordination is also in the background.8(3) For Rawalpindi (area under the jurisdiction of RCB): Underdeveloped water
conveyance/distribution infrastructure
The area which is under the jurisdiction of the Rawalpindi Cantonment Board (RCB) also
suffers from a lack of capacity to meet its demand. The person in charge at RCB attributed thecause to be inadequate development of water conveyance / distribution infrastructure by RCB.
Since 2001, RCB has been implementing the projects to develop water conveyance anddistribution infrastructure premised upon the use of the Kanpur Dam and completed the phase II.
So far, two thirds of the area has been covered by the necessary infrastructure.
Currently, RCB has submitted a request for the water distribution project phase III for the
Kanpur Dam.

It plans to expand the capacity of the reservoir and enlarge the water

distribution and drainage networks.

When this project is completed, it is anticipated that the

supply capacity will be secured to satisfy fully the demand for water.
supplied by CDA to RCB comes via WASA.

However, the water

Hence, it is assumed that the problem mentionedin (2) between WASA and CDA will also affect the water supply in the areas under thejurisdiction of RCB as well.

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Tubewell: An iron tube with a diameter of 10~20cm is driven into the ground to reach the underground water table.
The groundwater is pumped up with electric or diesel pumps, thereby costing comparatively higher than surface water.
WASA has 260 tubewells, costing WASA 240 million rupees (equivalent to about 400 million yen) per month. A
WASA person claims that the cost is threefold in comparison with the use of surface water.
7
On the other hand, WAPDA that is responsible for the Kanpur Dam states that about 50% of water charges from
CDA remain unpaid. We do not know its direct relationship with the WASA’s delinquent account, but this may be
one of the reasons for CDA’s financial problems.
8
During our field survey we organized a meeting to discuss this matter among the relevant organizations. In themeeting they had discussions to share and recognize the present problem. We urged them to make an opportunity tohave discussions regularly and strengthen the coordinating function.

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2.1.2 Available hours of water per day
Table 4 below shows the available hours of water per day, both at the time of ex-post
evaluation and at present (2008). A huge discrepancy between users’ perception and planned
figure by the executing agency was found. Although a certain improvement was made in some
RCB-controlled districts, as confirmed by the increase of available hours from 62 minutes to 96
minutes.

However, the figures obtained at the time of ex-post evaluation were not clearly

defined and there was a possibility that they were based on the executing agency’s policy.
Therefore, we must be cautious to make a simple comparison between the hours of water
service at present and that at the time of ex-post evaluation.
Table 4: Comparison of the hours of daily water supply
Ex-postHours of water supplied

Respondents of theevaluation

at present

beneficiary survey

Area

Jurisdiction

For Islamabad

CDA60-120 min.

Not known

66 min.

RCB32-45 min.9

540 min.

96 min.

WASA

240 min.

240 min.

134 min.

For Rawalpindi

Average98 min.

(Source) The responses of the executing agencies come from CDA, RCB and WASA. Others are
based on the results of the beneficiary survey.

The views of a local expert about this discrepancy, which implies that users’ perception
might be more accurate, are as follows.
・Due to the frequent load shedding because of the shortage of electricity in the metropolitanarea, the water pumps installed in each household are not in service for many hours.

This

10

may cause a discrepancy with the actual time of water supply.

・Stealing water by direct connection to distribution pipes might reduce the net amount of
distribution to end users .
2.1.3 Water quality
At the time of ex-post evaluation, tests were performed at the water purification plant andwater supply facilities.

Both the measurements passed the standards.

However, as a result of

the water quality tests, the ex-post evaluation report pointed out the problems of broken pipes
and possible water contamination by rainwater and wastewater at the end point of water supply
because water conveyance/distribution pipes were worn out.
9

It was also pointed out that the

The RCB figures are taken from its policy. It is reported that water is supplied actually for 62 minutes per day on
the average according to our interviews with users.
10 The findings of the beneficiary survey to be discussed below reveal that many residents point out the problem ofa short length of water service time, which endorse this view.

7inspection system was not adequate in that a water quality test is carried out only when residents
filed their complaints and, thus, the numbers of testing and maintenance/repair were not enough.
During this field survey, we confirmed that the tests at the water purification plant and thewater supply facilities detected no problems with water quality.

However, the beneficiary

survey conducted among water users reveals that a nearly half of its respondents are notsatisfied with the water quality.
points of water supply.

It can be thus deduced that pipes still have problems at the end

It will be necessary to carry out periodical tests rather thanrequest-basis tests in order to accurately grasp the condition of water quality at the end point of
the system.
2.1.4 Water supply service
In this field survey we carried out a beneficiary survey to compare the current state of watersupply service with that at the time of ex-post evaluation (in 2002).11

The features of thefindings are as follows.
For overall satisfaction, 44% of respondents reported “Unsatisfactory”, which slightly
outweighs those reporting “Satisfactory”(40%).

In a previous survey, a comparison was madebetween before and after the water supply service had been started. Although direct comparisonof these results might be difficult, still we can claim that level of satisfaction (40%) is not veryhigh.

In particular, the factors that caused reports of “Unsatisfactory” are: no improvement ofwater service since the time of ex-post evaluation, as confirmed by low water volume andpressure; and a shortage of supply forcing residents to buy water from private enterprises whichcauses additional expense, thereby reducing the level of satisfaction.

For instance, in some

districts of Islamabad, residents are forced to use a more expensive water service from water
wagons in order to supplement the shortage of water from the network service, and furthermore
the water charge was raised from 83 rupees at the time of ex-post evaluation to 130 rupees permonth on the average.

11

In the three districts that receive water supply service from the Kanpur Dam we selected 223 sample households
from the residents who have lived since the time of ex-post evaluation (five years ago) and visited each household tocollect comments.

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Agency

Table 5: Result of the beneficiary survey
Water pressure
Water volume

Degree of satisfaction

Improved

No change

Decreased

Improved

No change

Decreased

Satisfied

No change

Dissatisfied

9%
34%
34%
26%

63%
34%
35%
44%

28%
32%
31%
30%

11%
34%
35%
27%

62%
34%
33%
43%

27%
32%
32%
30%

26%
50%
43%
40%

15%
16%
17%
16%

59%
34%
40%
44%

CDA
RCB
WASA
Total
2.2 Impact

As pointed out at the time of ex-post evaluation, it was improvement that the area served
had been expanded through the development of Kanpur water purification plant.

However, atpresent the design ratio of daily water supply still remains around 50% due to the undeveloped
distribution infrastructure.

As a result, the project’s impacts such as its contribution to urban

development are not as sufficient as expected.
2.3 Sustainability
Outline of sustainability
There are no problems with the operation and maintenance of the Kanpur Dam and water
purification plant.

However, there are still some problems that may give an adverse effect onsustainability such as vague delineation of roles in operation and maintenance of other facilities
related to water supply, financial shortage, and silt in water distribution pipes.
2.3.1

Executing agency

2.3.1.1 Operation and maintenance system(1) Operation and maintenance system of the Kanpur Dam and water purification plant
CDA’s responsibilities are clearly defined in the operation and maintenance of the Kanpur
Dam and water purification plant, thereby causing no problems.

The CDA’s organization andsize of the staff have not changed much since the time of ex-post evaluation.

The number of

employees is 12,000, out of which 100 persons including 37 engineers (12 senior engineers and
25 technical workers) work for the Bulk Water management.
purification plant remains almost the same.

The personnel at the Kanpur

That is, 25 employees work at the plant.

CDA is responsible for water distribution from the purification plant to distribution
reservoirs for Islamabad and for Rawalpindi.

Responsibility to operate and maintain the water

distribution facilities from the distribution reservoir to the user rests with WASA, CDA or RCB
in the area under the jurisdiction of each organization.

WASA is in charge of the operation andmaintenance of major facilities such as the distribution reservoir for Rawalpindi, whereas RCB
is responsible only for water distribution to the area under its jurisdiction.

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(2) Problems in operation and maintenance of canals from the Kanpur Dam to the purification
plant12The maintenance of the left bank canal that sends water from the Kanpur Dam to thepurification plant falls under the responsibility of the provincial governments of Punjab andNorth West Frontier.

Currently, they are not actively taking measures to fulfill the function andleave the problem of silt13 as it is, which will be discussed later (in the section of 2.3.2
Maintenance Condition).
2.3.1.2 Technical capacity for operation and maintenanceDuring our field survey, we had interviews with CDA staff at the water purification plant
and the manager of the distribution reservoir of WASA through a local expert concerning major
operational procedures and techniques in equipment operation.
problems.

The results showed no

It is assessed that through five years’ experience in operation after the time of

ex-post evaluation, their technical capacity has improved and their capacity to operate hasreached an adequate level for ordinary operation and maintenance.

Five employees havereceived formal training, and other 25 employees have obviously acquired the capacity tooperate through OJT at the purification plant.
2.3.1.3 Financial status
Direct expenses for the operation and maintenance of facilities are secured.

However, thescarcity of revenues for the operation of overall facilities including water supply costs affects
the manifestations of the project’s effect.
As explained in the section of effectiveness, CDA reduces the amount of water supply fromthe Kanpur Dam which is more costly. A reason is its chronic state of scarce sources ofrevenues.14
Several reasons are considered as the causes of financial difficulty . In particular, theprimary reason is imbalance between the water rates set lower for political reasons and the costof water supply, and low collection rates of water charges may also be responsible.
The yearly expenditure related to operation and maintenance of the Kanpur purification
plant is shown below.

Interviews with a CDA officer indicate that the expenses for basic

12 There are two canals for the Kanpur Dam, out of which the left bank canal is primarily for use by local

governments and industries, and partially for irrigation. On the other hand, the right bank canal is used for
irrigation.
13
In the problem of silt, the quarry (a private enterprise), the cause of the problem, should bear partial responsibility
in terms of operation and maintenance. However, it has not taken any part yet.
14 We could not obtain detailed data on the finance of the water supply department. Our statements here are basedon the information obtained through interviews with people in the section in charge.

10

operation and maintenance have been secured, thus causing no big problems in operation andmaintenance.
Table 6: Operation and maintenance expenses for the Kanpur Dam
Year(million rupees)(million yen)
2003
75.0
126.0
2004
136.1
228.7
2005
158.9
266.9
2006
139.0
233.5
2007
170.2
285.9
(Source) CDA
The collection rates of water charges have not changed much since the time of ex-post
evaluation.

Particularly, the collection rate of CDA is low.

A local expert’s view is that

CDA’s low collection rate is still due partly to institutional problems such as low awareness offinancial management among staff members.

Furthermore, the expert further argued that thefacts that meters were not adequately installed and that meters, if installed, had troubles also
prevent CDA from collecting accurate water charges.
Table 7: Collection rate of water charges
AgencyCollection rate

CDA
WASA
RCB

39%
65-70%
No answer(Source) CDA/WASA

2.3.2

Maintenance Condition

As discussed in the section on technical capacity for operation and maintenance, at the
Kanpur purification plant its staff members have a high level of technical maturity and no big
troubles have taken place in the facilities.
with operation and maintenance.

Thus, it can be concluded that it has no problems

However, the capacity for preventive maintenance is not

sufficient, which may erode trust in the plant in the long run.

A typical case is seen in thestagnation in the process of decision-making concerning the procurement of spare parts.

For

instance, the same batteries and fuses used in the transformer substation of the purification plantcannot be procured within Pakistan and are no longer manufactured in Japan, either.

As aresult, the plant uses domestic low-quality batteries.15
15

We confirmed, together with the local expert, the fact that a new type of battery has been already introduced by aJapanese supplier. We received information to indicate that there are no problems with its interchangeability.
However, the executing agency insists that it has not had technically validating data, thereby pending its decision for
procurement.

11Concern has been growing over operation and maintenance of silt and dust in the left bankcanal that connects the Kanpur Dam with the water purification plant.

Silt and dust generated

at the quarry by the canal flow into the canal and already begin to block the flow.
there is a fear of totally damaging the capacity of the canal.

If left as it is,

In a worse case, if part of thesediments flow into the reservoir at the lower reaches through the canal, there is a possibility ofaffecting the reservoir capacity.
Under the circumstances, CDA has been trying to take out sediments for several days per
year, which gives no fundamental solution to the problem.

The following measures will be

required in the future.
・Setting up coordination meetings that involves the relevant organizations and officially
identifying the role and responsibility of respective organizations related to operation andmaintenance・Exploring measures including the relocation of the quarry that is the cause of the problem.

Figure 3: Silt in the canal
3

Figure 4: Quarry by the canal

Conclusions, lessons learned and recommendations

3.1 Conclusion
We have observed certain improvements in terms of water storage and the amount of watersupply, and yet the design ratio still hovers as low as less than 50%.
is low.

Thus, the project’s effect

In the backdrop of the low effect lie multiple problems such as the lack ofinter-organizational coordination and undeveloped infrastructure.
3.2 Recommendations (for the executing agency)(1) Various factors are related to the problem of the failure to achieve the design amount ofwater supply.

For instance, they include financial problems of relevant organizations andinadequate inter-organizational coordination as well as undeveloped infrastructure.
are no many quick remedial measures.

There

It is necessary to solve as quickly as possible the12problem of inadequate coordination among relevant organizations through holding periodic
discussions, etc.
(2) In order to improve the problem of slit in the canal, it will be essential to clearly indicate thelocation of responsibility in operation and maintenance.

CDA should take the initiative inholding a meeting among parties concerned to discuss how to address the issue.

Measuresfor the ultimate solution to the problem of slit will require such action as relocating thequarry which causes the problem.

Thus discussions involving relevant parties including

the executive officer of the quarry will be necessary.
(3) We have detected no problems in the water quality at the purification plant and in the waterpipe.

Yet presumably there still remains the problem with water quality at the end point ofwater supply.

It will be important to perform periodic tests as well as testing on request inorder to know correctly the problem of water quality at the end point of water supply.
(4) The issue of procurement of spare parts is largely caused by the shortage of information
held by the executing agency.

It is necessary to provide technical support on, for instance,

the validation of interchangeability, by outside electric engineers.
(5) What is clearly required is a measure to increase the collection rate of water charges tosecure financial soundness.

Concretely, these comprise proper rates of water charges,

meter installation, and firm collection of water charges (including staff education).
3.3 Lessons learned
None

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Comparison between major plans and performance(taken from the ex-post evaluation report)
Item

Plan

Performance① Output(1)Water intake/canal
facilities(2)Water purification
facilities

Repair of the (existing) Left Bank CanalAs planned

Canal to the reservoir, etc. 550m

As planned

Construction of a new purification plant

Capacity 281,000 m3/day(Coagulation-sedimentation → sand filtration）:
Capacity 273,000 m3/day (two lines)(3)Pumps/electric facilities
For Rawalpindi

1,250KW x 3

1,400KW x 3

For Islamabad

850KW x 3

970KW x 3

For Rawalpindi

θ1,400 x 17Km

θ1,400 x 13.3Km

For Islamabad

θ1,200 x 6Km、θ800 x 3Km

θ900 x 6.9Km

For Rawalpindi

22,3 00 m3 x 2As planned

For Islamabad

16,600 m3 x 1

As planned(6)Consulting expenses

Non-Japanese（293MM）

Same as the left

(4) Water supply facilities(5) Water storage facilities

Local persons（382MM）② Project period
Design period

May 1989 ~ February 1990

March 1990 ~ March 1991

Land expropriation

May 1989 ~ December 1990

Jan. 1990 ~ June 1998

Procedures on bidding/contract

May 1990 ~ December 1990

March 1994～ June 1994

January 1991~ September 1993

Sept. 1994 ~ May 2000

Foreign currency

8,763,000 million yen

9,657 million yen

Local currency

12,422 million yen

6,176 million yen（ 1,714 million Rs）（ 1,838 million Rs）

21,185 million yen

15,833 million yen

12,518 million yen

12,442 million yen

Construction period③ Project cost

Total
ODA loan portionRate

Rs＝ 7.25yen

1 Rs＝ 3.36 yen(As of August 1988)(Average of 1990 ~ 2000)

1

14