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Development Induced Displacement in Pakistan
Background
Following the independence in 1947, the economic development planning in
Pakistan, was based on large scale industrialization. Under five year
plans, various mega development projects were launched to exploit
natural resources. The projects for building large dams at Terbela, and
Mnagla were initiated in the early decades of the independence to rise
among the industrialized countries of the world. In the later years,
Ghazi Brotha and various other medium scale dams were also constructed
to regulate water resources.
Although these projects played important role in economic development of
the country, at the same time they caused havoc in terms of depletion of
natural resources and particularly the displacement of thousands of
people from their ancestral homes and habitats. People living on dam
sites for centuries were not only physically displaced but they also
lost their livelihood. Consequently the displaced populations faced
various kinds of impoverishment risks like landlessness, joblessness,
homelessness, marginalization, food insecurity, loss of common
resources, among others. All power projects launched in Pakistan show
similar patterns of displacement and threat to livelihood. Inadequate
compensation, delayed resettlements, loss of livelihood marred the
future of displaced people. In nearly all dam projects initial
assessment of displacement and other affects were grossly
under-estimated. The focus had been on the physical resettlement of
dislocated people; their livelihood restoration, social development
needs and integration within the resettled place were not addressed.
With regards to delayed resettlement, Tarbela Dam Project is the most
relevant example where a significant number of families are yet to be
resettled. The land given in compensation was not as good in terms of
quality as was acquired by the government. Either resettlement was
delayed or just could not be done. Cash compensation to the affected
people was not adequate either. The dislocation of landless has gone
unnoticed in all water related projects. Another pattern that emerges
from displacement induced by development projects is the lack of
community participation. The uprooted community is seldom consulted in
planning or implementing the dam projects. There is no proper mechanism
to inform or redress their problems. Even NGOs remain ineffective.
The key issue related to development-induced displacement is the absence
of resettlement policy and laws. The government has been using laws
promulgated during the colonial period. The laws, particularly the Land
Acquisition Act 1894, have been applied to acquire land and resettle
uprooted communities but this does not address the modern day problems
and needs emerging during dams’ construction or otherwise. Despite
modifications and changes in the existing laws, it still lacks a
comprehensive treatment.
Major development projects and displacements
Following are some cases of projects, which reflect the kind and volume
of displacements that took place under certain dam projects. Tarbela,
Mangla and Kaptai (constructed in East Pakistan, now Bangladesh)
launched in 60s were major initiatives of the so-called "Decade of
Development" by the military ruler President Mohamad Ayub Khan.
Following the lapse of more than three decades, their adverse affects
can still be felt with reference to the uprooted people of the areas
where dams were built. Thousands of people were uprooted and hundreds of
villages were submerged. There are still a large number of families who
are still waiting for fair compensation and proper re-settlements.
Mangla dam and Kaptai dam belong to the same period. Kaptai dam was
constructed in the Chittagong hill tracts. Nearly 100000 people were
displaced as a result of the construction of dam. Majority of those
displaced belonged to Chakma and Hajong tribes. Nearly 52000 displaced
people crossed over to India. They are still not recognized as refugees
by the UNHCR. Mangla dam was constructed around the same time, in Mirpur
district of Azad Jammu and Kashmir, when Kaptai dam was started. Mangla
dam is the world’s third largest earth-filled dam. This was first large
dam built as part of the Indus Basin Project following the treaty
between India and Pakistan over the dispute over the use of water from
the Indus River and its tributaries. More than 50000 people were
displaced. The displaced were given very little compensation for the
loss of their homes and agricultural land. In these circumstances the
displaced families had to move to other areas on their own. There is
widespread dissatisfaction over the compensation and resettlement.
Mangla dam and Kaptai dam belong to the same period. Kaptai dam was
constructed in the Chittagong hill tracts. Nearly 100000 people were
displaced as a result of the construction of dam. Majority of those
displaced belonged to Chakma and Hajong tribes. Nearly 52000 displaced
people crossed over to India. They are still not recognized as refugees
by the UNHCR. Mangla dam was constructed around the same time, in Mirpur
district of Azad Jammu and Kashmir, when Kaptai dam was started. Mangla
dam is the world’s third largest earth-filled dam. This was first large
dam built as part of the Indus Basin Project following the treaty
between India and Pakistan over the dispute over the use of water from
the Indus River and its tributaries. More than 50000 people were
displaced. The displaced were given very little compensation for the
loss of their homes and agricultural land. In these circumstances the
displaced families had to move to other areas on their own. There is
widespread dissatisfaction over the compensation and resettlement.
Government had to defer the plan.
Tarbela dam was launched in 1967 with the WB assistance. At the outset
it was assessed that 80000 people would be displaced and 100 villages
will come under water. But 96000 people had been dislocated and 120
villages submerged. The main occupation of those displaced was
agriculture. An organization by the name of Tarbela Dam Resettlement
Organization was set up for acquisition of land, disbursement of
compensation, evaluation of affected population and their resettlement.
The land was acquired under Land Acquisition Act 1894. A comprehensive
resettlement programme was adopted but resettlement is not yet complete.
After the passing of 30 years still 2000 families are waiting to get
their claims settled. 170 families, who were allocated land in other
provinces, could never get possession of the land. Following the
initiation of Ghazi Barotha Hydroelectricity Project (GBHP), the issue
of Tarbela dam displaced families again surfaced. In the wake of
pressure from civil society organizations the World Bank has indicated
that the loan for the Ghazi Barotha Hydelpower Project is conditioned to
the resolution of long awaited settlement of displaced people of Tarbela
dam.
Ghazi Barotha Hydropower Project is currently the most important project
where a comprehensive resettlement plan has been incorporated in the
overall project. 52 villages will be affected by the project. The total
population of these communities is estimated at about 2 million. The
total persons directly affected are 21,653. They include 1,778 that did
not own any land. A project NGO has been set up to address the
displacement issues and participation of community in decision making.
Guidelines by the World Bank (WB) and the Asian Development Bank (ADB)
are being strictly followed. But the issue of restoration of the
livelihood of the displaced people has gained very inadequate
recognition.
Chashma Right Bank Canal (CRBC) is a classic example of water related
project. 274 Km long canal began in 1978. Data regarding the stage I and
II are not available but at the final stage almost 2000 villagers will
have to dislocate. The project was planned 24 years ago, the Government
neither informed nor consulted local communities at any stage of the
project. Now that the project is about to complete, either the
government or the main donor, Asian Development Bank, have no standard
resettlement plan for the affectees. The ADB says that the bank had no
resettlement policy when the project was approved. In short there have
been vital flaws in the project as well as violation of basic human
rights such as resettlement, compensation of the lost property, etc.
However, following the protests from local and national public
organizations, the ADB has appointed a team of consultants to monitor
the situation and come up with recommendations for the compensation of
affectees. Now it is hoped that the affectees may be able to get some
compensation.
Conclusions
The situation regarding the displaced people and resettlement calls for
urgent actions on the part of state and non-state institutions.
Following issues needs immediate attention:
There is a need to draft a national resettlement policy, as the existing
law and policy do not address the concerned issues comprehensively. The
Land Acquisition Act 1894 (Act I of 1894) as amended from time to time
has been general land acquisition law in Pakistan. The provinces of the
country have also framed their laws in line with the said Act and thus
these Acts has been amended and updated differently in each province. In
2000 the Military Government announced that a national resettlement
policy would be formulated. Although consultations and meetings were
held both at governmental and non-governmental level, they have not been
able to come up with any policy so far. Apart from physical
resettlement, restoration of livelihood, integration of the displaced in
the local communities and compensation to the landless and tenants
should also be incorporated in the resettlement action policy and plans.
Like issue of refugees, the issue of IDPs has not been given much
attention among academia or civil society organizations. This, in spite
of the fact that immediately after the independence the biggest problem
Pakistan has had to handle was resettlement of refugees from India.
Afterwards three million plus Afghans refugees crossed over to Pakistan.
And lastly the development induced displaced population. Particularly
the issue of IDPs seems to be a quite new area since nothing significant
has been done in this field. But in recent years issues related to
forced displacement have been taken up by some organizations like
Pakistan Network of Rivers, Dams and People, a network of public
organizations, NGOs, CBOs and support organizations. The main thrust of
the network is to do advocacy on forced displacement and resettlement
issue. However, public organizations with displacement and resettlement
issue on their charter are very few. Therefore there remains the need
for wider awareness on the issue of development induced displacement.
In the absence of law and policy of resettlement in Pakistan, the donors
for dam building projects like WB, ADB and other such institutions have
tried to solve the issue by establishing project NGOs and providing
guidelines for resettlement of uprooted people. Asian Development Bank
has put forward clear set of guidelines for acquisition of land;
measures to minimize the effects on human settlement. All these steps
could not ensure implementation of resettlement process in any single
project. Tarbela is one such example where uprooted people have been
waiting for resettlement for the last thirty years. Donor organizations
have to incorporate strict mode of monitoring in the project and
conditioned financial assistance to follow the guidelines laid out in
the project document. Lastly such projects should be approved that have
minimum effects on human settlement and environment. (Atta ur Rehman
Sheikh)
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