Policy Gap Analysis - United Nations Development Programme

General Economics Division (GED)(Making Growth Work for the Poor)

Planning Commission

February 2017

Environment and Climate Change

Policy Gap Analysis in Haor Areas

Workshop Outcome Document

February 2017

(29 August 2016)

Support to Sustainable and Inclusive Planning (SSIP) ProjectGeneral Economics Division (GED)

(Making Growth Work for the Poor)Planning Commission

Environment and Climate Change

Policy Gap Analysis in Haor Areas

Workshop Outcome Document

Workshop Outcome DocumentEnvironment and Climate ChangePolicy Gap Analysis in Haor Areas

Design & Printing: Real Printing and Advertising

Prepared and Published by:Support to Sustainable and Inclusive Planning (SSIP) Project

General Economics Division (GED), Planning Commission

Environment and Climate Change Policy Gap Analysis in Haor Areas

CONTENTS

PREFACE 5

ACRONYMS 7

INTRODUCTION 9Context 9Purpose of the Workshop 10About the Workshop 10

PLENARY SESSION 11Opening Remarks 11Presentation of Keynote Paper 11Open Discussion 13

REMARKS BY THE HONOURABLE GUESTS 15

RECOMMENDATIONS MADE AT THE WORKSHOP 18Establishment of Ecotourism 18Involvement of Local People and Community in Haor Development 18Engagement of Private Sector in Haor Development 18Diversification of Livelihood in Haor Areas 18Comprehensive Data and Rigorous Research 18Coordination among Government Agencies 19Inclusion on Economic Importance of Haor in National Curriculum 19

Annex-1 20Programme Schedule of Workshop 20

Annex-2 21List of Participants of the Workshop 21

Annex-3 25Power Point Presentation on Keynote Paper 25

Annex-4 28Media Coverage 28

Annex-5 33Keynote Paper 33

3Environment and Climate Change Policy Gap Analysis in Haor Areas

4 Environment and Climate Change Policy Gap Analysis in Haor Areas


PREFACE

I am very pleased to report that the Support to Sustainable and Inclusive Planning (SSIP) project of the General Economics Division (GED) has taken initiatives to publish the outcome document of the workshop on "Environment and Climate Change Policy Gap Analysis in Hoar Areas" of Bangladesh. The Hoar areas, comprising of 20,022 square kilometers covering seven (7) north - eastern districts of Bangladesh, is one of the largest wetlands of Bangladesh. Their natural resource base is also very rich and they are the home for migratory birds and aquatic wildlife.

Most importantly, the haors are the home of millions of rural poor and their livelihoods depend on haor resources for fishing, rice farming, boating, wage laboring in sand and stone mining, etc. But the resources of the ecologically sensitive areas are being continuously invaded by various economic interest groups leading to over exploitation by infringing into its ecological and biodiversity balance. Therefore, maintenance of ecological balance and biodiversity through policy gaps analysis of the largest wetland of Bangladesh has become critically important and pertinent while managing natural resources for productive uses.

The GED, with the support of the UNDP- funded SSIP project, has carried out similar exercise on another important environmental and climate change hotspot - Sundarbans - in 2015 to sensitize policy planners. The objectives of these exercises were to analyze environment and climate change policy gap and to understand the livelihood issues of the poor dependent on these large and resourceful mangrove forest and wetlands while maintaining their biodiversity. Aside the 7th Five Year Plan (FYP) objective to promote environmentally responsive policy intervention to accelerate growth to eradicate poverty, these studies will help identify Bangladesh action plan and set up indicators for achieving Sustainable Development Goals (SDGs) 13 and 15.

I am convinced that the findings of the stakeholders' workshop will help the Hoar Board to implement the "Haor Development Master Plan and Database" formulated by the Government of Bangladesh in many ways to ensure sustainable development of two crore inhabitants of haor areas.

The set of recommendations made by the workshop reflect the voice of and collective wisdom of all stakeholders including the people living at the hoars and the mangrove areas.

I am expressing my sincere gratitude to my GED colleagues and SSIP experts who have worked very hard for arranging these policy dialogues at the grass-roots level in order to gather on field experience concerning the ecologically and environmentally sensitive but relatively backward areas of Bangladesh as well as creating this opportunity to listening to the voice of the local people and development practitioners whose life and living greatly depends on the wetland.

Let me take this opportunity to thank the UNDP Bangladesh for long standing support to Bangladesh, and GED in particular toward achieving common vision of poverty free and a just society.

(Professor Shamsul Alam)



ACRONYMS7th FYP Seventh Five Year Plan

CBM Community Based Management

CNRS Center for Natural Resource Studies

ECA Ecologically Critical Area

GED General Economics Division

GIZ Gesellschaft für Internationale Zusammenarbeit

HAP Haor Advocacy Platform

JRC Joint River Commission

NPD National Project Director

NRM Natural Resource Management

NSO National Statistical Organization

RMO Resource Management Organization

SDGs Sustainable Development Goals

SSIP Support to Sustainable and Inclusive Planning

UNDP United Nations Development Programme


INTRODUCTION

Introduction


3. The only wetlands permanent sanctuary (Baikka Beel) of Bangladesh is located in Hail Haor (Moulvibazar district)

4. Tourist spots including Ratargul swamp forest, Tamabil, Jaflong, Madhhobkunda, Sreemangal, Lauachhora forests

5. Reservoir for rain and flood water

6. Source of recharging ground water

7. Source of drinking water

8. Controller of siltation.

Moreover, country's only crude oil mine has been explored in the haor region so far. Though development potentials are huge in haor areas, there is a lack of integrated approach for maximizing the utilization of resources (both human and natural resources) for the sustainable development of haor.

The Government of Bangladesh has taken the initiative for the development of the haor areas. In connection to this, The "Haor Development Master Plan and Database" has been formulated to ensure sustainable development of two (2) crore inhabitants of haor areas covering seven (7) north-eastern districts. Under this master plan, 17 special areas were identified for development which will be implemented over a period of 20 years (2012 to 2032).

Haor Master Plan has been recognized in the 7th FYP for the first time and thus, it is envisaged that the implementation of Haor Master Plan will get momentum. According to 7th FYP, priority will be given to address the problem areas (like hills, coastal, Haor and barind areas) that are geographically excluded and ecologically vulnerable. Moreover, the Government of Bangladesh changed the Bangladesh Haor and Wetlands

ContextHaor basin in Bangladesh comprised of large areas of seven districts, namely Sylhet, Sunamganj, Habiganj, Moulvibazar, Kishoreganj, Brahmanbaria and Netrokona districts covering an area of 20,022 square kilometers (Master Plan of Haor Area, 2012). Most of the Hoars areas remain under water for about 6-7 months of a year and a substantial area are perennial wetland. There are 373 haors and these water bodies cut across 164 unions and 29 sub-districts of 7 districts. The haors are the source of livelihoods of millions of rural people who depend on haor for fishing, rice farming, boating, hunting, wage laboring in sand and stone mines, etc.

Living standard of majority of people in Haor areas is one of the lowest categories in Bangladesh. Population density is also high in haor area. Having one of the poorest road communication networks in terms of connectivity with the main land, 11 haor upazillas are not connected with road network (Master Plan of Haor Area, 2012). It is a mono-cropped area and agricultural activities take place only during dry season for about 4-5 months. Incidence of flashflood is also widespread which destroys crops in every 2-3 years. River bank erosion and arsenic contamination of ground water are also reported to be severe in haor area.

Despite geographical isolation, haor areas have huge potential. Haor serves as-

1. Biodiversity niche including home for migratory birds, aquatic wildlife

2. Hakaluki Haor (Moulvibazar district) and Tanguar Haor (Sunamganj district) are declared as Ecologically Critical area (ECA) and RAMSAR site respectively

Introduction


The workshop mainly covered policy issues in the arena of environmental degradation and impact of climate change in haor region including bio-physical environment of major ecosystem in Bangladesh. The discussion in the workshop centered around the issues of relevant policies, probable environmental impacts due to climate change, current state of the ecosystem, minimization of environmental and climate change impacts.

The core purpose of the workshop was to review and explore the gaps in the existing policies adopted by the Government of Bangladesh in combating environmental degradation and impact of climate change, particularly in haor areas. The workshop also aimed at facilitating the process of engagement of all stakeholders in safeguarding this natural habitat and improving the life and livelihood of the people living in haors.

The workshop brought together a total of 52 participants from a wide range of relevant stakeholders across the public sectors, development partners, academia, journalists and community people.

The workshop was graced by the presence and intellectual inputs of Prof. Dr. Shamsul Alam, Member (Senior Secretary), General Economics Division (GED), Planning Commission; Ms. Shaila Khan, Head, Business Development and Partnerships Unit and Assistant Country Director, UNDP Bangladesh; Mr. Majibur Rahman, Director General, Department of Bangladesh Haor and Wetland Development; Mr. Fakrul Ahsan, Project Manager, SSIP Project, UNDP Bangladesh; and Md. Kamrul Hasan, Deputy Commissioner, Moulvibazar district.

Development Board into a Department on 4 June 2015.

Purpose of the Workshop

1. To review and explore the gaps in the existing policies adopted by the Government of Bangladesh

2. To gather local knowledge on the development potential and challenges of the haor areas.

3. To explore the pathways of mainstreaming local observations and recommendations into national policy discourse.

4. To assess the impact of climate change in haor areas

5. To understand two relevant goals of SDGs - Goal 14 and 15 - which rest on sustainable use of wetlands, protecting, restoring and promoting their ecosystems - in the context of haor areas.

6. To explore the possibilities of localization of SDGs in haor areas.

About the WorkshopThis workshop is a part of the series of workshops to be organized in different ecosystems and agro-ecological zones (AEZs) of Bangladesh. The first one was organized on 8 August 2015 in Khulna focusing on the environment and climate change policy gap analysis in south western region of Bangladesh, particularly the Sundarbans. In connection to this, the GED, in close collaboration and technical support of UNDP-supported Support to Sustainable and Inclusive Planning (SSIP) project organized a workshop on 'Environment and Climate Change Policy Gap Analysis in Haor Areas' on 29 August 2016 at Grand Sultan Tea Resort & Golf, Moulvibazar, Sylhet.

Plenary Session

PLENARY SESSION


Mentioning the characteristics of haor, he stated that, hydrologically, haor is unique as most of its area remains under water for 6-7 months of the year (May-October) leaving the villages as isolated islands. As such, the haor communities divide the year into two broad seasons, viz. borsha (wet monsoon) and hemanta (dry winter). In the dry season, boro rice (irrigated winter rice) farming is the major livelihood activity of haor communities when the landless poor also work as wage laborer. In the wet season, when the entire haor region is flooded, fishing becomes the major livelihood options for most of them. However, in the later part of the monsoon (October onwards) access to fishing is denied by the leaseholders of jolmohals (wetlands).

Although the haor area is rich in having diverse natural resources, it is also highly exposed to multiple hazards that are now being exacerbated due to climate change. As

Opening RemarksAt the outset of his welcome address, Mr. Naquib bin Mahbub, Chief, General Economics Division and NPD, SSIP Project welcomed all participants to the consultation workshop on behalf of GED and SSIP Project. He stated that weather and climate is inseparably related and is linked with the economic condition of haor areas. He hoped that the workshop would suggest some concrete recommendations so that GED can incorporate those in the national plans and programme under public investment programme.

Presentation of Keynote PaperDr. M. Mokhlesur Rahman, Executive Director, Center for Natural Resource Studies (CNRS) presented the keynote paper titled 'Environment and Climate Change Policy Gap Analysis in Haor Areas of Bangladesh' at the workshop.

Plenary Session


44 per cent (against national figure of 21 per cent) in haor region.

On an average, 44.25 per cent haor people use sanitary latrines having the poorest coverage in Netrokona (35 per cent). Haor districts have a very low coverage of drinking water source and in many areas ground water is contaminated with arsenic. Sunamgonj has the lowest use of electricity utility with only 17kWh per capita (against nation figure of 600kWh per capita) followed by Kishoregonj and Netrokona.

He discussed initiatives of Haor Advocacy Platform (HAP) and highlighted various strategies that already have been taken from the context of haor, such as- institutional development aiming at haor development, haor in Seventh Five Year Plan, Master Plan of Haor Area. He also discussed national plans and policies regarding haor such as- Environmental Policy 2003, Bangladesh Climate Change Strategy and Action Plan - 2009, National Water Policy 1999, National Fisheries Policy 1998, National Jolmohal Policy 2009, National Forest Policy 1994, National Land Use Policy 2001, National Agriculture Policy 1999, National Industrial Policy 2016 etc. and focused on the gaps of these policies on haor context.

The keynote paper is included in Annex-5.

such, the communities and resources are increasingly being exposed to risks and threats at an alarming rate, which if goes unabated, is most likely to lead to resource depletion. This may also result in violent conflicts among competing resource users, increased poverty, exclusion and social conflicts. However, there exists huge potential to develop and sustain the agriculture and natural resource systems by adopting appropriate policies and developing local institutions.

Despite having these diverse resource systems that support the livelihoods of local communities, haor is lagging behind in many development indicators and ranks high in case of exposure to multiple natural hazards. He presented haor vulnerabilities besides its natural and anthropogenic drives. Five haor districts are recognized as the worst performer in the MDG composite index while two other haor districts present below average performance. The Haor Master Plan states that 29.56 per cent of population in haor areas live below lower poverty line. Around 28.5 per cent of haor population are completely unemployed and the illiteracy level is 38 per cent on average. The rate of primary school enrollment is 71 pe cent (against national figure of 99 per cent) but the school dropout rate is around

Plenary Session


ultimately has a negative effect on revenue generation of government. He also added that those who lease beel, also tend to build high boundary/dam around the beel which is against the law. For this reason, when water level falls, fishes get trapped inside the structure and fish migration is stopped.

He emphasized on conducting a robust and rigorous Baseline Survey on haor before preparing a development plan focusing on this natural habitat. He also gave importance to community based management (CBM) of haors to establish fish sanctuary and ensure its sustainability.

Bringing up the matter of filling up of Hail haor, Mr. Md. Feroz Mia, a retired school teacher and former Chairman, Mirzapur Union Parishad under Sreemangal Upazila, said that due to deposition of silt and sand through small canals from hills of the southern part, the west and eastern side of Hail haor is losing its natural depth. Referring to a research conducted earlier by CNRS, he said that if such deposition continues, the bottom of haor will be filled up by one (1) meter in every 10 years.

Mr. M. Sajaul Haque, a school teacher of Jamirunnesa Academy, Fenchuganj, Sylhet, said that 'kapori' net for fishing is banned in Hakaluki haor. However, influential people are still using this specific type of net and

Open DiscussionMr. Syed Enamul Haque Raja, Chairman, Najirabad Upazila Parishad and Editor, Ramediya Resource Management Organization (RMO) raised his concern about fishing in dry season in beels (small waterbody) by influential persons which eventually has diminished the stock of fisheries in the region. He recommended for revising the regulations of leasing beels/haors and suggested to provide lease of such waterbodies to social organization.

Mentioning the lack of coordination among various department of government, Dr. Mrityunjoy Kunda, Assistant Professor and Chairman, Department of Aquatic Resource Management, Sylhet Agriculture University suggested to establish coordination among different departments of government and requested to take initiatives relating to haor conservation and improvement collectively. He expressed his concern on constructing bridge/culvert in haor areas without informing Department of Fisheries. Moreover, it is not monitored whether the natural movement of fish is being disturbed or the stock of fish is impacted.

He feared that soil and water condition of Tanguar Haor have gradually become acidic, resulting in scarcity of fishes which

Plenary Session


areas, if GIZ assessment doesn't consider haor areas separately - a new and exclusive assessment should be conducted. He stated that an economic assessment was done, about 10 years back, in haor area by UNDP under Coastal Wetland and Biodiversity Resource Management Project. That study urged to conduct such study again for assessing economic valuation of the haor resources.

Mr. M. Idris Ali, Secretary, Sreemangal Press Club, said that, illegal fish farm are being established in the khas lands of haor and this have created a negative impact on natural movement of fish as well as breeding. He suggested for providing lease to social organizations instead of individuals and ensure involvement of people/community from all occupation by revising waterbody regulations.

Lauding the co-management system for reserved area by Department of Forest, Mr. Prakash Kanti Chowdhury, Additional Deputy Commissioner (Revenue), Moulvibazar urged that same concept of co-management system should be applied for wetland management.

He said that "Hijol" "Koroch" forestation in haor area by Department of Forest has collapsed due to lack of maintenance. He suggested to include aquatic forestation under social forestation regulation. Focusing on siltation and filling up of haor areas, he stated that generally flood occurs in haor area due to heavy rainfall and flash flood in India. This issue should be taken up by the Joint River Commission (JRC). Water Development Board can facilitate this case as they are providing support to the JRC from the Bangladesh side, he added.

Dr. Narayan Saha, Professor, Department of Forest and Environmental Science, Shahajalal University of Science and Technology, Sylhet suggested for using knowledge of local people of all occupations living in the area for proper management of haor. He also emphasized the importance of introducing Natural Resource Management (NRM) principles.

endangering different species of fishes. He also said that excessive use of pesticides in paddy cultivation is degrading the land quality. In Hakaluki Haor dry season has become a threat to most of birds and fishes.

Informing various initiatives taken by the Department of Agriculture, Mr. Md. Shahjahan, Deputy Director, Department of Agriculture Extension, Moulvibazar, said that his department is encouraging farmers to cultivate short term paddy such as- Bina 8, 9, 10 and high yielding variety - BIRI 28 and 29. He suggested that if the farmers use Rice Planter and Rice Reaper for sowing and reaping of paddy, the calendar of rice production will be shortened to avoid early onslaught of flood.

Referring Hakaluki Haor, Mr. Mihir Kumar Doe, Divisional Forest Officer, Wildlife Management and Nature Protection Division, Sylhet said that once there was abundant forest of Hijol and Koroch tree in Hakaluki Haor, which was safe habitat for wildlife and birds. Today, that forest has almost vanished. Agricultural activities and fish farm in the haor areas have destroyed the forest of Hijol and Koroch. He said that despite having an enormous area, there are limited numbers of trees in haors, so birds have to move to human habitat areas. He also mentioned that 50 per cent of total wild cat rescued from haor area are found to be dead.

He suggested for dedicating at least 10 per cent of haor land for forestation in order to maintain the remaining habitat. He also urged for proper enforcement of law for protecting haors and natural habitat within.

Mr. Arif Mohammad Faisal, Program Specialist, UNDP Bangladesh said that haors cannot be saved only by announcing Ecologically Critical Area (ECA). It is also important to prepare ECA Management Law and ensure its full enforcement.

He said the GIZ is assessing the threats and risks of climate change throughout the country. Given the uniqueness of the Hoar

Remarks By The Honourable Guests

REMARKS BY THE HONOURABLE GUESTS


coordination among government ministries, departments and agencies working in the haor areas.

The Guest of Honour of the workshop, Mr. Majibur Rahman, Director General, Department of Bangladesh Haor and Wetland Development, mentioned that haors are important for Bangladesh economy, as it is the 2nd largest sweet water reservoir for fish and one of the unique biodiversity heritages in the world. This heritage honors the people living in haor areas.

He stressed the need for diversification of agricultural products in haors areas as people living in the area depend only on one crop, i.e. paddy. Department of Agriculture should promote this programme. and the Social Safety Net Programme (SSNP) should be intensified and new programme should be launched to improve livelihood opportunities of the people living in the haor areas.

Mr. Fakrul Ahsan, Project Manager, SSIP Project, UNDP said that it is not possible for the government to address environmental issues only by introducing policy. For effective management of natural resources as well as safeguarding environment and to face climate related disaster Mr. Ahsan emphasized for building partnership with local people. As their life and livelihood depends on natural resources of hoars, their ownership is critical for maintaining the bio-diversity and ecological balance of the hoars areas. He also stressed the need for engaging local knowledge in formulating policy for the hoar areas at national level.

He also called for strengthening the capacity of Bangladesh Bureau of Statistics (BBS) and National Statistical Organization (NSO) for generating and updating information on wetland, fisheries and resources of the haor areas of the country. He also highlighted the needs for breaking silos and to establish



Referring to the Haor Master Plan, he said that 145 projects have been identified by various departments under 37 ministries. Once the plan is in full operation, poverty situation of the haor areas will be improved remarkably.

The Special Guest of the workshop, Ms. Shaila Khan, Head, Business Development and Partnerships Unit and Assistant Country Director, UNDP Bangladesh, appreciated free and frank discussion and opinion expressed by the stakeholders concerning the development of haors. She said a combined effort by all stakeholders are required for maintaining a balance in halting the bio-diversity and ecology degradation and opening up opportunities for the poor living in the hoars. It is not possible for the government alone nor development partners or any particular groups to ensure the development and sustainability of haors. A holistic approach for better management and development of haors would be much more effective, she added.

Ms. Khan also mentioned that haor has not only the environmental aspect but also socio-economic aspect. She recommended

for involvement of private sector and influential businessmen in the discourse of haor development. Once they are motivated by assessing long-term business opportunities and gain, they will invest in haor areas and alternate opportunities for the people living on the resources of haor will open up. Thereby, people dependent on the Hoar resources should be considerably reduced.

She laid emphasis on ensuring participation of women in all spheres of development. Finally she recalled the successful implementation of Hijol and Koroch forestation by CNRS funded by UNDP at the Hakaluki Haor.

The Chief Guest, Professor Dr. Shamsul Alam, Member (Senior Secretary), General Economics Division (GED), Planning Commission, in his remarks highlighted the importance of Hoars in the Bangladesh's economy. The theme of the 7th FYP of Bangladesh is empowering its citizen and this stems from the spirit of inclusive and resilient society. The Hoars development issue has been strongly emphasized in the document. He said that awareness to save the natural resources has increased among the people of all walks of life. Referring to the different initiatives taken by the government for the development of haors, he pointed out that government has established Department of Bangladesh Haor and Wetland Development, prepared Haor Development Master Plan, established fish sanctuary and created groups to protect haor by involving local people.



He thanked the UNDP, particularly SSIP project for organizing the workshop on this important topic and CNRS for excellent management. He also expressed his gratitude to all participants for their presence and fruitful contribution.

In his speech as the Chair of the Workshop, Mr. Kamrul Hasan, Deputy Commissioner, Moulvibazar district, said that the haor and beels are the landmark of exceptional natural resources of Moulvibazar. Referring to the leasing policy, he informed that the government has taken the initiative of "Jal jar, Jola Tar (who has the fishing net has right in wetland)" policy for management of waterbodies. He also mentioned some discrepancies in the leasing policy and assured for taking appropriate measures to remove those in future.

Giving the example of Moulvibazar, Mr. Hasan said that industrialization will take place with specific plan, by using suitable land, not by using haor land areas and destroying natural resources. He urged to be strict in safeguarding the natural habitat and the resources within.

He hoped that information gathered in the workshop will play a vital role in formulating policy planning and programme implementation.

He also underlined different aspects of haor development and opined that proper knowledge should be acquired for development and management of haor areas. He urged the authorities concerned for conducting benchmark surveys and research on the different agro-climatic and social aspects of hoars.

Dr. Alam agreed that declaring sanctuary is not enough and involvement of local people in management of Haor and creating awareness among them on natural resource management is imperative. He also advised the local government officials, political leaders, local elites, businessmen and NGOs to work together and play active role in protecting the hoar resources and improving living condition of the people surrounding the hoars. He supported the idea of providing lease of beel to community based organizations (CBOs).

He mentioned that the marginalized farmer might not be able to bear the cost for using the Rice Planter and Rice Reaper machine. Dr. Alam asked the local government authorities to provide interest-free or low interest loan to the marginalised farmers. He emphasized on using advanced technologies like Genetically Modified (GM) Seed, Tissue Culture, and Green House Agriculture Technology by different landlords or agri-business entrepreneurs. He also recommended for promoting commercial agriculture and stressed the need for reducing dependence on agriculture. In the developed countries, like Netherlands and Japan only 1.5 per cent people involved in agriculture whereas in Bangladesh 47 per cent people involved in agriculture, resulting in excessive use of human resources, he opined.

Dr. Alam suggested that curricula of primary and secondary schools should focus on analyzing regional understanding on agro-climatic characteristics and their management facilitating best and optimal uses of natural resources.

Recommendations Made In The Workshop


Engagement of Private Sector in Haor DevelopmentConsidering the vastness of the haor basin, it is realized that only government initiatives is not enough for the development of the area; engagement of private sector can push the local economy around the haor basin. The possibilities of community involvement and Public Private Partnership (PPP) should be explored.

Diversification of Livelihood in Haor AreasPeople living in the haor areas depend on only one crop, i.e. paddy. Particularly in the rainy season, they maintain livelihood from fishing in haor areas. Therefore, Department of Agriculture should come forward and ensure diversificationof agricultural products in haors areas. The Social Safety Net Programme (SSNP) should also be intensified and new programme be launched to improve livelihood opportunities of the people living in the haor areas.

Comprehensive Data and Rigorous ResearchA Comprehensive Baseline Survey on Haor and its resources is required for preparing any development plan. Lack of credible and representative data of this region constrains the effective policy making. National level

Most of the recommendations made at the workshop are also reflected in the Haor Development Master Plan. This section sketches a few recommendations that did not receive much attention in the Plan reiterated by the workshop participants.

Establishment of EcotourismEstablishment of ecotourism in haor areas will result in higher income and living standards for local people. It will help stimulate rural economy by creating demand for local products. To do so, it is imperative to build and improve infrastructure in the haor areas, particularly the road infrastructure. A detailed plan on the development of ecotourism can be prepared in light of Haor Development Master Plan.

Involvement of Local People and Community in Haor Development

Life and livelihood of local people depends on natural resources of hoars; so their ownership is a key for maintaining the bio-diversity and ecological balance of the hoars areas. In connection to this, lease of waterbody should be given to social organizations instead of individuals and to ensure involvement of people/community from all walks of life by revising waterbody regulations.

RECOMMENDATIONS MADE AT THE WORKSHOP

Recommendations Made at the Workshop


policy makers have little understanding of the reality of this region because of paucity of credible data and robust analysis. Further, research outcome largely depends on quality data. It is observed that literature on the development issues of haor areas is inadequate and so is the availability of quality data. Therefore, a comprehensive survey on the hoars should be conducted covering the issues such as socioeconomics, biodiversity, water management, water quality and climate change, etc. Moreover, a study should be conducted for assessing economic valuation of the haor resources.This is prerequisite for effective development planning and quality research.

Coordination among Government AgenciesA number of government agencies are working in the haor areas. Sometimes, initiative of one agency remains unknown to another, risking the duplication of efforts (projects/programme) which leads to wastage of public resources. Moreover, construction project of one agency in haor areas sometimes is contested by other agency, as non-coordinated infrastructure construction obstruct free flow of water and water species movement, destroys the

forestation efforts and endanger environment and biodiversity. To minimize these negative impacts, the silos should be dismantled and strong coordination among all government agencies working in haor areas should be established. Department of Haor should be made responsible and empowered to coordinate any development intervention in the haor areas.

Inclusion on Economic Importance of Haor in National CurriculumHaor area is enriched with valuable aquatic flora and fauna including different species of fish, other natural resources and natural habitat. The haor basin has its ecological and economic importance. The haor basin plays a vital role in the growth of the country. Therefore, it is time to incorporate the economic importance on the Hoar areas in national curriculum, particularly for the students of the hoar districts, so that the new generation can understand their agro-climatic and economic and environmental significance. That will made them aware of the importance of maintaining the environmental and enological characteristic of large water bodies and act accordingly when they enter in business and job market.


Programme Schedule of Workshop on

TIME AGENDA PERSONNEL

10:00-10:05 Welcome Speech Mr. Naquib bin MahbubChief, GED & NPD, SSIP Project ofUNDP

10:05-10:35 Presentation on ‘Environment andClimate Change Policy Gap Analysis inHaor Areas’

Dr. M. Mokhlesur RahmanExecutive Director, Center forNatural Resource Studies (CNRS)

10:35-11:35 Open Discussion All participants

11:35-11:55 Refreshment

11:55-12:15 Wrap-up Mr. Fakrul AhsanProject Manager, SSIP, UNDPBangladesh

12:15-12:25 Remarks Mr. Md. Majibur RahmanDirector General, Department ofBangladesh Haor and WetlandDevelopment

12:25-12:35 RemarksMs. Shaila Khan Head, Business Development and Partnerships Unit and Assistant Country DirectorUNDP Bangladesh

12:35-12:50 Concluding remarks Prof. Dr. Shamsul AlamMember (Senior Secretary)General Economics Division (GED),Planning Commission

12:50-01:00 Closing of the Workshop Md. Kamrul HasanDeputy CommissionerMoulvibazar District

01:00 Lunch

'Environment and Climate Change Policy Gap Analysis in Haor Areas'29 August, 2016

Venue: Grand Sultan Tea Resort & Golf, Moulvibazar, Sylhet

Annex-1

Annex-1

21Environm

ent and Clim

ate Change Policy G

ap Analysis in H

aor Areas

List of Participants of the Workshop'Environment and Climate Change Policy Gap Analysis in Haor Areas'

29 August, 2016Venue: Grand Sultan Tea Resort & Golf, Moulvibazar, Sylhet

Sl. # Name Designation Organization E-mail Phone

1 Dr. Shamsul Alam Member (Senior Secretary) General Economics Division (GED), Planning Commission

[email protected] 01730075299

2 Naquib bin Mahbub Chief General Economics Division (GED), Planning Commission


3 Mirza Ashfaqur Rahman Deputy Chief IE Wing, GED, Planning Commission


4 Dr. Md. Taibur Rahman Senior Assistant Chief IW Wing, GED, Planning Commission


5 Md. Mahbubul Alam Siddiquee

Senior Assistant Chief PAM Wing, GED, Planning Commission


6 Murtuza Zulkar Nain Noman

Senior Assistant Chief IE Wing, GED, Planning Commission


7 Ms. Kohinoor Akter Assistant Chief PAM Wing, GED, Planning Commission


8 Josefa Yesmin Assistant Chief PAM Wing, GED, Planning Commission


9 Mohammad Asaduzzaman Sarker

PS to Member (GED) General Economics Division (GED), Planning Commission


10 Fakrul Ahsan Project Manager Support to Sustainable and Inclusive Planning (SSIP) Project, UNDP Bangladesh


11 Kazi Iqbal Senior Economist Support to Sustainable andInclusive Planning (SSIP) Project, UNDP Bangladesh


Annex-2

Annex-2

22Environm

ent and Clim

ate Change Policy G

ap Analysis in H

aor Areas

12 Ummea Saima Planning Specialist Support to Sustainable andInclusive Planning (SSIP) Project, UNDP Bangladesh


13 A Z M Saleh KM & Research Coordinator Support to Sustainable andInclusive Planning (SSIP) Project, UNDP Bangladesh


14 Quazi Mustafizur Rahman Communications and Advocacy Specialist

Support to Sustainable andInclusive Planning (SSIP) Project, UNDP Bangladesh


15 Md. Shahadut Hossain Mazumder

Finance and Admin Manager

Support to Sustainable andInclusive Planning (SSIP) Project, UNDP Bangladesh


16 Md. Anisar Rahaman Project Assistant Support to Sustainable andInclusive Planning (SSIP) Project, UNDP Bangladesh


17 Shaila Khan Assistant Country Director UNDP Bangladesh [email protected] 01730317130 18 Palash Kanti Das Assistant Country Director UNDP Bangladesh [email protected] 01729221111 19 Arif Mohammad Faisal Programme Specialist

(CCED Cluster) UNDP Bangladesh [email protected] 01824804742

20 Md. Majibur Rahman Director General Department of Bangladesh Haor and Wetland Development


21 Md. Nurul Amin Director (Admin & Finance) Department of Bangladesh Haor and Wetland Development


22 Mohammad Nazmul Ahsan Deputy Director (Admin & Finance)

Department of Bangladesh Haor and Wetland Development


23 Md. Mozahed Hossain Joint Secretary Ministry of Environment and Forest [email protected] 01711119718 24 Md. Khalilur Rahman Joint Secretary Ministry of Water Resources [email protected] 01915860505


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23Environm

ent and Clim

ate Change Policy G

ap Analysis in H

aor Areas

25 Md. Kamrul Hasan Deputy Comissioner Moulvibazar District

Moulvibazar District

Moulvibazar District


26 Prakash Kanti Chowdhury ADC (Revenue)


27 Mohammad Mashooqur Rahman Sikder

ADC (General)

[email protected]

01712714063


32 Md. Shahidul Haque UNO Sreemangal Upazilla


33 S M Abdulla Al Mamun UNO Baralekha Upazilla [email protected] 01787888897

34 Bishwagith Kumer Paul AC Land Sreemangal Upazilla [email protected] 01711454385 35 Ashraful Alam Agriculture Extension

Officer Department of Agriculture Extension, Baralekha


36 Md. Shah Paran Veterinery Surgeon Department of Livestock, Baralekha


37 Dr. Narayan Saha Professor, Department of Forestry and Environmental Science

Shahjalal University of Science and Technology, Sylhet

nsaha12010 [email protected] 01716072440

38 Dr. Romel Ahmed Associate Professor, Department of Forestry and Environmental Science

Shahjalal University of Science and Technology, Sylhet


39 Dr. Mrityunjoy Kunda Chairman, Department of Aquatic Resource Management

Sylhet Agricultural University, Sylhet


28 Mihir Kumar Doe Divisional Forest Officer Wildlife Management & Nature Protection Division, Sylhet


29 Md. Shahjahan Deputy Director Department of Agriculture Extension

[email protected]

01788594302

30 Md. Foizur Rob Executive Engineer Water Development Board, Moulvibazar


31 Dr. Hedayet Ullah ULO (DLO In-charge) Department of Livestock, Moulvibazar


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24Environm

ent and Clim

ate Change Policy G

ap Analysis in H

aor Areas

40 Dr. Mohammad Samiul Ahsan Talukder

Associate Professor, Department of Agroforestry and Environmental Science

Sylhet Agricultural University, Sylhet


41 Professor Dr. Md. Nesawar Miah

Head, Department of Botany

M. C College, Sylhet [email protected] 01715451179


46 Md. Shajaul Haque School Teacher Jamirunnesa Academy, Fenchuganj, Sylhet

01735468501

47 Akmol Hussain Nipu District Correspondent,

Prothom-alo, Moulvibazar [email protected] 01711181373

48 Biswajyoti Chowdhury District Correspondent Daily Jugantor, Moulvibazar [email protected] 01711007153 49 Biswajit Bhattacharjee

Bapon Reporter Banglanews24.com, Moulvibazar [email protected] 01712854959

50 M Idris Ali Secretary

Sreemangal Press club [email protected] 01718601447

51 S. M. Umed Ali District Correspondent NTV, Moulvibazar [email protected] 01711920116 52 Mintu Deshwara District Correspondent The Daily Star, Moulvibazar [email protected] 01733952233

42 Javed Bin Siddique Director - Programme Prochesta, Kulaura, Moulvibazar [email protected] 01712532093 43 Syed Enamul Haque Raja CBO Representative Nazirabad, Moulvibazar 01711484555 44 Syed Nesar Ahmed President, SONAC Sreemangal [email protected] 01678167555 45 Md. Firoz Mia Retired School Teacher &

Ex. UP Chairman Mirzapur, Sreemangal 01716262750

46 Md. Shajaul Haque School Teacher Jamirunnesa Academy, Fenchuganj, Sylhet

01735468501

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Power Point Presentation on the Keynote Paper

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Environment and Climate Change Policy Gap Analysis in Haor Areas of Bangladesh

Paper Presented at the Workshop Organized by

The General Economic Division of Planning Commission, Government of Bangladesh

With financial support of the UNDP-Bangladeshat

Hotel Grand Sultan Resort and Golf, Sreemongal29 August 2016

M. Mokhlesur RahmanExecutive Director

Center for Natural Resource Studies (CNRS)

Haor Context

Haor area features:

• Deeply flooded low basin in the northeast covering around 20,000 Sq.km covering seven districts (13.5% of the country)

• Over 19 million people (around 12% of the total)• Haor remain flooded for more than half of the year• Rice land covers around 16% of the country total • Haor contributes 18% rice of the country total • 373 haors - 1million ha water-bodies contribute 20% inland

fish of the country total• Cattle production contributes 22% of the country total • Duck production shares 24% of the country total

Ecosystem features of Haor

• Biodiversity hotspot of the country (wetland and forests based)

• Major habitat for migratory birds

• Rich fisheries treated as “mother fishery”

• Internationally important ecosystems (Tangar Haor Ramsar Site and some International birding areas)

• Ecologically critical area (Hakaluki Haor)

• Baikka Beel Sanctuary (only wetland permanent sanctuary)

• Presence Forest Protected areas – home for important wildlife

• Ratargul swamp forest and remnants of many swamp & reed lands

• Richest in having Mineral Resources (gas, oil, sand and stones)

• Richest in having diverse sites for Ecotourism

Haor ContextHaor area features: • Two seasons – “borsha” (wet monsoon) and “hemanta”

(dry season)• Two main crops – fish (monsoon) and rice (dry season)• Two major choices of the people - rice and fish • Two types of forests –swamp and hilly evergreen • Two land types (except wetland) – rice land and kanda

land • Two means of rural communication – boat and walk• Two rural social identities – “abadi” (migrant cultivators)

and “jangali” (local nature dependent/ collectors) • Two major problems- early flashflood (crop damage) and

lack of access to major fishing by the poor• Two common fear of crop loss – hoy “jole” (water/

flooding) na hoy “sheeley” (hail storms)

Ecosystem features of Haor

Benefits of swamp forests (stakeholders in the haor basin)

Source of fuel

Wave breaker

Human shelter (sun, rains and

storms)

Fish Spawning habitats

Feeding habitats of fish

Fish take refuge

Habitats for birds

Habitats for wildlife

Housing materials and mat making

Human food Fodder

Medicine

Benefits of wetlands

Source: Group works

grazinggrasses

crops

fish

water fruits

wild birds

mollusks

ducks

patipata

Wetlands (haor)

watervegetables

fuel

manure

crabsReeds

peat

wildlifehoney

medicine

Wetlands provide a wide array of “benefits” and “services”

Vulnerability of Haor

• Two major drivers of vulnerability• Natural

• Subsidence • Early flashflood and consequent crop damage• Sedimentation of river/wetland beds – reducing wetland

habitat • Sand carpeting of fertile cropland

• Anthropogenic • Housing and industries in fertile land • Conversion of wetlands in to agriculture and other uses • Grabbing and conversion of kanda land for farming • Overfishing and destructive fishing • Depletion of wildlife – killing and hunting • Loss of swamp forests • Increasing pollution from point and non-point sources

Vulnerability Features (Haor Master Plan, 2012)• Due to remoteness and difficult setting Living Standard is poor

• Haor districts are poor performers in reaching MDGs

• About 30% haor people live below poverty line

• About 29% people are unemployed

• Illiteracy rate is 38%

• Primary school enrolment is 71% but drop out rate is around 44%

• Poorest in road communication network - 11 upazilas are disconnected

• Agricultural work is seasonal (mostly single cropped area)

• High seasonal outmigration to cities

• Average sanitation coverage is 44%

• In many areas ground water is contaminated with Arsenic

• Lowest use of electricity utility

• Health support system is very poor

Policy Gap Analysis : Fisheries Policy


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Policy Gap Analysis : Water PolicyComprehensive but need following issues to consider:

• “Joint research and data sharing” with co-riparian countries is mentioned. However, sharing of “real time rainfall data” of Meghalayanhills is crucial to develop flashflood early warning system lack focus. Besides, erratic rainfall in upper riparian areas and its effect on haorarea (Surmaand Kushiyarariver basins) should get priority in the policy.

• Inclusion of NRCC (National River Conservation Committee) and Department of Haorand Wetland Development in designing and coordinating research and development planning of water resources for the entire haorbasin need special mention in the policy.

• Water allocation for consumptive and non-consumptive purposes (navigation, fisheries, wildlife, irrigation, environment, industry, recreation, etc.) are mentioned but need special focus on biodiversity hotspots of haor (ECA, Ramsarsite, Baikka Beel Sanctuary, etc.). Water stress will be severe in future should get focus in the policy.

• Water pollution due to open hanging latrines in haoris very high which pose threats to environment and human health. Policy should also focus on inventing innovative sanitation techniques that suit the complex flood prone areas like haorregions.

• Public investment in water resources management is mentioned but lack special focus on haorarea that needs large investment to restore and manage water resources for food production, navigation and natural resources including biodiversity.

• The policy covers various aspects of fisheries management.• However, in its objective statement no focus is paid on haor

fisheries though haorhoused an important Ramsarsite and an ECA site.

• The role of DoF in managing RAMSAR site and ECA is not clearly mentioned.

• The objective statement also lack focus on the impacts of climate change on fisheries resources and fish biodiversity in haor area.

Policy Gap Analysis : Environment Policy Comprehensive, covers most of the contemporary issues. However, following issues are suggested to consider in the context of Haorand CC:

• Common property -Facilitate enacting “Common Property Act” as mentioned (common in haor)

• Participatory management -Suggests management of wetlands/waters by involving all local users (methods tested in haorand proven better than traditional system) –but the Jolmohal policy -2009 only permits access of fishers’ cooperatives (contradicts)

• ECA declaration-declares when an ecosystem is already faced much degradation –it is also needed to declare ecosystems that are in good state as “biodiversity hotspots” (common in haor–full recovery of ecosystems take long time)

• Wetland restoration-Many small wetlands facing degradation and encroachment in Haor–policy should support to restore such wetlands and manage under CB-NRM

• Swamp forest -Mentioned about protection of swamp forests –but has weak link with relevant land policies –about 40 acres of DOE protected swamp forested land is allocated to local people and later these are cleared for farming

Policy Gap Analysis : Environment Policy

• Air quality -Mentioned about air quality from emissions of industries and vehicles –but lack focus on emissions from engine boats that are plenty in haorarea

• Food and water –comprehensive but lack focus on haorand CC –haoris single cropped and high risk if CC-induced hazards need urgent policy attention. Water is contaminated with arsenic in many haorareas –need policy directives

• Agriculture –use of agricultural land for other purposes is discouraged –softly articulated, need special attention for haoras there is scarcity of cultivable land and most land are under single cropping –moreover there rapid growth of industries in haorarea –need strong link with industry and land policies

• Health –lack focus on haorwhere health services are inadequate, sanitation is unhealthy, CC impacts are high all these needs special attention in the policy

Policy Gap Analysis : Environment Policy

• Education–lack focus on education in haorwhere due to flooding and wave actions many schools remain in accessible during monsoon moreover during rice harvesting time (April-May) children get involved in rice harvesting and processing activities –need adjustment of summer vacation

• Forest, wetland and fisheries biodiversity–haor need special consideration for swamp forests, hill forests and wetland restoration and management which is not fully supported by the policy. No mention of CC impacts on forest, wetland and fisheries ecosystems and biodiversity of haor area.

• Industry-there is lack of special focus on the sensitivity of haor ecosystems (wetlands and forests) and biodiversity to the rapid growth of industries and associated pollution and disturbances

• Climate change –vulnerability of haor people is highest. Early warning system regarding flashfloods is the key demand for haorbut is lacking in the policy. The issue of wave action and village erosion in haoris not mentioned which is a serious problem that may have been intensified in future CC scenarios

Policy Gap Analysis : BCCSAP

• Pillar-1: Under food security… under bullet 1.2 -it says agriculture research to develop flood, drought and salinity tolerant crop varieties -but haorneeds short duration rice to avoid early flashflood as well as cold tolerant varieties.

• Pillar-2: Comprehensive Disaster management -bullet 2.3 – mention of early warning systems for cyclone, storm surge and flood but lack the same for flashflood of haor.

• Pillar 3: Infrastructure –bullet 3.1 –mention about repair and rehabilitation of coastal, river embankments, and urban drainage systems but no mention of submersible embankment of haorbasin and there early repairing.

• Pillar 4: Research and knowledge management–lack focus on CC related studies for haorregion.

• Pillar 5: Mitigation and Low carbon development-coastal green belt, mangrove, social forestry, etc. are mentioned but swamp forests and other forest PAs in haorare ignored (social forestry relates to adaptation benefits but not mitigation -need adjustment).

• Pillar 6: Capacity building and institutional development –emphasizes capacity buildingof various government agencies, local government, private sectors, civil society but no mention about capacity building of “Department of Haorand Wetland Development”.

Haor Development Initiatives Various government and donor supported initiatives

• Two milestones -i) “Department of Haorand Wetland Development” and allocation of funds and ii) “Haor Development Master Plan –2012” (153 projects)

• Inclusion of key Master Plan recommendations in 7thFYP• Declaration of 12 wetland sanctuaries in HakalukiHaor ECA• Designation and co-management of Ramsarsite, Ecologically Critical Areas• Designation and co-management of Forest PAs, Ratargulswamp forests• Designation and co-management of Baikka Beel Permanent Wetland Sanctuary• Construction of Submersible dykes, roads and improvement road communication

systems • Improvement of water and sanitation systems Wetland and fisheries development

initiatives • Development of rice /crop varieties suitable for haorareas • Village mound protection from wave actions• Mineral resource extractions • Special focus on DRR

Policy Gap Analysis : Haor context

Nine National polices are analyzed:

1. National Environmental Policy -20132. Bangladesh Climate Change Strategy and Action Plan–2009 3. National Water Policy -19994. National Fisheries Policy -19985. National Jolmohal policy -20096. National Forest Policy -19947. National Land use policy -20018. National Agriculture Policy -19999. National Industrial Policy -2016


Annex-3

Policy Gap Analysis : Jolmohal Policy

The policy is mostly leasing focus need to consider following issues to incorporate haor issues:

• How the poor fishers can be given full fishing rights in jomohals

• Suggest measures to manage the fisheries of ECA and RAMSAR site

• Provide directives to adaptive fisheries management under the CC scenarios

• Suggest ways to sustain and replicate co-management systems implemented under different government projects that demonstrated effectiveness of pro-poor and pro-environmental management of wetlands /fisheries in haor areas.

• Suggest directives to address impacts of increased water stress on haor fisheries

Policy Gap Analysis : Forest Policy

• Mentioned about conservation of forests, execution of social forestry and share mechanism with relevant stakeholders, and agro-forestry development.

• However, swamp forest conservation and management in haor area is ignored.

• Besides, aspects of CC impacts on forest and biodiversity including forest dependent communities are also lacking in the policy.

• This policy is now being updated and expected that all relevant issues will be included in the upcoming forest policy.

Policy Gap Analysis : Landuse Policy

• Generic management aspects of various land types and including wetlands are mentioned but no focus is paid to haor ecosystems which is not only the richest capture fisheries but also treated as the mother fisheries need policy attention.

• The policy does not suggest any directives to establish wetland sanctuaries and biodiversity hotspots.

• The policy suggested to initiate fish culture in open waters which is detrimental to capture fisheries production and biodiversity of haor and may cause genetic erosion.

• There is no mention about allocation of water for nature or wildlife in the policy.

Policy Gap Analysis : Agriculture Policy

The agriculture policy aims at making the nation self-sufficient in food and ensuring food security for all.

• However, effective measures to protect boro rice in haor from the damage by the early flashflood did not get emphasis.

• The policy also lack focus on inventing short duration high yielding rice varieties for haor areas to avoid flashflood damage.

• The policy also lack directives for crop diversification in haor basin to reduce the extent of damage.

Policy Gap Analysis : Industry Policy

• This is a recent policy and very comprehensive in nature as it includes a broad spectrum of issues relevant to industrial development in Bangladesh.

• It has a section on environment friendly industries (section-14) that says about conducting EIAs, setting up of ETPs and waste management aspects.

• It also says giving preferential treatment to industries that will address mitigation technologies, CDM (clean development mechanism) and green technologies including adoption of 3Rs (reduce, recycle and reuse) principle.

• However, this section lack focus on CC issues particularly water stress that may cause water use conflicts among the various users including industries.

• Moreover, sensitivity of haor ecosystems and its biodiversity in relation to industries and associated pollution and disturbances are not mentioned which need directives from related national policies.

SDGs and Haor Inclusion of some hoar issues in the national policy and plans can help reaching SDGs in the following areas:

SDG-7: Ensure access to affordable and reliable sustainable and modern energy for all

• DOE demonstrated solar-based irrigation systems in Hakaluki haor, brought over 100 acres of fallow land under rice production supporting food security using clean energy. Promotion of solar home systems in remote haor areas can also help reaching this goal.

SDG-13: Take urgent action to combat climate change and its impacts

• People of haor are the most vulnerable to CC-induced hazards due to its pre-existing contextual issues. Addressing issues like flashfloods, loss of crop, poor infrastructure, poor communication, wave erosion of village mounds, lack of access to fisheries, cultivation of short duration rice varieties and crop diversification can help achieving this goal.

SDG-15: Protect, restore, and promote sustainable use of terrestrial ecosystems, sustainably manage forests, combat desertification, and halt and reverse land degradation and halt biodiversity loss

• Support continuation of existing co-management of wetlands and forest ecosystems that demonstrated improved ecosystem services and biodiversity have very high potential to achieve this goal. This will also contribute to achieve SDG-13 (mitigation and adaptation)

Need for integrated policies on common issues/sectors

Flash Flood

Sand carpeting of crop land

Fish/biodiversity loss

Dyke failure/ overtop

Siltation: Wetland

River

Crop Damage/

lossNavigability

problem

BCCSAP/ Disaster Policy

Forest Policy

Water Policy

Land Use

Policy

Env.

Policy

Fisheries Policy

Agri. Policy Water

Transport Policy

Concluding Remarks

• The world is dynamic and so its all social-ecological systems

• Policies are instruments for keeping all systems in order

• And so the policies are to be dynamic to accommodate such changes

• However, policy change demands solid grounds

• Evidence based salable arguments can influence policies to be responsive to accommodate emerging issues

• Policies are for betterment of social-ecological systems - not the reverse


Media Coverage

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dry season, boro rice (irrigated winter rice - over 80-95 per cent) farming is the major livelihood activity (Huda, 2004). Although farmers having land are the major beneficiaries of rice farming, the landless poor also gain good benefits by engaging in farming related wage laboring, gleaning and getting a share of harvested rice. On an average, each poor household can maintain their family for a period of 3-4 months with the rice they get as share of harvesting, gleaning and cash wages. Income opportunity of haor dwellers also vary by seasons.

In the wet season, when the entire haor region is flooded, fishing in open waters forms the major livelihood options for the majority and most of them represent the poor and marginalized families (DoF, 2009). However, from the later part of the monsoon (October onwards), when water started receding, access to fishing for the local people is ceased by the leaseholders of jolmohals (wetlands) through deploying guards in each wetland/ haor.

As mentioned, major ecosystem services upon which local livelihoods and economy depend include fishing and fisheries related trading, rice farming, boating, hunting and gleaning, wage laboring in sand and stone mines, etc. Some people also earn income by

1. Introduction Haor, a unique ecosystem characterized by its deeply flooded low lying basin at the north-eastern part of Bangladesh located at the foothills of Meghalaya, India. The basin is large and comprised of parts of seven districts, namely Sylhet, Sunamganj, Habiganj, Moulvibazar, Kishoreganj, Brahmanbaria and Netrokona covering an area of 20,022 square kilometers (CEGIS, 2012). There are 373 haors (depressions) of small, medium and large seizes with distinct boundaries (CEGIS, 2012).

Hydrologically, haor region is located in Meghna basin and is unique as most of its area remains under water for 6-7 months of the year (May-October) leaving the villages and towns as isolated islands while in winter all water receded except deeper beels that retains water year round (IFAD, 2010). As such, the haor communities divide the year into two broader seasons, viz. borsha (wet monsoon) and "hemanta" (dry winter) as opposed to other parts of the country where 4-6 seasons can be isolated (Akter 2011). This unique sequence of aquatic and terrestrial ecosystems transforming one after another, have been supporting livelihood opportunities for haor dwellers with its diverse goods and services over years. In the

ENVIRONMENT AND CLIMATE CHANGE POLICY GAP ANALYSIS IN HAOR AREAS OF BANGLADESHDr. M. Mokhlesur RahmanExecutive DirectorCenter for Natural Resource Studies (CNRS)

Keynote Paper on

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development of haor resources in the face of changing climatic factors. Before analyzing the policy gaps, an overview of social-ecological systems and vulnerabilities of haor basin is briefly discussed for wider understanding.

2. Social-ecological Systems of Haor Basin 2.1 Biophysical and socio-economic settings of haor

The haor region covers an estimated area of 1.99 million ha which is approximately 13.5 per cent of country's total area (CEGIS, 2012). According to national census, around 19.37 million people live in haor region which is around 12 per cent of the country's total population (BBS, 2001). Out of 10.57 million hectares of total rice cultivation area of Bangladesh, haor region covers 1.74 million hectares which is 16 per cent of the grand total (CEGIS, 2012). These figures suggest that the land and water productivity of haor is much higher compared to other areas of the country. Although only one rice crop is grown a year due to submergence of land in monsoon, if not damaged by flashfloods or hailstorm, haor becomes self-sufficient in rice and the surplus is exported to feed people of other areas of the country. An estimated 5.25 million metric ton of rice is produced in haor region in damage-free condition which is 18 per cent of Bangladesh's total rice production (CEGIS, 2012). Higher productivity is mainly due to deposition of flood-borne silt contributes high fertility of land that naturally renewed every year. It is not only rice production, haor is also richest in inland capture fisheries production and biodiversity.

Haor is a unique wetland ecosystem which not only subject to monsoon flooding, a large numbers of wetlands (beels) in each haor basin retain water year round that provide suitable dry season habitats for diverse species of fishes and other aquatic biota. Some of the haors are very large (such

hunting migratory ducks in winter when access to fishing is ceased and lessened and opportunities in wage laboring in rice fields is the least (harvest starts at post winter). Although time consuming and difficult to reach emergency services, boat has been the only means of transport during monsoon and the number of boats is increasing over years (IUCN, 2011). Many households also out migrate to cities and sand/ stone mining for income during lean periods. However, of all these, fishing, rice farming and wage laboring are major livelihoods and economic activities of haor dwellers (Sarma, 2010). Haor, in one hand, a rich in aquatic and land resources that support local livelihoods, it is also prone to disaster on the other.

Due to complex hydro dynamics of haor basin, people suffer from multiplicity of hydro-meteorological hazards which is now being exacerbated due to the effects of recent phenomenon of global climate change. As such, the communities and resources systems of the basin are increasingly being exposed to risks and threats at an alarming rate, which if, goes unabated, it is most likely that the haor would face a serious consequence of resource depletion with resultant conflicts among competing resource users, poverty, exclusion of poor and social crisis. However, there exist huge potential to develop and sustain the agriculture and natural resources systems including livelihood enhancement of haor communities through shaping relevant development policies and institutional processes in executing policy directives in a manner that support pro-poor and pro-environmental development in line of attaining the globally set targets of Sustainable Development Goals (SDGs).

With this backdrop, the UNDP-funded SSIP (Support to Sustainable and Inclusive Planning) project has supported a desk review of relevant policies to identify policy gaps in the context of environment and climate change issues of haor areas and suggest ways to support sustainable

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local people who ply boats get benefits from visitors have high potential for operating a managed or guided ecotourism with co-benefits of local livelihoods and biodiversity conservation. Efforts are being made by the FD through its CREL project to initiate co-management approaches to protect and enhance the Ratargul forests and facilitate community engaged, planned and guided ecotourism so that the forest is not harmed while at the same local communities are benefited. Haor is also home for diverse migratory birds.

Vast low lying wetlands with patches swamp forests crisscrossed by rivers and canals of haor provide unique habitats for diverse species of resident and migratory birds including migratory water fowls. Some wetlands from within the haor area have been designated by the national and international experts as "international birding areas" (viz. Tanguar Haor, Hakaluki Haor, Hail Haor, Panger Haor, etc.) and every year the experts conduct bird census and report to a global repository. Although forbidden by state law, some local people hunt birds every year for selling and consumptions for their livelihoods, its intensity is reported to reducing.

Besides, approximately 22 per cent of country's total cattle population and more than 24 per cent of country's total duck production comes from haor region (CEGIS, 2012). Pearl mussels are reportedly available in natural environment of haor. The region is enriched with around 269,005 hectares forest resources, valuable minerals and energy resources (CEGIS, 2012). Besides these renewable natural resources, haor is also rich in having non-renewable resources like natural gas, sands and stones including the country's only crude oil mine is in the haor region.

as Hakaluki Haor, Halir Haor, Pangner Haor, Dekhar Haor, Hail Haor, Tanguar Haor, etc.) and with many perennial wetlands/ beels in them provide home for fish and wildlife including varieties of migratory birds of huge in numbers. The haor region has an estimated fish habitat area of around 967,000 hectares which contributes nearly 20 per cent of the total inland fish production (CEGIS, 2012). According to experts' views, capture fisheries in haor is the richest and treated as the "mother fisheries" of the country as its fish stock get dispersed to wider areas in monsoon and support natural production of fish beyond the haor ecosystem. Haor is one of the major sources of inland fish to various districts of the country including Dhaka city and a large amount of fish from the haor is also exported to aboard mainly in the UK, USA and Middle Eastern countries. There are thousands of poor households in haor area subsist on fishing, fish trading, fish drying and other fish related activities for major parts of the year as their livelihood. Besides, haor also supports the remnants of freshwater swamp forests and reed lands in Bangladesh which is under serious threats of being lost.

Swamp forests and reed land is one of the characteristic feature of haor. This forest is dominated by two species of trees namely hijal (Barringtoniaacutangula) and koroch (Pongamiapinnata) which do not die even if they remain under water for six months during monsoon. There are patches of swamp forests at the edges of wetlands or haors in different areas of the greater haor basin. The Ratargul swamp forest is in Sylhet under the management of Forest Department (FD), but its major areas have been encroached and converted to crop land by the local people. Still the Ratargul forest attract thousands of visitors from different parts of the country ever year and some

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Despite having these diverse resource systems that supports livelihoods of local communities, haor is lagging behind in many development indicators as well as its higher extent of exposure to multiple natural hazards. From the standpoint of contextual issues, vulnerability of haor communities can be considered as the highest in terms of its higher exposure and higher sensitivity to disaster shocks including lower adaptive capacity to address such threats (Toufique & Islam, 2014).

2.2 Vulnerabilities of Haor communities

Haor is a remote setting where due to complex hydro and geo-morphological dynamics, living standards of majority of haor communities is poor. Five haor districts are recognized as the worst performer in the MDG composite index while two other haor districts present below average performance (UNICEF MICS survey, 2009). The Haor Master Plan states that 29.56 per cent of population in haor areas live below lower poverty line. Around 28.5 per cent of haor

population are completely unemployed and the illiteracy level is 38 per cent on average. The rate of primary school enrollment is 71 per cent but the school dropout rate is around 44 per cent in haor region.

Having one of the poorest road communication networks in terms of connectivity with the main land, 11 haor upazilas are not connected with road network system (BHWDB, 2012). Agriculture works are seasonal covering only 4-5 months a year during dry season and mostly a single cropped area.

On an average, 44.25 per cent haor people use sanitary latrines having the poorest coverage in Netrokona (35 per cent). Haor districts have a very low coverage of drinking water source and in many areas ground water is contaminated with arsenic. Sunamgonj has the lowest use of electricity utility with only 17kWh per capita followed by Kishoregonj and Netrokona (BHWDB, 2012). Key features of communities in haor basin is presented in Table 1.

The Haor ecosystems serves as: Biodiversity hotspots and home for varieties of migratory birds and wetland

dependent wildlife. Bangladesh is one of the countries of Central-Asian flyways of migratory birds and

wetlands of haor is one of the key habitats for thousands of migratory birds each year. Hakaluki Haor (Moulvibazar district) and Tanguar Haor (Sunamganj district) are

declared as Ecologically Critical area (ECA) and RAMSAR site respectively. Baikka Beel is the only national wetland sanctuary being managed by community

groups in Hail Haor, Sreemonagl upazila of Moulvibazar district under the guidance of local administration.

Tourist spots - Ratargul swamp forest, Baikka Beel wetland sanctuary, hilly river systems in Tamabil and Jaflong areas, Madhhobkunda forest and water fall, Tea estates, Lawachora, Remakalenga, Satchari and Khadimnagar Forest Protected Areas (PAs) are the prominent tourist spots in the region.

Haor basin act as reservoir for rain and flood water and thereby reduce damage risks of flooding.

Source of recharging ground water. Wetland contributes in pollution abetment and increase soil fertility.

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Drivers of Vulnerability

Natural causes

Features of Vulnerability

Continental plate subsidence causing enlargement of haor area. Empirical data shows that the region has subsided 30-40 feet in the last several hundred years.

Situating just below the hilly terrain, excess rainfall in upstream Meghalaya hills, India (major catchment of haor) results early flash floods in haor area cause huge damage of boro rice.

Natural causes Sedimentation of river and wetland beds with sands and gravels reducing water retention capacity as well as degrading bottom environment of wetlands with consequent effect on productivity and biodiversity

Recurrent sand carpeting of fertile crop land due to flash floods making them unsuitable for crop production and affect food security.

Anthropogenic causes Filling up of haor area for construction of houses, industries and agricultural activities.

Conversion of wetlands and kanda1 land for agriculture and other purposes affecting ecosystem services and biodiversity of haor region.

Overfishing, fishing during breeding seasons, by drying out of wetlands and use of harmful banned gears affecting fish production and biodiversity.

Depletion of wildlife biodiversity- hunting of wetland dependent birds including migratory water fowls. However, this practice is relatively less in wetlands that are under development projects

Faulty leasing system and resultant over-exploitation rapidly depleting the remaining swamp forests in haor basins.

Pollution from point and non-point sources are in increasing trend. Unplanned development work and increasing growth of industries

in fertile land near rivers and wetlands will increase pollution load with consequent adverse impacts on ecosystem health and biodiversity.

1 Raised land along the edges of rivers and wetlands that were used to be covered with swamp forests and reed land in the past which are being rapidly disappeared due to encroachment, conversion and lack of surveillance and used by local people for farming and making settlements which affect the characteristics of haor ecosystems with consequent adverse effects on biodiversity and ecosystem service.

2 Frequently happens during monsoon flooding time - sudden storm with high winds causes strong wave actions that limits boat movements (the only means of transportation in haor during monsoon) and erodes village mounds.

reported to be severe in many areas of haor basin. However, various studies, workshops, conventions are organized by NGOs and civil society organizations with the engagement of member of parliaments (MPs) and journalists, haor started to get attention from the government to facilitate development interventions.

Flashfloods and Afal2 (strong wave during monsoon inundation) for few days are common natural disaster in haor region that have a yearlong affect. On average, flashfloods hits haor areas and destroy crops every 2-3 years (IUCN, 2009; CCC, 2009; DDM, 2014). Village erosion and Arsenic contamination of ground water are also

Table 1: Key features of vulnerability of haor communities and ecosystems

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3. Haor in the National Development Strategies 3.1 Institutional development

Upgradation of "Haor and Wetland Development Board" and reconfigured it in to "Department of Haor and Wetland Development (DoHWD)" in 2014 is the testimony of seriousness of the government on haor development issues. The aim of

formation of this new department is to achieve a holistic and sustainable development of haor and wetlands resources of the country including the population dependent on these natural resources. Although the formation of DoHWD is very recent (2014), its journey was initiated four decades back and had to pass through various hurdles and finally has taken this shape. Following are the timeline of evolution of current DoHWD:

1974 - Realizing the necessity, the father of the nation Bangabandhu Sheik Mujibur Rahman first instructed to form a Haor and Wetland Development Board aiming at designing strategies to develop the social-ecological systems of the greater hoar basins.

1977 - Through issuance of government order, "Haor and Wetland Development Board" was constituted on 4th February 1977 can be considered as the first milestone in the road to haor development.

1982 - After five years of journey, the then military government abolished the board on 21st September 1982.

2000 - After eight years of official closure, with the initiative of Prime Minister Sheikh Hasina, the "Haor and Wetland Development Board" was formed under the Ministry of Water Resources.

2015 - With a view to enhance the capacity and widen the scope, government has upgraded the board and renamed as the "Bangladesh Department of Haor and Wetland Development (BDoHWD)" on 4 June 2015.

3.2 Haor in the Seventh Five Year Plan (7th FYP)The recommendations of Haor Master Plan is given due consideration in the 7th FYP for the first time and thus, it is envisaged that the implementation of Haor Master Plan will get momentum from now onwards. The 7th FYP states "the overall objective of disaster management during 7th FYP is to build resilience of the poor and reduce their exposure and vulnerability to geo-hydro-meteorological hazards, environmental shocks, man-made disasters, emerging hazards and climate related extreme events to make our cities, human habitat and resources safe, resilient and sustainable".

According to 7th FYP, priority will be given to address the problem areas (like hills, coastal, haor and barind areas) that are more

prone to weather vagaries and that have proportionately higher populations of poor and vulnerable people. While the National Agricultural Research System (NARS) institutes will generate the demand-led agricultural technologies (varieties and management practices) and information and scale-up improved technologies including validation trials. One of the major researchable areas by NARS institutes is addressing the problem areas (like hills, coastal, haor, beels, and char land and barind areas) that are more prone to climate-induced shocks. The 7th FYP plans on initiatives for Inland capture fisheries focuses on conservation and sustainable management and emphasizing on fish availability in the rivers, estuaries, beel, haor, baor, Kaptai Lakes and the Sundarbans where fisheries are on declining trend.

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Development area Number of proposed projects

Total projects

Short term (1-5 years)

Medium term (6-10 years)

Long term (11-20 years)

1.Water resources 8 7 1 0

2.Agriculture 20 7 10 3

3.Fisheries 22 3 9 10

4.Pearl culture 1 0 0 1

5.Biodiversity & Wetland Management 9 3 6 0

6.Forest 6 0 0 6

7.Livestock 10 2 8 0

8.Water supply and Sanitation 2 2 0 0

9.Transportation and Communication 15 10 5 0

10.Education 7 4 3 0

11.Health 16 8 8 0

12.Housing and Settlements 1 1 0 0

13.Social facilities 6 0 5 1

14.Tourism 13 5 4 4

15.Industry 9 9 0 0

16.Power and Energy 4 0 4 0

17.Mineral Resources 3 3 0 0

18. Capacity building of HWDB 1 1 0 0

Total 153 65 63 25

Table 2: Recommended projects identified under the Haor Development Master Plan (2012-2032)

4. Policy Gap Analysis in the context of Haor Ecosystems 4.1 Policies under review

This section presents the outcomes of policy gap analysis of selected national policies relevant to haor basin. In doing so, a total of 13 different policies have been analyzed that have relevance to social-ecological issues of greater haor basin (Table 3). This table also shows the age of these policies in terms of year of enacting to have an understanding of their relevance to current /emerging issues. Each of these policies are also contrasted,

whether promulgated earlier or later, in relation to other national policy instruments (viz. ECA) and some relevant international treaties (viz. Ramsar Convention, CBD and CMS) ratified by the Government of Bangladesh (GoB) at different points of time (Table 3). It is apparent that the national policies those were formulated after the ratification of international treaties, have had the opportunities to incorporate required and relevant aspects. With this backdrop, this assessment also reviewed the national policies to the extent have incorporated various issues and aspects of relevant international treaties and conventions.

3.3 Master Plan of Haor Area

Government has developed a "Haor Development Master Plan and a Database" to ensure sustainable development of 2 crore inhabitants of haor areas (BHWDB, 2012). Under this plan, 153 projects are

proposed to implement under 18 thematic areas (including capacity building of Haor and Wetland Development Board) at different time scales on a priority basis over a period of 20 years starting from 2012 (Table 2).

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3 If a national policy is formulated before the ratification of any international treaty/policy instrument (CBD, Ramsar, etc.), then its scope to incorporate relevant aspects from international treaties while such policies that that are formulated after the ratification of international treaties can incorporate relevant issues in the policy

Table 3: Key data of Relevant National Polices that are analyzed in this assessment

Name of policy Age of

policies as of 2016

Polices are formed before/after1 some national and international policy

instruments ECA 1999

RAMSAR 1992

CBD 1994

CMS 2005

1.National Environmental Policy-2013 3 years After After After After 2.Bangladesh CC Strategy and Action Plan-2009 7 years After After After After

3.National Water Policy-1999 17 years Same After After Before 4.National Fisheries Policy-1998 18 years Before After After Before 5.National Jolmohal Management Policy-2009 7 years After After After After 6.National Forest Policy-1994 22 years Before After Same Before 7.National Land Use policy-2001 15 years After After After Before 8.National Agriculture Policy -1999 17 years Same After After Before 9.National Food Policy -2006 10 years After After After After 10.National Women Dev. Policy-2011 5 years After After After After 11.National Disaster Management policy-2015 1 year After After After After 12.National Industrial Policy-2016 Current After After After After 13.Gazette on “Department of Haor and Wetland Development”-2016 Current After After After After

4.2 Analytical Framework

This has been a desk review to identify gaps in various national policies relevant to the issues and features of haor ecosystem and its unique social-ecological systems focusing on its environment and climate change issues. In general, policies are treated as guiding principles that facilitate in governing the

overall planning and institutional processes in (or responsible for) the management and development of any resource setting in line of the national development goals including compliance of relevant international treaties and agreements. With this backdrop, four broader threads have been considered in analyzing the gaps of national policies in the context of haor ecosystems.

First, to what extent the policies have addressed various issues and features of haor ecosystem that are unique and require explicit policy directives to facilitate development. For examples, uniqueness of the geomorphological issues, hydrological features, natural resources systems, livelihoods, types of disasters and risk reduction, climate change impacts, etc.

Second, to what extent the relevant national policies have addressed climate change and natural disaster issues of haor. Such as early flashflood, wave erosion of village mounds, hail storm, crop damage, etc.

Third, to what extent these policies are coherent in addressing various issues that cross cut multiple sectors and sub-sectors and need multiple policy responses. For example, "water management" issue cross cuts with various policies like agriculture, fisheries, environment, health, navigation, industries, etc.

Finally, to what extent these policies have incorporated various relevant international treaties that the government of Bangladesh has ratified to foster inclusive and sustainable development giving due consideration to regional and global commitments. For example, adoption of Ramsar principles in managing Tangua Haor.

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Haor

Relevant Policies (13 policies - enviornment, CC,

disaster, water, jolmohal, landuse, agriculture, fisheries, forest, food,

health, women, industry,international treaties)

Climate Change andDRR issues of Haor

(Early flashfloods, Wave erosion,

Vulnerability, Adaptation, Mitigation, DRR)

Haor Environment

(Water, sanitation, agriculture, fisheries, bidoversity, Ramsar site,

ECA, swamp forests, tropical green forests, and liveihoods)

of haor ecosystems. Apart from the definition, some other issues are also important and need policy directives.

Hoar basin comprises many large natural wetland ecosystems some of them are shared between more than one upazilas and some wetlands are shared between more than one districts. In such cases, management and use of resources and administration of laws and acts face difficulties. For example, Tanguar Haor Ramsar site is located under one district (Sunamgonj) but it spreads over two upazilas which often create problem in taking local level day-to-day decisions regarding management and administration. However, the problem is partially managed through giving a single management directive by the district administration since it is in within the jurisdiction of one district. However, in case where a single wetland located in two districts and several upazials, getting right management directives to resolve urgent management issues become very difficult. For example, the Hakaluki Haor ECA is located in five upazilas under two districts (Moulvibazar and Sylhet). Although, ECA management guideline has given a directive of managing the Hakaluki haor as a single entity but operationally it is proven to be difficult.

This review is based on desk review as well as recommendations made by different stakeholders attended the field level workshop organized in Sreemongal on 29 August 2016. Apart from the central level policy stakeholders, the workshop was attended by upazila and district level government officials, local community representatives, local government bodies and media and NGOs representatives.

5. Policy Gap Analysis

5.1 Definition of Haor and some related issues

Current definition of haor used in these policies are incomplete and thus failing to portray a clear picture of its biophysical and socio-economic dimensions and the uniqueness of haor ecosystems and its complex social-ecological dynamics is not visualized. The definition only says the physical aspects of the haor while missing its social-ecological features and seasonality dimensions that characterizes the haor as a unique human-environmental setting having unique spatio-temporal dimensions governed by a complex hydrodynamics of the area. It is suggested to improve the definition of haor in a way that it gives a clear views of the uniqueness of social-ecological systems

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Category

1. Land

Article number/references Comments

3.1.4: Land zoning by ecosystems and ecoregions and

3.1.5: Land use zoning consistent with different ecosystems of the country.

3.1.8: Plantation/ afforestation to protect river bank erosion and landslide (expand green cover) using local tree varieties

3.1.9 Stopping of hill cutting and designing development plan that do not harm hill ecosystems.

3.1.10 State resources viz. rivers, canals, beels, haors, baors, etc. should be identified and protected as common property resources (CPRs) and their status cannot be

Haor is unique and rich ecosystem and a different ecoregion which needs special consideration in the policy as it is biophysically and socioeconomically sensitive which is housed nationally and globally important faunal resources.

Being high rainfall and flash flooding area, haor is prone to erosion of village mounds. It comprises diverse micro habitats viz. grassland, reed land, swamp forest, kanda lands, seasonal and perennial wetlands, distributaries, canal, etc. By planting swamp species (hijal, koroch, etc.) along wetland edges (kanda land), there exits high potential to expand green cover in haor basin which is ignored in the policy.

Leasing of hills to private parties and clearing hill forests and hill cutting are all

Natural resource management issues are dynamic in nature as it has to address many emerging issues that come up from time to time. For example, in 2010 Ministry of Land (MoL) declared 12 wetlands in Hakaluki haor as sanctuaries and asked the district administration to implement the instruction. However, the district administration does not have funds and capacity to establish sanctuaries nor there is any comprehensive guidelines available as to how establish and operate wetland sanctuaries. Another issue of khas land distribution to landless within the sensitive wetlands. In Tanguar haor Ramsar site landless people were given khas land for rice cultivation on yearly leasing basis but this practice has negative implications on Ramsar site as some land are from within core areas and cause disturbances to ecosystems functions. Besides, the national policies should also need to accommodate relevant international treaties and conventions such as SDGs (sustainable development goals), Sendai Framework on disaster management and various agreements related to climate change and CBD (Convention on Biological Diversity) and so forth.

As such, all national polices should be regularly updated to accommodate various emerging issues that need policy directives. Table 3 shows that 5 out of 13 national policies are found very old as these were formulated before 15 years or more (policies on water, fisheries, forest, land use and agriculture) which need immediate updating. Outcomes of above mentioned policy analysis in line of the unique features of haor are briefly described in the following sub-section.

5.2 National Environmental Policy 2013The Bangladesh National Environmental Policy is formulated in 2013, can be treated as recent policy aimed to safeguard environmental resources of the country encompassing various relevant contemporary issues. This policy comprises twenty three different relevant issues seemed having comprehensive coverage of relevant environment issues that cross cut different sectors. However, this review is focused on haor area thus while analyzing the policy, we tried to relate the policy aspects in line with corresponding features /issues of the haor basin of the country (Table 3).

Table 3: Different issues of the environmental policy-2013 and comments made existing gaps

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Category Article number/references Comments

changed or re-classified. A CPR Act should be enacted to protect all types of CPRs.

these harming hill ecosystems in haor area need special focus in relevant national policies.

This statement to protect CPRs is much appreciated, if properly executed. However, besides wetlands, there are other land types viz. kanda land and swamp forested land in haor basin should also be treated as CPRs and need protection but is ignored in the policy. Moreover, ecosystems that are managed under co-management systems have demonstrated positive social and ecological outcomes should be protected as CPRs and managed in a sustainable manner to achieve the relevant SDGs but this issue is ignored in the policy. There is also lack of initiative in preparing and enacting CPR rules. Jalmahal leasing policy 2009 and leasing of other resource systems viz. swamp forests, river sections, sand mine, etc. are contrary to protecting CPR and reaching SGDs.

3.2.9 - Adopt Integrated Water Resource Management (IWRM) principle with a view to conserve and rational use of wetlands and to ensure environmental management and conservation of biodiversity and all local relevant stakeholders should be involved.

3.2.16 - Massive plantation/ afforestation in watershed to control bank river erosion and early flashflood.

3.2.20 - Ecosystems that are severely affected/ degraded should be declared as Ecologically Critical Area (ECA) and Protected Area and measures to be undertaken to restore such ecosystems

3.2.24 - Plan and implement actions for conservation and development of reed and swamp forests

3.2.34 - Considering the release of polluted water and wastes, sets of guidelines to be developed and adopted to identify new industrial zones in the country.

3.2.38. Instead of allocating dead or dried up rivers and canals for cultivation/ farming or infrastructural development, these rivers and canals should be restored and maintained.

This policy directive is enabling and long demanding. However, wetland management policy-2009 of the MoL said only the registered fishers' cooperatives will get the access to wetlands (fishing rights), which contradicts with the environment policy 2013. This policy should have link with water policy to ensure implementation of IWRM that requires involvement of other sectors viz. agriculture, fisheries, livestock, industry, tourism, navigation, etc. need to be explicit in relevant policies.

Watershed of haor mostly falls in Meghalaya Hills, India which needs transboundary effort but it is missing in the policy. This issue should also be included in other relevant policies (viz. land, forest, disaster and water policies).

ECA declaration and management is a good initiative but ECAs are declared when an ecosystem has already faced degradation. It is good to save the ecosystems reaching tipping points. It is however, important to declare existing ecosystems that are in good state as "biodiversity hotspots" (BHs) and take measures to protect them from degradation. This aspect is lacking in the policy.

This is relevant to haor ecosystem. However, swamp forests leased, mismanaged and mostly degraded. This clause is not included in Land policy and thus about 40 acres of DoE protected swamp forest in Hakaluki Haor ECA has already been allocated to people and who then cleared the forest for agriculture. Similar cases are happened in other parts Haor greater haro basin.

Some haor are declared as ecologically critical areas (ECAs), Ramsar site, swamp forests, biodiversity rich areas but relevant policies lack clear indication to safeguard these ecologically sensitive ecosystem allows perception based decisions.

2. Water resources

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This rule is largely ignored and thus many semi-degraded rivers/ canals are encroached and converted to fish ponds, cropland, settlements, etc. Various relevant policies, (land policy, agriculture policy) should include this clause to protect rivers and canals of the country. Wetlands support both adaptation and mitigation to CC impacts but these values are not mentioned in the policy nor is any directive given on this aspect in other relevant sectoral policies.

Comprehensive towards air quality and focused on control of emissions from industries and motor vehicles.

There is no mention about emissions from a huge numbers of engine boats in haor area which need to be brought under mitigation measures but is ignored in the policy.

3. Air

Generic aspects on overall food and water issues are mentioned.

Policy ignores the issue of high arsenic contamination in ground water is in many places of haor basin. In general, ground water table is low in haor thus tube-well setting is costly that needs supports from DPHE.

Haor is largely a single cropped area (rice) and thus making availability of diverse food items to address balanced nutrition is difficult. Policy directive is needed for haor in this regard which is currently missing.

4. Food andpotable water

3.5.7 - It says that wasteland and degraded forestland should be restored and ensure their proper utilization.

3.5.9 - Fertile agricultural land cannot be used for non-agricultural purposes... Construction of industries, commercial facilities and settlement is "discouraged" in cultivable land

3.5.14 - Issues of climate change and environmental changes related risk to agriculture and development of flood, drought, salinity tolerant crop varieties are mentioned

The policy lacks definition of "wasteland" which may create confusion and wrong designation of land. It is likely that in the name of wasteland, many critical wetlands may have been converted and degraded. It is also not clear whether the restored forestland would be used for agricultural or forests? Apart from adaptation, forest also mitigate CC by sequestering carbon and the policy lacks ecosystems services that forest offer for human well-being and marinating natural balance.

This issue is weakly articulated. By the word "discouraged", one can convert fertile land for other uses as there is no hard binding by the policy. Over the last couple of decades, hundreds of hectares of fertile land in haor have been converted to industries. This trend will affect the biodiversity/ ecosystems of haor basin.

Major problem of haor related to agriculture includes i) single crop lands (boro rice), recurrent damage of boro standing crop by the early flashfloods, iii) degradation of fertile crop land due to sand carpeting which need policy support to overcome. Especially short duration boro rice variety and crop diversification are the prime demands of Haor communities which is ignored in the policy.

No remedial measure is suggested in the policy to protect haor from industrial pollution.

No special measure is suggested to farming system that are resilient to the unique hydro-dynamics of haor.

5. Agriculture

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Category

6. Health

Article number/references Comments

Focused on taking precautionary measures in all health related programs and actions with due consideration to environmental issues across sectors.

Adoption of sanitation is less in Haor and have higher prevalence of diseases and overall medical facilities are scanty in haor due to remoteness. However, the policy ignores the special needs for health care for haor. Effects of CC is also high in haor areas have implications on health. The policy did not touch upon the uniqueness of haor and special needs for health care facilities in this difficult setting nor does it give clear directives on climate change and its impacts health of haor dwellers.

3.7.1 to 3.7.14 - Comprehensive recommendations are made on this aspect. It also says in urban planning (3.7.14), all natural resource bases should be protected and to be used in a pro-environmental manner.

No measures suggested for housing in haor areas which is highly susceptible to recurrent wave erosion in monsoon in the policy nor any remedial measure suggested. In urban planning, protection of natural resource bases are mentioned but it lacks focus on haor ecosystem which supports diverse biological resources.

7. Accommodation,Housing andUrbanization

3.8.1 to 3.8.9 - Generic education and mass awareness aspects are mentioned including climate change issues

No mention about special need in education system for haor which is effected by double burden of flooding (early flashflood followed by monsoon flood). Due to high susceptibility of damage caused by flashfloods, households involve all active family members including school children in rice harvesting and virtually the schools remain closed. Therefore, summer vacation in schools can be re-scheduled to match with rice harvesting time. There is no mention about awareness generation among communities on conservation of ecosystems and biodiversity of haor basin.

8. Education andMass Awareness

3.9.1 to 3.9.11- The policy elaborately mentioned about various aspects of forest conservation and management including co-management, forest zoning (core zone, buffer zone), including ECA and PA management and wildlife and threatened species conservation.

Haor supports the remaining freshwater swamp forests and reed lands in the country which is being rapidly disappearing due to over exploitation, encroachment, leasing system which needs urgent protection measures but the issue is missing in the policy. No mention about CC impacts on forest resources and biodiversity. There is Ramsar site (Tanguar Haor) and international birding sites in haor proper management and protection of such sites are also missing in the policy.

9. Forest

3.10.1 to 3.10.10 - Broader aspects of conservation of biodiversity, ecosystem, ECA, PA and biosafety issues are mentioned

The policy lack focus on CC issues and paying special measures to ensure biodiversity conservation and biosafety of haor ecosystem. Huge numbers of migratory birds visit haor every winter and there is risk of disease (bird flu) transmission between wild and domestic ducks. This need explicit mention in the policy.

10. Biodiversity,ecosystemconservationand Biosafety

3.11.1 to 3.11.11- There are hills and hillocks in greater haor region. Generic management aspects of hill ecosystems are mentioned in the policy.

CC issues and impacts on hill ecosystem is ignored. Due to prolonged drought, hill streams are being dried up causing water stress for wildlife, forest, agriculture and wetlands, this could create severe impacts if no urgent measure is taken. Erosion of hills due to unsustainable use, wetlands are being silted up and affect wetland ecosystems and biodiversity of haor.

11. HillyEcosystems

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Besides, issue of using herbicides in tea gardens affect land, water and harm ecosystems & biodiversity is missing in the policy.

3.12.1 to 3.12. 15- Wetlands, coastal and marine fisheries issues are mentioned. Fish habitats (wetlands) cannot be reduced and wetland are to be rehabilitated

3.12.9 Harvesting of mollusks, turtles, tortoises, crabs and other threatened species is forbidden

3.12.16- Development and protection of livestock grazing areas are mentioned.

Haor is richest in inland fisheries production and biodiversity and treated as mother fisheries that needs special focus which is missing in the policy. Besides, effects of climate change on fisheries and adaptive fisheries management aspects are also ignored.

Catching of river dolphins from haor wetlands is ignored

During winter haor provides livestock grazing fields on kanda lands but unregulated grazing damages/disturbs floral and faunal biodiversity is missing in the policy. Widespread duck grazing in winter in haor and protection of disease

12. Fisheriesand livestock

Irrelevant and thus not considered 13. Coastal andMarine ecosystem

3.14.1 to 3.14.12 - Various environmental issues, land use policy, Clean Development Mechanism (CDM), etc. relevant to industries are mentioned.

CC-induced intense high rainfall, frequent flooding, flash floods, drought and water stress, etc. are ignored. The policy also lacks impacts of growing industries in haor ecosystems. Special mentions are needed in the policy to protect natural ecosystems viz. PAs, ECAs, Ramsar site and biodiversity hotspots in Haor basins.

14. Industry

3.15.1 to 3.15.11- Environment and CC issues and green and renewable energy aspects are mentioned. Conduct complete EIA of any energy exploration and extraction projects (3.15.5).

Mentioned about (3.15.11) taking precautionary measures (local peoples' values and customs, local environmental sensitivity) in mining of energy resources.

Promotion of solar/ renewable energy in remote haor area is of utmost importance should be focused in the policy. Currently extent of energy adoption is less in haor than other areas.

The policy did not explicitly mention about taking special measures to sensitive ecosystems and designated protected areas (ECAs, PAs, Ramsar sites, threatened species) while exploration and extractions of energy and mineral resources (including sand and stone mining activities).

Policy lacks the issue fuel wood collection from the core zones of various forest PAs in Haor basin.

15. Fuel andMineral resources

3.16.1 to 3.16.11- Suggested for conducting EIA in road development, pollution control. Emphasizing use of rail and water ways and use of mass transport.

Since boat is the major means of transport during monsoon, boat safety issues are missing in the policy given the fact that every year boat capsize cause human deaths. Besides, benefits of submersible roads for dry season use which is compatible to haor ecosystems should be expanded but is missing in the policy.

16. Communicationand Transportation

3.17.1 to 3.17.5 - Many good points are attached in the policy but most are generic about ecotourism aspects. Need for sectoral integration in planning ecotourism is also mentioned

Special attention should be paid relevant to operating ecotourism in haor ecosystem. Particularly, while visiting ecologically sensitive areas, such as Ramsar site, ECA site, Baikka Beel Sanctuary, Forest-based wildlife sanctuaries, Ratargul swamp forests, etc. which are missing in the policy.

17. Ecotourism

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3.18.1 to 3.18.7- The policy emphasizes on maintaining balance between population and available natural resources including engagement of women and youth in development processes.

Haor is a geo-morphologically difficult setting, high poverty and large gaps between rich and poor as well as lack of access to resources affect human resource development which needs special attention in the policy.

3.19.1 to 3.19.11- Various relevant aspects of CC, adaptation and mitigation are mentioned and suggested for conducting vulnerability assessment of agriculture, fisheries & livestock, forests, health, coastal zone, infrastructure. Preparing and implementing CC master plan to adverse effects of CC.

The policy ignores issues of future increase in intensity and frequency of early flashflood and consequent crop damage under CC scenario as well as intensification of flooding and wave action and extent village mounds erosion.

Since the extent of community vulnerability is the highest in haor regions, it demands special focus in the policy to address such pre-existing contextual vulnerability factors. Ecosystems vulnerability of haor like Ramsar site, ECAs, forest PAs need explicit mentions in the policy.

19. Tacklingimpacts ofclimate change

18. Population

3.20.1 to 3.20.9- Disaster issues are mentioned in details with indication of CC adaptation, industrial development related disasters, early warning systems, rehabilitation of disaster affected ecosystems.

Haor is prone to multiple hazards (flashflood, monsoon floods, wave erosion, drought, cold spells, hail storms) that affect local livelihoods and assets need special attention but is ignored in the policy. Haor deserves special policy attention in comprehensive disaster management planning and actions being a rich but fragile ecosystems.

20. Disastermanagement

3.21.1 to 3.21.8- Studies and researches are targeted to various environmental issues in the policy including setting environmental quality standard, clean technology development, use of GIS.

21. Science Research, Information and communication Technologies

The policy lacks various pertinent issues of haor need research viz. i) impacts of climate change on social-ecological systems, development of stress tolerant and short duration crop varieties, pro-poor access to jomohals, CC and non-CC threats to ecosystems, effects of sand and stone mining on river ecosystems and biodiversity, ecotourism, etc.

Not considered 22. Other pollution

3.23.1 to 3.23.8- The issues of green economy, green products low carbon development and pro-environmental economic growth are emphasized.

23. Economic Development

The policy lacks focus on haor areas and its fragility. Directives on "economic valuation" of some important haors (Tanguar Haor Ramsar site, Hakaluki Haor ECA, Hail Haor, etc.) and forest PAs for protection of these fragile resources are also ignored. Issues of development of alternative livelihood options for poor to reduce pressures on natural resources of haor is also ignored.

and knowledge management, v) mitigation and low carbon development, and vi) capacity building and institutional development. In mentions three major climate related hazards viz. flood, cyclone and drought.

Comments The strategy largely ignored the issue of

5.3 Bangladesh Climate Change Strategy and Action Plan - 2009

BCCSAP-2009 is national strategy document delineated action plans to address climate-induced threats at national scale. It has six pillars viz. i) food security, social protection and heath, ii) comprehensive disaster management, iii) infrastructure, iv) research

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flashflood and wave erosion of village mounds that affect the agriculture and livelihoods in 7 districts respectively. However, the issue of flashflood is very lightly mentioned without mentioning haor that stated as "Flash flood can also be a problem in the more hilly north-eastern and south-eastern regions of the country" (BCCSAP, 2009:9).One can interpret this statement as "flashflood is still not a big problem". It is also underlined that that in haor area, flashflood happens in plains not in hill areas while in the southeast it happens both in both hills as well as in plains need to be clearly mentioned. Moreover, the flashflood and their damage extents and potentials also vary significantly between haor and southeastern hilly areas needs to be mentioned in the policy to effectively design and plan preferential measures to address these problems through policy guidance/directives.

Pillar-1: Under food security… under bullet 1.2 - it says agriculture research to develop crop varieties that are tolerant of flooding, salinity and drought but the demands of haor people of "short duration" rice varieties to avoid early flashflood was ignored (BCCSAP, 2009:27). Moreover, haor is under monoculture of rice which is more susceptible to flashflood damage. The policy therefore highlights on crop diversification with rice and non-rice crops to avoid or reduce damage risks.

Pillar-2: Comprehensive Disaster management - bullet 2.3 - mentioned about early warning systems for cyclone, storm surge and flood prone area but it lacks focus on warning system to address "early flashfloods" which has long been a recurrent disaster in haor regiona great concern for the haor communities.

Pillar-3: Infrastructure - bullet 3.1 - emphasizes on repairing and rehabilitating existing infrastructures such as coastal embankment, river embankments and drainage systems and urban drainage system but no mention about repairing and

strengthening of "submersible embankments" of haor basin which is the lifeline for the haor communities as these dykes save their rice crop (boro rice) from early flashfloods.

Pillar-4: Research and knowledge management - generic research topics are mentioned seemed comprehensive (on hydrology of Ganges-Brahmaputra-Meghna basins, climate change vulnerability, climate change-poverty-livelihoods-food security-health nexus, etc.) but it lacks focus on climate-disaster hotspots of the country like haor, coast, barind, etc. For the haor region, research should focus on transboundary water management issues and early rainfall based modelling is a necessity to reduce the water related hazard risk reduction.

Pillar-5: Mitigation and Low carbon development - coastal green belt, mangrove afforestation, social forestry, clean coal etc. are mentioned but restoration and protection of "swamp forests" in haor basin as well as strengthening co-management of forest PAs in haor areas are not explicitly mentioned which are specific and unique to haor environment.

Pillar-6: Capacity building and institutional development - the strategy emphasizes capacity building of various government agencies, local government, private sectors and civil society organizations but capacity building of "Haor Development Board" was not explicitly mentioned as this newly formed government agency need huge institutional capacity building support and patronization.

5.4 National Water Policy 1999Under the climate change scenario, it is predicted that water resources in Bangladesh will face a major challenge. Erratic rainfall, prolonged drought, intermittent cold spells and flooding will affect food production, natural resource degradation and livelihood insecurity. Being an aquatic ecosystem, land and water based productivity of haor is highly influenced the complex water dynamics.

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Apart from the effects of climate change, rising population, rapid industrial and urban growth also exerting pressures on water resources in many ways. Increased water withdrawal for irrigation/ food production and industries, dumping of untreated effluents from industries, agriculture and urban settings are key such causes. This trend is increasing which means haor ecosystem would face water related vulnerabilities with concomitant negative effects on its social-ecological systems.

In this backdrop, review of the National Water Policy -1999 which was prepared 15 years back is crucial. As can be seen that the water policy was comprehensive and set forth sixteen important areas for

considerations. These include, i) river basin management, ii) planning and management of water resources, iii) water rights and allocation, iv) public and private involvement, v) public water investment, vi) water supply and sanitation, vii) water and agriculture, viii) water and industry, ix) water, fisheries and wildlife, x) water and navigation, xi) water for hydropower and recreation, xii) water for the environment, xiii) water for preservation of haors, baors and beels, xiv) economic and financial management, xv) Research and information management, and xvi) stakeholder participation. Reviewing the national water policy in line of CC scenario as well as haor ecosystem features, following comments are made:

Comments

The water policy mentioned major issues relevant to joint work with co-riparian countries with focus on "joint research and data sharing" with regard to river water management, environmental conservation, flood warning system development seemed appropriate. However, sharing of "real time rainfall data" of Meghalayan hills is crucial to develop flashflood early warning system need emphasis. Besides, erratic rainfall in upper riparian areas and its effects on haor area, particularly management of Surma and Kushiyara river basins should get priority in the policy.

There is need for inclusion of NRCC (National River Conservation Committee) and Bangladesh Department of Haor and Wetland Development in designing and coordinating research and development planning of water resources for the entire haor basin.

The policy mentioned about water allocation and rational use for consumptive and non-consumptive purposes (navigation, fisheries, wildlife, irrigation, environment, industry, recreation, etc.). However, policy ignores critical aspects of haor and its biodiversity hotspots, viz. i) ecologically critical area (ECA - Hakaluki Haor), ii) Tanguar Haor Ramsar site iii) Baikka Beel Wetland Sanctuary, and iv) Water for forest protected areas (PAs) and wildlife. It is expected that the under climate change scenario, water stress situation would increase which cause conflicts among various competing water users viz. fishers (fisheries) and farmers (crops) need to be incorporated in the policy.

Water pollution due to open hanging latrines in haor is very high which pose threats to environment and human health. Policy should also focus on inventing innovative sanitation techniques that suit the complex flood prone areas of haor basin.

Under the CC scenario, both water stress and flooding events could be intensified in haor that could increase the damage risk of rice and other assets and affect the natural resources which need special focus but is missing in the policy. Haor is ecologically and hydro-meteorologically sensitive, unplanned establishment of industries may pose serious threat to ecosystems and biodiversity of haor basin. Relevant policies should focus on restricting industrial growth in ecologically sensitive areas of haor basin.

Public investment in water resources management and developed is mentioned but lack special attention in haor area. Haor needs large investment to restore, sustain and manage water resources for food production, navigation and natural resources including biodiversity.


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aquaculture through applications of appropriate technologies (11.11 Kha).

Comments

In the objective statement there is no explicit focus on haor fisheries though the haor is the richest in land capture fisheries in Bangladesh and housed a Ramsar site and ECA wetland. It was also not mentioned what role the DoF (Department of Fisheries) should play in managing these nationally and internationally important wetland sites. The objective statement also lacks focus on the impacts of climate change on fisheries resources and fish biodiversity of haor and management interventions to address those effects.

Clause 5.2.1 of the policy says that "production based management" should be adopted in open waters or wetlands involving real fishers only but instead "ecosystems based co-management approaches" should be adopted by involving local user communities including real fishers.

Regarding establishing fish sanctuaries the policy says DoF will be mange the sanctuaries but instead community-based organizations (CBOs) should be given the management rights where DoF should oversee and provide technical and policy guidelines and this should be explicitly mention in the policy .

The policy ignores mentioning about strictly following the "DoF guidelines on open water stocking". It is noted that indiscriminate stocking of wetlands /open waters can cause serious implications on fish genetic diversity as well as spreading of fish diseases.

The policy also ignores that issue of mother fisheries management and a guideline should be adopted in this respect to sustain the fish production and biodiversity of haor ecosystem.

5.6 National Jolmohal Policy 2009

Although the current Jomohal policy intends to give preferential access to fishing in

5.5 National Fisheries Policy 1998

The fisheries policy has covered various relevant aspects of fisheries management. Special focus was paid on four areas of fisheries and aquaculture such as i) inland open-water fisheries conservation, management and fishing (extraction), ii) inland closed water aquaculture and management, iii) coastal shrimp farming and aquaculture, and iv) marine fisheries conservation, management and fishing (extraction). Besides, 12 different sub-polices on fisheries are also delineated of which fisheries related environmental policy is considered for review. Among the four major subject matters, marine fisheries is not considered in this review.

Inland open-water fisheries conservation, management and fishing (extraction) - this sub-sector of fisheries is highly pertinent to haor areas as it mostly comprises open water bodies in the forms of rivers, haors, beels and seasonally inundated floodplains. This sections of the policy mentioned several management actions viz. i) avoidance of adverse effects on fish and fish habitats by infrastructural development projects (5.1), ii) cancellation of traditional "revenue-based" water-body leasing system and initiate "production-based" management systems with involvement of real fishers' communities (5.2.1), and iii) establishment of "fish sanctuary" in suitable water-bodies as identified by the local fishers and local government which will be management by the DoF (5.2.2), iv) stop catching of mother fish and fish fry to allow fish breeding and grow out (5.5), v) pollution control from industries and urban settings (5.8), vi) ban use of harmful gears such as current nets (5.9), vii) water-bodies cannot be drained out (5.12), viii) haor, baors, beels will be rehabilitated and designated as fish culture areas and their spatial extents cannot be reduced (5.13), ix) fishers and fish farmers will get preferential access to khas waterbodies (5.15), and x) inland khas open water bodies will be brought under


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extractive system (leasing) which is damaging to ecosystems and biodiversity as the traditional leaseholders do not adopt any conservation measures.

5.7 National Forest Policy 1994

Mentioned about conservation of forests, execution of social forestry and benefit sharing mechanisms with relevant stakeholders, and agro-forestry development.

Comments

Freshwater swamp forest (flooded forest) is only remaining in haor areas as an integral feature of haor ecosystem and provide social, economic, environmental and disaster risk reduction (DRR) benefits. This resource is being seriously degraded due to faulty leasing system and mal-management. The forest policy ignores the necessity of conservation and sustainable management of swamp forests in haor basin. The policy also lacks the issue of CC and its impacts on forests, biodiversity and forest dependent communities.

5.8 National Land Use Policy 2001

The policy highlighted environmental management of land resources of the country by mentioning protection of natural forests, manage river bank erosion, stop cutting of hills, control pollution and ensure pro-poor management of lands. The policy suggest land zoning for better development planning, mention about various land types and their sustainable management including management of wetlands. The policy also recognizes the importance of wetlands and suggested not to create any obstacle to fish movements and blocking water flows to wetlands of fisheries importance. The policy also give directives about land use for industries, settlements and growth centers.

Comments

The policy however does not suggest any special measures to establish wetland sanctuaries and ECAs of wetlands and

jolmohals/ wetlands by the real fishers, in reality it fails to fulfil the desire of "jal jar jola tar" principle of the father of the nation. Still the poor fishers work as fishing labourers and the major benefits goes to non-fisher leaseholders. Moreover, there is no mention of climate change impacts on fisheries and adaptation measures to overcome such impacts. The new jolmohal policy reduced the leasing period from 5 years to 3 years only.

Comments

This policy does not have any suggestive measures to undertake special measures to sustainably manage the ECA wetlands (Hakaluki haor) and Ramsar wetland site. The jolmohal policy lacs any measure to river fisheries which is now out of leasing systems - as an open access fisheries and hence a case of "free riding" practice is ongoing in flowing rivers that affect sustainability of river fisheries. Shorter leasing period discourages leaseholders to practice any conservation and development of resources rather encourages them to adopt destructive fishing practice which is damaging to ecosystem sustainability and conservation of biodiversity.

The policy ignored the viability of continuation of demonstrated wetlands/ fisheries co-management systems implemented under various government projects of DoF, DoE, LGED, in different sites of the country. For examples, CBFM project, MACH project, CWBMP, CBAECA etc. The Jolmohal policy -2009 only accepts registered fishermen cooperatives as eligible for getting fishing (leasing access) rights. In contrast, the CBOs (community-based organizations) formed under development projects are composed of fishermen (over 80%), other poor & women (10-15%) and around 5% other locals (farmers use wetland for agriculture) who demonstrated good practices are excluded in leasing system beyond project period thus their continuation is disrupted and such co-managed wetlands again revert to traditional


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through adoption of organic farming and strengthening of the Integrated Pest Management (IPM) system. The policy also emphasizes on developing contingency management plans to reduce risk of natural disasters on agriculture and food production.

Comments

Although very comprehensive, the policy lacks sufficient directives to take up measures to protect boro rice in haor basin from early flashflood which is the prime recurrent problem of haor communities over years. The policy also lack focus on inventing short duration high yielding rice varieties for haor areas to avoid flashflood damage. Since rice is a long duration crop, it becomes easily exposed to early flashflood, to avoid such risk, the policy should have given directives for crop diversification in the haor basin.

The policy ignores the issue of agricultural aggression in biologically important and sensitive ecosystems (Ramsar site, ECA sites) not only by using excessive agrochemicals and but also converting wetlands and forests. Finally the policy also lacks focus on CC impacts and adaptation to agricultural issues.

5.10 National Food Policy 2006

The national food policy 2006 aims at ensuring dependable and consistent food security for of its population with three objectives, i) consistent and dependable supply of safe and nutritious food, ii) increase purchasing power of people and facilitate accessing quality food, and iii) ensure adequate nutrition for all specially women and children.

To achieve these objectives, the policy emphasizes on several strategies viz. i) Efficient and sustainable increase in food production, ii) enabling and efficient food markets, iii) Non-distortionary food grain market intervention for price stabilization, iv) Transitory shock management (DRR), v)

protected areas of ecologically rich and sensitive areas or biodiversity hotspots. The policy lacks suggestive measures to protect freshwater swamp forest in Haor areas. Although it says about land zoning for setting up of industries but potential risk of industrialization in haor basin to sensitive natural ecosystems (Ramsar site, ECAs, forest PAs) are found missing in the policy.

The policy suggested to initiate fish culture in open waters which is detrimental to sustainability of capture fisheries production and biodiversity of haor ecosystem and it must be discouraged (9.1). The policy also ignores to preserve or allocate water for nature or wildlife. Although the policy suggested special measures for coastal and char areas but it lacks focus on haor ecosystems which is considered as the richest freshwater capture fisheries and treated as the mother fisheries of the country that need restoration, protection and adoption of wise use principles. The policy also ignores the importance of delineating swamp forests and reed land areas which are exposed to overexploitation and degradation and needs urgent measures to protection and sustainable management.

5.9 National Agriculture Policy 1999

The agriculture policy aims at making the nation self-sufficient in food through increasing production of all types of crops and thereby ensuring food security for all.' The policy also sensitive to maintain quality and productivity of land and thus emphasizes on creating mass awareness for rational use of chemical fertilizers and pesticides so that the extent environmental pollution can be minimized.

The policy also aims at reducing excessive dependence on any single crop to minimize the risk of crop failure which common in haor area (mostly single cropped area - rice only). Other good thing in the policy is that it suggest taking necessary steps to ensure environmental protection as well as 'environment-friendly sustainable agriculture'


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5.11 National Women Development Policy 2011

The national women policy is very comprehensive it covers wider areas of women development issues with 17 objectives and 25 special areas including women & disaster risk reduction and women & environment. It also focused on overall assistance to ensure rights of the disabled women and women belonging to the smaller ethnic groups.

Comments

However, women and climate change issues, impacts and adaptation needs for women and children is missing in the policy. Participation of women in the decision making process of submersible dyke construction and maintenance is ignored. Haor ecosystems is characterized by having rich and diverse natural resources (wetlands and forest) and women has crucial role to play in nature conservation but no such directive is given in the policy except a generic mention of engaging women in environment management (36). There should be representation of women in the decision making space of wetland/ jolmohal leasing system.

Regarding Education and training (21) various key issues are mentioned but there is no mention about high drop out of girl child in school mainly due to monsoon flooding, risky communication and insecurity. Haor is highly vulnerable to disaster and climate change impacts and women and children are the hardest hit, but the issue is ignored in the policy. No special focus is paid to the women live in the remotest and most difficult setting of haor region about maternal and neonatal health services.

5.12 National Disaster Management Policy -2015

The national disaster management policy is recently developed and it has wider coverage of disaster related issues including managing

Effective implementation of targeted food programs to improve food security, vi) Employment-generating income growth, vii) Long-term national plan for ensuring balanced food in building a healthy nation, viii) Supply of sufficient nutritious food for vulnerable groups, ix) Balanced diet containing adequate micronutrients; x) Safe drinking water and improved sanitation, xi) Safe, quality food supply, xii) Adequate health status.

Comments

The policy focused on drought and salinity prone areas but early flashflood prone haor area is ignored especially invention of short duration rice variety is not mentioned in the policy. Haor area is the poorest in nutritional aspect with highest stunting rate compared to other areas of the country that demands special directives but is ignored in the food policy.

Early warning systems to address disaster is mentioned as generic (1.2.4) but no special focus is paid on early flashflood warning systems for haor area. Non-agricultural food aspects are mentioned (1.1.4.2) but no mention about duck farming as livelihood and food security of haor dwellers which has high potential in haor areas.

Greater haor is poorest in nutritional intake (goal-3) need special focus in the policy but lacks haor as nutrition deficient area and need for special drive to overcome the problems. In the count of stunting and underweight among children is highest in Haor area (Sylhet Division) - but corrective measures to address this food related problem was not mentioned in the policy. The policy talked about generic water and sanitation issues (3.4) but special mention about haor area where water in many areas is contaminated with arsenic and haor has one of the lowest adoption of safe sanitation practices - but the policy lacks measures to address the issues.


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climate change induced impacts. It mentions DRR measures to address various types of disasters in different disaster prone geographical areas. These are i) floods, ii) flashfloods, iii) cyclone and tidal surge, iv) earthquake, v) landslides, vi) river erosion, vii) drought, viii) cold spells, ix) Nor wester and thundering , x) salinity, xi) water logging/ drainage congestion, xii) fire, xiii) chemical and nuclear risks, xiii) biological hazards.

The policy also describes in details about improved disaster early warning systems for cyclones, floods, flashfloods, etc. to reduce disaster risks.

Comments

Regarding flashflood early warning the policy says "develop flashflood early warning system by collecting and collating water flow data of rivers". However, flashflood happens in hilly areas and on plains close to hills and it is triggered by heavy rainfall in hills and thus rainfall and run off data should be the basis for generating the early warning system for flashfloods and this fact is ignored in the policy. Since the flashflood prone haor area is located near to Indian border and intense rainfall in pre and early monsoon in Indian

hills cause the early flashfloods in haor and damage the standing boro crop and therefore real time rainfall data of Indian hills close to haor basin would be required to generate the model of early warning systems and thus a transboundary cooperation /approach is required which is missing in the policy. Early flashflood also cause sand carpeting of huge area of fertile crop land and make them non-productive but this issue is missing in the policy.

During monsoon, every year many villages of haor become prone to wave erosion and there are instances that some villages have already completely been washed out. To reduce erosion of village mounds, local people invest a good amount of money every year during pre-monsoon.

5.13 National Industrial Policy 2016

This is a recent policy and very comprehensive as it includes a broad spectrum of issues relevant to industrial growth in Bangladesh. It has a section on environment friendly industries (section-14) which expresses environmental concerns and provides suggestive measures in setting up of industries. These are:

1. While setting up of an industry, its impacts on local land, water and environment and on human should be properly assessed and concerned local communities are to be informed that smoke and effluents from industries may negatively impact air, land and water.

2. All industries should be encouraged to set up ETP or CETP as per the Environment Conservation Act- 1995, Bangladesh water Act-2003 and other related Acts of the country.

3. It also says giving preferential treatment to industries that will address climate change issues and adopt mitigation technologies, CDM (clean development mechanism) and green technologies.

4. Industries will be set up in line of considering the issues of disaster risk reduction and local environmental concerns. If needed, special incentives will be given to industries that have provisions for controlling environmental pollution and emission of greenhouse gasses.

5. Government will provide all out supports including financial incentives to national and international companies to set up waste recycling industries.

6. Government will encourage and provide supports to business entrepreneurs, NGOs and other civil society organizations to work on waste management.

7. Industries adopting technologies that are green and address climate mitigation will be encouraged


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8. While setting up of industries, measures will be taken to avoid intensive cultivable areas as well as areas have very high fertile land for agriculture.

9. The policy will encourage and assist setting up of environment friendly large industries through public, private partnerships (PPPs)

10. Practice of 3Rs (reduce, recycle and reuse) principle in operating the industries will be encouraged.

haor as the "Mother Fisheries" but none of the haor related policies has directives to protect and sustainably manage such biologically rich wetlands. Except the Forest policy no other policies indicates taking measures to restore, protect and manage freshwater "swamp forest" which is only available in the haor basin.

Greater haor area is deficient in nutrition with the highest stunting rate in the country but the relevant policies (food and agriculture) lack proper directives to address this critical health issue. Haor is highly prone to early flashflood due to heavy rainfall in adjacent Indian hills that damage the standing boro rice almost every year at varying degrees but relevant policies (disaster policy, BCCSAP, agriculture) did not emphasize transboundary cooperation in getting real time rainfall data from Indian hills which is essential in developing effective early warning system. Besides, relevant policies did not have any focus on the invention of short duration of rice to avoid early flashflood damage nor any policy emphasizes on introducing alternative should duration crops (cash crops) for haor area that can escape the damage of early flashfloods.

It is recognized that climate change-induced impacts cross cut almost every development sectors and thus relevant sectoral policies should incorporate directives to address climate-induced threats by adopting effective adaptation and mitigation measures. Vast areas of haor basin are under single cropping (boro rice) system in the dry season which is highly susceptible to climate induced early flashflood damage. Like agriculture, fisheries and forests of haor basin is also exposed to climate induced threats and needs policy directives to work solutions (adaptation).

Comments

Although comprehensive, this section of the policy lacks focus on CC issues particularly erratic rainfall, prolonged drought and water stress that may cause water use related conflicts among the various users such as farmers, fishers and industry owners/ operators. Moreover, sensitivity of haor ecosystems and its biodiversity in relation to industries and associated pollution and disturbances are not mentioned in the policy which need special guiding notes from the related national policies.

6. Conclusion and Recommendations A total of thirteen polices are reviewed that have higher relevance to the development and management of haor resources. All these polices are found comprehensive in nature within their respective domains while lack of coherence among policies are visible in places where policy integration seemed essential towards achieving holistic development of Haor resources. For example, environment policy recommends involvement of local user communities in managing jolmohals or wetlands while the jolmohal policy only recognizes real fisheries to have access to jolmohals and for fishing but not management.

The environment and fisheries policies provided directives to establish and maintain wetland sanctuaries to protect biodiversity while the national land use policy lack such recommendations which confuses field level officials to take right actions on the ground. The government of Bangladesh declares "Ramsar site", "ECA sites" and considers


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1. The jolmohal/ wetland policy should be amended and include options for accommodating CBO-based co-management systems for the sustainability of wetland ecosystems services and protection of aquatic biodiversity.

2. Measures and directives to reduce overuse and destructive use of sensitive natural resources (fish, forests, swamp forests, reed lands, hill resources, etc) of haor ecosystems should be explicitly mentioned in relevant national policies (fisheries, forest, water and environment, climate change).

3. The forest policy is being updated and expected that all relevant contemporary and emerging issues including that of climate change, swamp forests, reed lands and associated biodiversity/ wildlife would be included in the upcoming forest policy.

4. Ecosystems-based approaches to wetland management with participation of local user communities and relevant government agencies (co-management) should be included in relevant policies

5. Participatory climate vulnerability assessment (PCVA) should be included in relevant policies including directives adopt globally accepted Ecosystem-based Adaptation (EbA) approaches.

6. Industries have already being built on fertile land and on river banks and wetlands edges. Relevant National policies should urgently amended to incorporate measures/ directives to protect sensitive ecosystems of haor basin from increasing pollution load from the rapidly growing industries.

7. National land use zoning policy should immediately delineate areas for industrialization and should not permit setting up industries beyond the designated industrial zones to safeguard haor ecosystems (wetlands, forests, swamp forests, reed lands) and its biodiversity.

8. Rice is the only food crop grown in haor basin which is exposed to flashflood damage. Under CC scenario, this problem would be intensified. Short duration rice varieties, crop diversification, and cash crops can be suitable options for food security should be mentioned in relevant policies.

9. Since boat is the major means of transport during monsoon in haor area, boat safety issues are missing in the policy given the fact that every year boat capsize cause human deaths and which must be included in the policy to safeguard haor communities.

10. Watershed of haor mostly falls in Meghalaya Hills, India and heavy rainfall in early monsoon in those cause damaging early flashfloods in Bangladesh. To address this problem, transboundary cooperation is needed for data sharing and developing early warning system but this is missing in the policy. This issue should also be included in all relevant policies (viz. land, forest, disaster and water policies).

Despite being the most vulnerable to climate change impacts, relevant policies did not pay any special focus to haor basin in managing climate change-induced threats.

We should not consider haor for its environmental aspects only rather should equally pay focus on its socioeconomic aspects. Haor Master Plan identified and recommended implementation of 145

development projects over phases. Poverty and ecosystem degradation of the haor basin can be reduced greatly by implementing the priority projects of Haor Master Plan.

In light of this review findings, following recommendations are made to improve the policies relevant to the development issues of haor basin in the face of changing climate.


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11. It is not possible by the government alone to manage natural resources of haor by introducing a policy. Local communities who are dependent on natural resources for their livelihoods should be taken in to a partnership arrangement for managing the resource systems. As incorporation of local/ indigenous knowledge should be incorporated in formulating /updating national policies.

12. Information of wetland fisheries resources through Bangladesh Bureau of Statistics or any project should be updated and accordingly, next steps should be determined based on the information.

13. Interdepartmental relationship and integration at all tiers is essential for addressing issues like sectoral conflicts, overlapping mandates and colliding interests & scopes.

14. Women folk of the haor are largely excluded from planning, monitoring and implementation processes of development projects/interventions. Policies should have directives to ensure participation of women in all spheres of development planning and management processes.

15. Many Jalmahals are declared by the government as sanctuaries. But respective public agencies do not have capacity to establish and manage sanctuaries. Moreover, there is a lack of effective sanctuary management guidelines and public funds required to management of such declared sanctuaries.

16. Relevant policies should be updated incorporating current and emerging issues such as SDGs (sustainable development goals, Sendai Framework for disaster management, CDB (Convention on Biological Diversity), NDC (Nationally Determined Commitment to reduce greenhouse gases), Aichi targets, etc.

Akter A., 2011 People's perception of environmental pollution in Mokosh beel, Bangladesh. In: Rural livelihoods and protected landscapes: co-management in the wetlands and forests of Bangladesh. Fox J., Mustafa M. G., Quazi S. A., Miles W. B., Cunningham E. J., Chassels M. (eds), IPAC Project, Departments of Forests, Environment and Fisheries, Dhaka, pp. 85-98.

CCC. Adaptive Crop Agriculture Including Innovative Farming Practices in Haor Basin. Climate Change Cell, Department of Environment, Ministry of Environment and Forest. .

CEGIS, 2012. Haor Master Plan. Bangladesh Haor and wetland Development Board, Ministry of Water Resources. Government of Bangladesh.

DDM, 2014. Department of Disaster Management. Flood Response Preparedness Plan of Bangladesh. Department of Disaster Management and Relief. Ministry of Disaster Management and Relief, Government of Bangladesh.

DoF, 2009 Fisheries Resources Information of Bangladesh. National Fish Week Publication 2009. Ministry of Fisheries and Livestock, Government of the People's Republic of Bangladesh, Dhaka.

Huda, M. K. 2004. Experience with modern and hybrid rice varieties in haor ecosystem: Emerging Technologies for Sustainable Rice Production. Twentieth National Workshop on Rice Research and Extension in Bangladesh. Bangladesh Rice Research Institute. Gazipur-1701, 19-21 April 2004.

IFAD, 2010. Environmental and Climate Change Assessment. Main report. Prepared for IFAD's Country Strategic Opportunities Programme 2012-2018, Bangladesh

IUCN. International Union for conservation of Nature. www.iucn.org/bangladesh. 2009.

IUCN, 2011. Bangladesh Country Office. DRR: A Case Study of Tanguar Haor. International Union for Conservation of Nature, Dhaka, Bangladesh; Pp.x+89. 2011.

Sarma, P. K. 2010. Scenario of haor vulnerabilities and other obstacles for sustainable livelihood development in Nikli upazila. J. Bangladesh Agril. Univ. 8(2): 283-290

UNICEF, 2009. Monitoring the Situation of Children and Women Multiple Indicator Cluster Survey 2009 Progotir Pathey 2009 Volume I: Technical Report. Bangladesh

Toufique, KA and Islam, A. 2014. Assessing risks from climate variability and change for disaster-prone zones in Bangladesh. International Journal of Disaster Risk Reduction. 10(2014)236-249

References

References


Support to Sustainable and Inclusive Planning (SSIP) ProjectGeneral Economics Division (GED)

Planning CommissionSher-e-Bangla Nagar, Dhaka-1207

Policy Gap Analysis - United Nations Development Programme

Documents

Transcript of Policy Gap Analysis - United Nations Development Programme