A controversial canal project, launched under the ambitious Green Pakistan Initiative, aims to transform the barren lands into fertile farmlands. Behind this facade, a deep sense of inequality penetrates, which undermines the promised water distribution between Punjab and Sindh. The population boom, followed by a policy void, has led to a plummet in the per capita water availability. It is continuously undermining the promises of resource distribution, leading to a violation of constitutional rights and provincial autonomy.
The Sindhi voices have risen in protest, demanding their rights determined in the 1991 Water Accords, and are demanding protection for the fragile ecosystem of the Indus Delta. The project has now become a flashpoint of legal and political debates. This article will underscore the unequal water distribution, legal entitlements under the 1991 Water Accord, pros and cons of the canal project, and perspectives of the parties involved.
Diving Deep into the Canal Project
The canal project was proposed under the broader Green Pakistan Initiative, aiming to ensure food security, environmental protection, and a water distribution system in the country. The canal project targets areas of southern Punjab and Sindh, aiming to convert the dry, arid regions into fertile land for cultivation. The authorities argue that the project will revive drought-prone areas, reduce urbanization, and maximize the usage of water resources that are being wasted.
The project was conceptualized around 2020-2021 and was officially launched in 2023, and is estimated to be completed by 2026. However, the project faced some major backlash from the people of Sindh as they raised valid concerns of being deprived of their due water rights due to the diversion of the Sindh River, especially when Sindh is already facing an acute water shortage.
Sindh protested against the project as it considers it a violation of its rights under the 1991 water accord. All motorways and highways connecting Sindh and Punjab were almost closed due to heavy demonstrations. The government plans to divert a canal from the Indus River to Cholistan to cultivate 1.2 million acres of land. Sindhi stakeholders say that it would impact water availability to 12 million acres of fertile land in Sindh. However, Sindh is already facing a chronic water shortage and is not getting its due share as agreed in the 1991 water accords.
Furthermore, the 1991 water accord suggested that Pakistan would release 10 million acre-feet (MAF) of water in the Indus Delta to stop the sea intrusion —a figure already less than the globally defined standard of 27 MAF. The protestors are arguing that neither have they been given their due share of 42.6% agreed water for irrigation, nor the MAF for the ecological survival of the delta. Amidst this crisis, Punjab’s attempt to divert the Indus water to Cholistan is bubbling the sense of insecurity in Sindh for further deprivation.
Legal Framework: Water Accord and Provincial Rights
The 1991 water apportionment accord was signed between the four provinces of Pakistan, i.e.,
Punjab, Sindh, NWFP (now KPK), and Balochistan. The goal was to address the intra-provincial water disputes and to ensure fair distribution of resources based on needs. The total annual allocation of Pakistan was set at 114.35 MAF annually, which was to be divided as Punjab was allotted 55.94 MAF, Sindh got 48.76 MAF, KPK got 8.78 MAF, and Balochistan was allotted 3.84 MAF annually. This agreement recognized Sindh’s vulnerability as a tail-end province in the lower riparian prone to water diversion. Moreover, keeping in view the ecological needs of the province, 10 MAF was reserved for the ecological survival of the mangroves of Sindh and to prevent the sea intrusion in Thatta.
A body named the Indus River System Authority (IRSA) was formulated to ensure the smooth implementation of the accord. However, Sindh’s ongoing concerns involve the failure of IRSA to enforce the 1991 water accords, especially in times of water scarcity, when Sindh is receiving 37% less share than promised and facing an acute water shortage.
Article 155 of the Constitution of Pakistan guarantees the right of the federal government to intervene in inter-provincial water disputes, empowering it to settle conflicts through legislative or executive measures. The implementation of this provision becomes critical when water rights are threatened, as seen in Sindh’s objections to the canal project. This emphasizes the constitutional duty to uphold equitable resource allocation by giving the federal government the authority to manage the nation’s water resources and requiring a fair distribution of water.
Despite all these legal protections, Sindh is facing scrutiny over water resources, and this new canal project is threatening to divert more water. While Sindhi’s concerns are growing louder, the supporters of the project argue that the canal project is important due to its potential benefits and will help eradicate marginalization. Though the federal government rolled back its decision to construct the canals until an agreement has been reached, a balanced understanding of the project is necessary and requires examining both the advantages and disadvantages of the project.
Council of Common Interests (CCI) and the Recent Backlash
The controversy surrounding the canal project intensified when the CCI approved the project in 2023 under the broader Green Pakistan Initiative. Article 153 of the Constitution of Pakistan states that “there shall be a Council of Common Interests appointed by the President.” The CCI coordinates matters of common interest between the federal and provincial governments, particularly those related to the Federal Legislative List. Thus, it has the authority to look into the matter. The federal government presented the project as a stepping stone towards national food security and agricultural sustainability, but many stakeholders in Sindh strongly opposed and criticized the CCI’s approval.
Legal experts argued that CCI’s approval lacked transparency and ignored Sindh’s concerns. Moreover, Sindh was ignored, and no meaningful consultation was done with the stakeholders, which is a clear violation of Article 154. Resultantly, the Sindh Bar Council rejected the CCI’s endorsement of the project. The Sindh Bar Council warned of escalating their protest by blocking the railway if the project was not withdrawn. The situation eventually got entangled in a legal web with calls for judicial review of the projects on the grounds of violation of transparency and intraprovincial equity.
In a significant reversal, the Council of Common Interests (CCI), during a high-level meeting on April 28, 2025, overturned its earlier approval of the canal project. According to a statement declared by the prime minister’s office, “No new canals will be built without all provinces’ understanding and consent.” The CCI agreed to withdraw provisional approval and announced the formation of a federal-provincial committee to propose long-term water and agricultural solutions consistent with the 1991 Water Accord and the 2018 National Water Policy.
The Pros of the Canal Project
Supporters of this project argue that it could bring about food security, economic prosperity, and efficient water management. The goal of the project is to bring agricultural expansion by converting the arid land of Cholistan and Southern Punjab into fertile land. It would not only increase crop production but would also be used to address problems of rapid urbanization by giving people facilities. It would enhance GDP and reduce urban pressure from cities like Lahore and Karachi.
Moving on, the canal project is an initiative to increase economic activities in marginalized areas. It will not only generate employment in the agricultural sector but will also bring job production and an export boom. The canal system will furthermore increase effective water usage due to the incorporation of modern and water-saving technology like drip irrigation systems. It will reduce desertification by 40% and boost greenery as part of environmental restoration efforts, and will uplift rural economies across the provinces.
The Cons of the Canal Project
On the contrary, the canal project has some major cons as well. The diversion of water is a violation of the 1991 water accords, which will cut off water reaching the province, ultimately affecting the agricultural output. The Indus Delta, which has serious economic and ecological benefits, will be at stake. The delta is already suffering from water shortage according to the international standard of 27 MAF, and the formation of another canal might be disastrous for the region.
While the proponents argue that the project is aimed at conserving the ecology of Cholistan, they ignore the impacts of the diversion of wildlife and biodiversity on areas currently being supported. Critics argue that the project will further lead to inequality in water distribution between Sindh and Punjab. One major con is the lack of proper consultation with the Sindhi stakeholders. They are being overlooked, and their valid concerns are not being addressed, leading to further tightening of relations.
Conclusion
In a nutshell, the canal project, as a part of the Green Initiative, embodies a complex intersection of legal ambiguities, conditional rights, and economic ambitions. While the project promises to bring about economic opportunities, agricultural development, and ecological prosperity, its risks cannot be ignored. It may lead to increased marginalization of the lower riparians and the Indus Delta. Sindh is already suffering from a water crisis, and all the agricultural activities would come to a halt without adequate water sources. For the canal project to succeed, meaningful dialogues between all provinces, reconciling economic aspirations, and addressing ecological needs are compulsory.
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Areeba Imran is a third-year law student at Pakistan College of Law with a focused interest in constitutional law, environmental law, and the emerging field of space law. She serves as the general secretary of the Environment and Law Society and has interned at the Advocate General’s Office. Through her writing, Areeba aims to contribute to nuanced legal discourse on both national and global platforms.