in Africa - World Bank Documents & Reports

Water Supplyand Laying the Foundation

Sanitation for the 1990sin Africa:in AfriRca: Proceedings of the All Africa

Rural Water Supplyand Sanitation Workshop

40t +< ' and Water Supply andSanitation Sector

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Conference andWorkshop Proceedings

21331Abidjan, C6te d'lvoire ume 1

May 1990 4

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WATER SUPPLY AND SANITATION IN AFRICA:

LAYING THE FOUNDATION FOR THE 1990s

VOLUME 1

Proceedings of the

All Africa Rural Water Supply and Sanitation Workshop

Water Supply and Sanitation Sector Conference

Abidjan, CMte d'IvoireMay 7-11, 1990

Sponsored by The African Development Bank, the World Bankand the United Nations Developnent Programme,

with the support of the External Support Agecics' Collabormtive Counciland the UNDP-World Bank Water and Sanitation Program

Inteational Bank for Reconstructionand Development/The World Bank

Banque Internationale pour la Reconstructionet le Developpement/Banque Mondiale

1818 H Street, N.W.Washington, D.C. 20433, U.S.A.

LIST OF ABBREVIATIONS

ADB African Development Bank

CESI Country External Support Information

CIEH Comite Inter-Africain d'Etudes Hydrauliques

CREPA Centre regional pour l'eau potable et I'assainissement a faible coat

ECA Economic Commission for Africa

ESA External Support Agency

GDP Gross Domestic Product

IDWSSD International Drinking Water Supply and Sanitation Decade

IRC International Reference Centre for Community Water Supply and Sanitation

ITN International Training Network for water and waste management

LTPS Long-Term Perspective Study (Sub-Sahara Africa: From Crisis toSustainable Growth)

NGO Nongovernmental Organization

PROWWESS Promotion of the Role of Women in Water and Environmental SanitationServices

RWS Rural Water Supply

RWSG Regional Water and Sanitation Group

RWSS Rural Water Supply and Sanitation

SODECI Soci6t6 de Distribution d'Eau de CMte d'Ivoire

SSA Sub-Saharan Africa

UADE Union Africaine des Distributeurs d'Eau

UAWS Union of African Water Suppliers

UN United Nations

UNDP United Nations Development Programme

UNESCO United Nations Educational, Scientific and Cultural Organization

UNICEF United Nations Children's Fund

USAID/WASH United States Agency for International Development/Water and Sanitationfor Health

VIP Ventilated Improved Pit latrine

WB World Bank

WHO World Health Organization

WSS Water Supply and Sanitation

TABLE OF CONTENTS

VOLU 1

Foreword vPreface vii

List of Working Groups xi

AFRICANCONFERENCESTATEMENT: ABIDJANACCORD 1

Guidelines for the Development of Country Strategiesfor the 1990s 5

Summary of RWSS Working Group Reports 15

PART I: RURAL WATER SUPPLY AND SANITATION WORKSHOP 17

WORKSHOP PROGRAM 19

OPENING ADDRESSES

Opening Ceremony 23* Mr. F. Lounes, African Development Bank

Introductory Remarks 27Rural Water Supply and Sanitation:Common Grounds for a Renewed Efforte Mr. Jean Doyen, World Bank

Welcoming Statement 33* His Excellency Bamba Vamoussa, Minister of

Public Works, Transportation, Construction,and Urbanization, C6te d'Ivoire

Worishop Framework 35* Mr. Randolph A. Andersen, World Bank

POSMON PAPERS

1. The Contribution of Rural Water Supply andSanitation to Rural Development 37Mr. Lars Rasmusson, World Bank- Presentation of Position Paper 1 46

Prof. G. A. Makanjuola, DFRRI, Nigeria

2. The Role of Communities and Women in Rural WaterSupply and Sanitation 49Ms. Aminata Traore, PROWWESS/AFRICA- Presentation of Position Paper 2 59- Discussion of Position Papers Nos. 1 and 2 60

3. Technology Development 65Mr. Robert Roche and Mr. Piers Cross,UNDP-World Bank Water and Sanitation Program- Presentation of Position Paper 3 81

by First Author- Technology Development: A Perspective from Zimbabwe 83

Mr. John Mvududu, Director of Environmental HealthServices, Government of Zimbabwe

- Discussion of Position Paper 3 and the ZimbabwePerspective 86

4. Institutional Issues 91Mr. David Grey amd Ms. Jniifer Sara,UNDP-World Bank Water and Sanitation Program

5. Financial Resource Mobilization 107Ms. Pauline Boerna and Mr. H. Michael Garn,UNDP-World Bank Water and Sanitation Program

6. Rethinking Sector Management 125Mr. Lars Rasmusson, World Bank

Discussion of Working Group Reports 142

Closing Remarks 145Mr. Jean Doyen, World Bank

PART Il: WATER SUPPLY AND SANrTATION SECTOR CONFERENCE 147

CONFERENCE PROGRAM 149

OPENING ADDRESSES

Welcome Address 151From Thought to Action* Mr. G. Avika, African Development Bank

Opening Remarks 153* Mr. F. Hoque for Professor Adebayo Adedeji,

The Economic Commission for Africa

Welcoming Statement 155* His Excellency Bamba Vamoussa, Minister of Public

Works, Transportation, Construction, andUrbanization, Cote d'Ivoire

Experiences and Approaches in Water Supply and Sanitation

ADB's Water Sector Policy Document 159* Mr. B. Hadjadj, African Development Bank

Presentation 161Mr. A. Rotival, Collaborative Council

Presentation on the Union of Afican Water Suppliers 163* Mr. M. F. Djerrari, Union of African Water Suppliers

The Water Supply and Sanitation Program: An Update 165* Mr. D. Grey, UNDP-World Bank Water and Sanitation Program

Introduction to Guidelines for the Developmentof Country Strategies for the 1990s 169

* Mr. A. Mengesha, African Development Bank

Chairman's Assessment of Strategies for the 1990s 171* Mr. A. Mengesha, African Development Bank

Closing Remarks 173* Mr. Gedamu for Mr. Babacar N'Diaye,

African Development Bank

PART mf: SODECI 175

Presentation by SODECI 177Summary of Discussion 181

PART IV: ANNEXES 183

Rural Water Supply and Sanitation Workshop

Annex 1 Working Group Reports: Group 1 185Annex 2 Group 2 187Annex 3 Group 3 189Annex 4 Group 4 193Annex 5 Group 5 195

Water Supply and Sanitation Sector Conference

Annex 6 Worling Group Reports: Group 1 199Annex 7 Group 2 201Annex 8 Group 3 203Annex 9 Group 4 205Annex 10 Group 5 207

MisceJany

Annex 11 List of Country Delegates- 209Annex 12 List of Representatives from External Support Agencies 217

FOREWORD

Africa is il economic cisis, a crisis Ihat is meeting was the need for a change in the roles ofreflected in tIe needs of her people and in the central and local govenments, the formal andchallenges to be faced in achieving suinable informal prvae sector and comnmuiesdevelopment The poor in Afica lack basic themselves in the provision of water and sanitationservices whose absence would be inconceivable to services. Most important, the meetingthose of us who enjoy them. Clean water close to recommended that the role of cental govermthome and decent sanitation facilities are pimary should shift from that of provider of services toexamples of such basic services. At the end of the that of promoter and facilitator, creating theIntetnational Drinikng Water Supply and Sanitation enabling e onvirmet within which localDecade in 1990, as many people ae unserved with organizations can shoulder the burden of servicewater supply and sanitation as there were at the provision. This changng role will need a majorstart of the Decade. Two out of three of Africa's commitment from governments, to free therural population walk - often long distances - to initiative and to build the capacity of local agenciesunprotected water sources to collect and drink and community organisadons to develop andpolluted water. Over 300 million people living in manage systems. This conclusion is as valid for aAfrica's towns and villages have no hygienic community association managing a sinple villagemeans of disposing of human or domestic waste. handpump as it is for an urban utility providingCountries with low coverage of water and piped water supply and sewerage services.sanitation services risk having many unhealthycitizens, unproductive industries and a polluted The meeting concluded that women, the primaryenvironment, exacemrbating povrty and severely users of water, must be partcular targets forundeminfin potentil for sustainabl economic training and paticipation; they have alreadydevelopment. demonstrated in projects across Africa their

capacity to play leading toles in the provision ofThis document reports on a regional policy meeting services to poor urban and rural communides. Aon the water and sanitation sector, held in Abidjan, futher conclusion reached by the meeting was thatCote d'Ivoire, May 7 -11, 1990. Delegates firm sevice levels should reflect demand and that45 African countries assemnbled in Abidjan to higher levels of cost sharing, particularly ofaddress the chaUenges facing the sector. These opeation and maintenance costs, must behigh-level government policy makers and sector progressively adopted to ensure sustainability andspecialists, observed by representatives from 33 efficient allocation of resources. It was agreed thatexternal support agencies (ESAs) and there had becn significant technologicalnon-govertnental organizations, exchanged developments in Africa during the 1980s, wellexperiences and probed deeply to find ways to adapted to local conditions. These advances createresolve complex problems. They met first in a considerable potential for further sectorworkshop to address rural water supply and development, which will depend on the ability ofsanitation issues and then in conference to take a policy makers to create the institutional andbroader overview of the whole sector. This was a financial environments conducive to theuque forum for the water and sanitation sector, developtnent of sustainable programs. These

bringing togedter almost all the major agencies efforts will need the coordinated support of theactive on the continent in an intensive atmosphere international community.of debate.

The Abidjan meetngs were an exccllent exampleThe meeting demonstrated the richness of Africa's of internatioral collaboration. The Workshop andexperience, with the lessons learned in the past ten Conference were co-sponsored by the Africanyears serving to provide the foundation for Development Bank (ADB), the United Nationsstrategies for the 1990s. One key conclusion of the Development Program (UNDP) and the World

Bank (WB), with the upport of the bilaer ad gudanc, uder die auspic of di Africanagencies of Canada Denmark. Finland Germany, Deveopment BankKuwait, Norway, Switzrlnd, Sweden an theUSA, ccdinated through die ESA Collaborative Tbe Aican Confenc Sxemtn Aidi AccordCouncil. The joint UNDP-WB Water and was sent to the Globll Meetig in New Delhi,Sanitation Program provided substsadve support India in September, 1990. The African cousthroughout. Alithough tde World Bank was fonned a major input to the concluions of thechaged with prepaing this documet, we must New Delhi Meeting, which were endorsed by theplace on record that this effort bas been an UN Geneal Ancmy in their Resolutionextrardinary patneshp of African governmet A/45/181 of 3 December 1990.and the intetional community, with ladershpby the Afican Development Bank, and firm While the chlen of meeting the needs ofcommitment of UNDPs Regional Bureau for Afiica's poor for wat and sanitation isAfrica. This parership will cninue trough the t eends It can be bet tackled with theRegional Orientatioa Commiuee, bom out of this foundstions laid and the partnerships forged at themeeing to be an Afican fonnn for sectoral debate Abidjan Wokshop and Conference in May 1990.

LImail Sergeldin G.MB. KaiisaDirector Deputy Director

Africa Technical Dqeatent Centrl Projects DepartmenWrdBank The African Devlopment BDnk

PREFACE

During the inwternio Drinlin Wat Supply foUowing topics: (1) Inttutioa issaid Sanitd Decade sbsta progress was fiancal resour maagement ai (di) rethinngmade towa meetin the needs of Africa's setor management. The five group appointedpopadton for water supply rd saniiosAervic their own chairman amn rappote from theCrucal sectol issu suh as the insdtutionAl ican delegates; ESA repesntativs sat in onarrangements for the provin of svces, group discsons as observers. Group reports wereconimity management, cost-recovery, human presented in plenary sessions on the third day, afterresource development and international which they wer consolidated into a Summarycoordination and coopetation were grappled with Working Group Repotthroughout the condnent While the absolutenumbers of people served rose apprecably, the For the Conference, draft guidelins for developingpercentage of the population covered was unable to country staegies for the 1990s were introduced inkeep pace with rapid population growth. Two the plenary session. The same five worldng groupsthirds of the ural population and one quter of the were retained to deliberate on the draft and tourban populadon do not have access to safe water man tecommendations for changes. GCoupssupply. Even more do not have satisfactory repoted on the final day, during which it wassanitation arrangemeuts. These figures reveal the agreed that the five working group chairmenimperative for developing more appropriate and should reconvene to finalize the guidelines whichcompreecnsive sectoral strategies and policies. they did in August. The African Conference

Statement: Abi4ian Accord, together with finalizedA total of 101 delegates, all high-level govenment guidelines and the Summary Workshop Workingpolicy malrs and sector specialists, ftom 45 Group Report, constituted Africa's contribution toAfrican countries, observed by reprsentatives from the Global Consultation held in New Delhi, India,33 extenal support agencies (ESAs) and non- in September 1990.sovenmental arganizations (NG0s), assembled inAbidjan, Cote d'Ivoire for five days May 7-11, 'his report presnts the proceedings and1990, to address the challenges facing the sector. conclusions of both the Work op and Conferce.They partcipated first in a three day wohop Th report is in two volumes: Volume 1 containsdevoted to nal water suppy and sanitation the Summary of Pwodings of both the Workhop(RWSS) issues and then in a two day conferene and the Confence. Volume I is produced

enaIpasszng the endtise 5Ccti* wseparately in both Enaglsh and French. Volume 2

The Workshop objectives were to prsmandsham contais all the County Statements andexperienes in RWSS in SSA, to examine diffeCet contnlrbtons by ESAs; they have been reproducedapproaches and policy opo0ns for improved and in thedr otiginal language of submision butaccelerated ector develkpuent, to identify immanzed in English (for French Countrycommon grounds for collaboraive efforts, and for Stmets) or in Frnch (for Eglish Countrythe deletes themselves to develop pgmatic Saemts).

for the implementaton ofapproppiate country-level strategies. The Workshop was organized by the Inrastructure

Division of the Africa Technical Department of theThree topkc wem presented and discussed in the World Bank (WB) and the UNDP-WB Water andplenary dms on the fist day of the Workshop: Sanitation Prgram in cooperation with the African(1) the contributions of RWSS to rural Development Bank (ADB), the United Nationsdevelopment; (ii) the role of communities and Developrnent Program and the Collaborativcwomn in RWSS; and (iii) technology Council. The Conference was organized by thedevelopment. Counties were organized into five Infrastuc and Industry Development Policyworking Voups, with discusions in dther French Division of the Central Policy Department of ADB(three voups) or English (two groups) of the in coopcration with WB, UNDP, and the

Iloaboative Council. Ibo coflbudfin of he Andesen d Syvie Brblon (consultant) from dheUNDP was espiay geinous, and sgnificandy WB. Alexander Rodval, Charman of the ESAassisted In dhe prearon of the Wodrl.op and Coliaboative Council, and Suzanme Droullh fromConfeence and the publication of this report UNDP led the resoure mobilizatc efforts David

Crey cowdinakted the substanidve and adminidstrativeIn addidon, the folowing ornizatdons, without Inputs of the UNDP-WB Progrm. Te Workshopwhose financial cnrbuti the Workshop and was sidhfully cbaired by Roger ChaufourierConference would not have ta plaoe, re (former Africa Region Vice Preident of the Woddsinceely acknowledged: Bank), ably assisted by Ltitia Obeng of the

UNDP-WB Progrm. Tbe Conference was chaired- Canada Intationa Development Agency by F. Lounes and A. Mengesh of the ADB. The- Commnonwesth Science Cutil delegates themelves were responsible for the- Danish lIntemaona Dcvdophet Agency succes of the Workdhop and Conference, driving- Directoate Gena fotr Intenatonal them to census and st conclusions. In this

Cooperation in the Netheads task, they were led by their elected working group- Fnnish InterAtona Decvelpment Agency chairm Jomo Gomes Cadoso of Guinea Bisa,- The Government of France Kami Denyo Nenonene of Togo, Kadima Mwamba- Gen Agency for Technical Coopeadon of Zaire, Sandile Ceko of Swaziland and Birru- Kuwait Fund for Arab Econic Ittisa of Edhiopia. The working group chaime

Developmet fanned an advisory comittee to the cairmen of- Narwegian Agency for Iratinal the Workshop and Conference.

Development- Swiss Developdmt Corporadon This publication was produced by the World Bank.- Swedish International Development The production involved the effors of many staff

Authaoty fiom the inrastuctr divisions of the World- United States Agency for Interatonal Bank's Africa Region, and was managed by

Development Randolph Andes and David Grey. Specialacknowledgements go to Sylvie Brebion who

The Worksop and Conference were the results of dinaed the editing, trnslation and productin,the efforts of a lare nmber of powple, including and to Jae Fahy, Lynn Foden, Pamea Hall,many staff of thr ADB, the WB, the joint UNDP. Michele Moriarty and L Ala Victorio who providedWB Water and Snitaton Progrm and UNDP. A major editoialn d saerial inputs.fuil list would be too muewom to mention here.The work of the many audtors, presnte_ and The views and inteprions expressed are thoseresource persons, whoe names are listed In the of the authors and editors and should not beWorkshop and Confernce proguna within this attributed to, nor do thy necessaily represent thedocument, Is gatfully ackowledged. The main posiddn of the Worid Bank, the Africanorganism of the Woriksop and Cnferencc were Developmet Bank or other sponsoing insttutions,A. Mengesha, B. Hadjadj and Daniel OMbler nor the of individual delegates attending the(constant) from the ADB, and Randolph Workshop and Conference.

LIST OF WORKING GROUPS

Group 1

Algeria, Burkina Faso, Cape Verde, Chad, Guinea Bissau, Mali,Mauritania, Morocco, Niger, Senegal, Tunisia

Group 2

Benin, Cameroon, Central African Republic, Congo, C6te d'Ivoire,Equatorial Guinea, Gabon, Guinea, Sao Tome & Principe, Togo

Group 3

Angola, Burundi, Comoros, Djibouti, Madagascar, Rwanda,Seychelles*, Zaire

Group 4

Botswana, Lesotho, Malawi, Mauritius, Mozambique, Namibia*,Swaziland, Tanzania, Zambia, Zimbabwe

Group 5

Egypt*, Ethiopia, The Gambia, Ghana, Kenya, Liberia*, Libya*,Nigeria, Sierra Leone, Somalia*, Sudan, Uganda

*not representd

N.B.: French was the languge of discussion for Groups 1, 2 and 3;English was spoken in Groups 4 and S.

AFRICAN CON CE STATEMENT:

ABIDJAN ACCORD

AFRICAN CONFERENCE STATEMENT: ABIDANACCORD

Delegates from 45 African countries met in Abijan, C&e d'Ivoire on May 1011,1990, and reached agreement on the approaches and sag needed to tackle' ..theirformidable problems in meeting the water supply and sntation needs. of theContinet'surban and rural populations in the 1990s. The outcome of their deliberations is etitledGuidelines for the Development of Country Strategies for the 1990s. Prior: to -theConference, the delegates held a three-day Workshop on rural war supply and sanitaionissues, the conclusions of which are included in this volume.

The International Drinking Water Supply andISanitation )ecade (1981-1990) hasprovided sector policymakers: with many less, and cpei betwee countries if thesharing of skills and experiences has enabled these lessons to be incorporated in what willnow be a concerted approach to providing improved.and tainable services and resultinghealth and social benefits to the maximum number of peoplein -the coming decade.

Following the Abidjan Accord, each country is committed to promoting sectordevelopment strategies and policies which will ensure equitable-provsion of water suppliesand improved sanitation facilities to those in greatest need. The Guideflines have beenendorsed by the 30 representatives of the external:support community attendingthe meeting,who expressed a willingness to respond dpsitively togogernmentrequests for support inimplementing them.

A temporary Regional Committee of five Afriic4asector spetscialistswaetp to-oversee the final drafting of the Guidelines. .::tollowig the. .mmendations of theConference, the African Development a hasbenreqesed to organize a RegionalOrientaion Committee which b wi eally., teei iimpemn ti watersupply and sanitation' strategi .in i.:'.n t oing ye, and m dnnecessary adjustments to the Guidelines. o suitcn iumstances.

In formulating their individual Strgie the c ofAfrica will now be able toadopt a series of approaches which!1havepro -to bescssfu#l, and to work together tofind ways of overcoming what are recognized :tbedauning consraints. Despite the severeeconomic plight of many countries,: the ctin igeffects of natural disasters, and theincreasing problems caused,by rapid. urnii iesface the 1990s with confidencethat their joint efforts can make most effectve usebof scarce resources.

Under the agreed Guidelines, countries will iadopt strategies with clearly definedobjectives for the sector, establishing the responsibility and authority of institutions at alllevels and taking maximum advantage of the proven strengths of non-governmentalorganizations in assisting with the implementation and upkeep of projects. Investments willbe based on the effective demand and long-term sustainability of services, with prioritygiven to rehabilitation of existing facilities, use of low-cost appropriate technologies anddevelopment of national capacities in the planning, design and implementation of newprograms.

Community and especially women's participation will be an integral part of projectdevelopment and implementation, varying only in degree between conventional urbanprojects and programs in peri-urban and rural areas. The agreed approaches include thedevelopment of methodologies and systems for involving women in the formulation ofstrategies and the planning of programs. Water supply and sanitation programs will bedeveloped in an integrated way, and will be planned in coordination with programs inassociated sectors such as urban and rural development, and environmental protection. Inthe countries where Dracunculiasis (Guinea Worm) is endemic, water supply and primaryhealth care interventions will be linked to eradication campaigns as a matter of priority.

The special problems of water-short areas and the increasing demand for finiteresources will be addressed through an integrated approach to water resources management,involving detailed consideration of supply, demand, conservation and protection. Promotionand use of appropriate recycling and conservation technologies will be backed by supportprograms in applied research.

Strategies provide for cost sharing between governments and beneficiaries in wayswhich best match the ability and willingness to pay of consumers with the objective of fullsustainability. While it is recognized that subsidies will be needed in many Africancountries for some time to come, policies adopted will bring financial viability to sectororganizations, economic efficiency and social equity. New avenues are being sought tomobilize financial resources for the sector through the creation of appropriate financialintermediaries, such as credit unions, and initiatives through the banking sector.

The Abidjan Accord has been reached in a spirit of cooperation and collaborationwhich must be continued. The detailed agreement on strategic approaches will now bewidely disseminated.

For the future, the Abidjan delegates are committed to continuing their collaborativeefforts, and will immediately seek mechanisms-including the-proposed Regional OrientationCommittee--to ensure regular exchange of expertise and experience within the Region. -Inthis they have been assured the full support of the African Development Bank, the WorldBank, and other external support agencies. Sector specialists will seek the cooperation ofpolitical leaders and external support agencies in promoting the enormous needs of thesector at every opportunity to as wide an audience as possible.

Meanwhile, the countries have asked that this statement of commitment, and thestrategies which will result from it, should be promoted widely, beginning with the GlobalConsultation to be held in New Delhi, India in September 1990.

Te Chairmen of the five Working Groups who developed the Consultation working paper into anagreed strategy are: Messrs. Cardoso of Guinea Bissau, Nenonene of Togo, Kadima Mwamba of Zaire,Ceko of Swaziland, and Birru Ittisa of Ethiopia.

GUIDELINES FOR THE DEVELOPMENTOF COUNTRY STRATEGIES FOR THE 1990s*

SUMMARY * Access to capital market and private savings bythe sector should be promoted through the

The Decade has provided sector policymakers creation of appropriate financial intermediaries.with many lessons, some of them self-evident anduniversally accepted, others less easily recognized. * Rehabilitation and maintenance of assets andlmplementation of strategies developed on the basis effective management should be given priority,of these lessons should help accomplish lontg-term both for operational reasons and to make theimprovements in the management and operations of sector more attractive to investors.the sector, increasing its efficienrcy and its ability tofinance a greater proportion of investmentsfrom its * Commnunity and especially women's participationown resources. This would make the sector more must be an integral part of all projectattractive for external investments and, hopefully, developrent and implementation, varying only inwould lead to the geeneration of the financial degree between conventional urban and peri-resources needed to reach the goals setfor the sector urban or rural projects.at the beginning of the Decade.

Institutional decentralization and restructuringSuggested Strategies for the 1990s should be implemented to bring decision-making

closer to the user. Privatization, including* Each country should formulate a sector community ownership, should be part of this

development strategy defining, inter alia, sector restructuring, as appropriate.objectives, institutional responsibility andauthority, and resource allocation and cost * Technologies should be appropriate to therecovery policies (at government request, extemal socio-cultural conditions in the communities theysupport agencies [ESAs] may advise on the are designed to serve, and should be theformulation of this strategy). least-cost solution to solve the problem at hand.

The use of appropriate technology must be* All participants in the sector's development-both promoted through training, information

ESAs and country organizations-should be dissemination and applied research programs.govemed by this development strategy. ESAsshould increase collaborative and complementary * To accelerate service to the underserved,activities to increase sector effectiveness. investment priority should be to provide the

maximum number of people with at least basic* Investments should be based on effective demnand service before upgrading service standards of

and long-term sustainability by the users (by those already with adequate service.payment or by their own efforts) of the facilitiesbuilt. Tariffs set to recover the cost of service * The scope of sector services should include watershould ensure the financial viability of the service supply, sanitation, and hygiene education, withorganization, economic efficiency and social rainwater drainage and solid waste removalequity.

* The Guidelines were annexed to the Conference Statement: Abidjan Accord as part of the presentation in NewDelhi in September 1990.

understood to be integral part of any In the future, the greatest success of the Decadecomprehensive sanitation strategy. may very well be seen to have been the creation of

the awareness of these issues by those responsible forThe African Development Bank (ADB) and other sector development.organizations should be encouraged to organizeregular regional meetings to provide for the Objectiveexchange of experience and expertise amongAfrican countries. At the regional and The objective of this paper is to help countriessub-regional level, a Regional Orientation to develop strategiesfor the sector which willCommittee should be established, which would enhance the prospeas of achieving more rapidmeet periodically to review sector progress and progress towards the achievement of their targetsstrategies, and to recommend adjustment to the in the 1990s.Strategy Guidelines, as necessary.

Because strmtegies must reflect countryI. INTRODUCTION conditions, this paper presents a sector program

outline which can be adapted by each country to itsBackground own situation. The program outline: (i) briefly

discusses issues; (ii) explains the process of programThe 1980s were declared the Intemational development; nd (iii) suggests policies and

Drinking Water Supply and Sanitation Decade strategies. The paper then concludes with suggestions(IDWSSD) by the United Nations (UN), in order to on how intemational collaboration can contribute togive the sector greater visibility and to encourage a country's development of the sector.govemnments and donors to provide all commnunitieswith adequate services by the end of the Decade. A draft of this paper was presented by ADB as aThat objective has not been accomplished. However, contribution towards the development of sectorconsiderable advances were mnade in developing more strategies for the 1990s. Its final version reflects thecost-effective approaches. discussions held among delegates from African

countries and ESAs during the Abidjan Conference.The new methods include the use of a greater

variety of technologies which are more responsive to 1. SECTOR PLANNING AND PROGRAMMINGthe users' socioeconomic environment, and whichstress the participation of communities (and To achieve satisfactory results, any organizationparticularly of women) in the decisions on technology must define its objectives, formulate policies on howchoice, on financing, and in the operation and to achieve them, and devise a strategy for actionsmaintenance of facilities. Properly implemented, which will achieve the desired result. In the waterthese new approaches promise for the 1990s what the sector, governments usually determine or at leastDecade could not achieve. approve objectives, and set policies which define the

sector organizations' responsibilities and operatingThese considerations are equally true for urban authority. These organizations in turn define

and rural area and their subdivisions, although the strategies and action plans to implemnent them. Theempha-as and method of application may be different following is a brief outline of this process.becaua:

Sector Objectives7here iJ no unitersal solution appropriate foreve", sua,iont, onivn a cointmon objectitv: to There are several major objectives common toselct from all the choices aawilable the one the most programs:cw.mmrtv is able to sustain oivr the long tenn,hiw rv the crruinunint is defit,ed, and howeter * Social and economric developimentir JStAtOs the facilities, bv its own lhbor or bYpZrnwg somwone t) do ir. * Support to urban anud rural developmenr

* Improvement of human health and productivity, The bnplenentation Proc1as well as relief from the chore of watercollecion The process leading to the approval and

implementation of sector plans and progrms proceeds* Support to economically productive actiwties, in several steps, and involves activities which can

such as industry, commerce and tourism take place simultaneously. It needs to considerpolicies, strategies and programs which already exist,

* Long-term sustainability and financial and to modify or confirm them. The steps consist of:self-sufficiency (i) a Statement of Position (Position Paper); (ii)

Discussion of Issues (assues Paper); (iii) Strategy* Provision of basic services to as many people as Formulation; and (iv) an Action Plan. ESAs should

possible, rather than the enhancement of levels of be involved in each step of the implementationservicefor those already served process, as appropriate, but should not seek to

influence the content of the stratgy or Action Plan.* Proecaion of the environment, and particularly

of water resources The Position Paper

Policies This paper provides country background andTo achieve the objectives, policies should provide information about the sector necessary to evaluate itsfor: performance and identify constraints impeding its

progress. The topics to be covered are the following:* Community Participation in rural and peri-urban

areas * Counny Background- Economic and Health Indicators

* Institutions and Support Structures appropriate * Water Resource Availabilityto the communities being served * Sector Organization

Service Coverage and Extension Standardse Coordinating Mechanisms, snce most progrms Quality Standaris

will involve activities by a large number of * Sector Objectivesorganizations * Financial Implications

* Involvenent of non-governmental organizations' Project Justification Criteria based on priority (NGOs)of service to the underserved, optimization of * Involvement of ESAsinvestments, and long-term sustainability ofservices The Issues Paper

* Resource Allocation and Cost Recovery leading Its purpose is to present the major constraintsto financial self-sufficiency of the sector and, which affect the progress of the sector, and toultimately, to the principle of user payment for provide the analysis which leads to the establishmentservices or revision of objectives, policies, strategies and

plans. Both what has worked well and what has* Institutional and Human Resource Development failed need to be evaluated. The water supply and

conditions clearly establishing institutional sanitation (WSS) sector is extraordinarily complexresponsibilities and autonomy because it affects developmental and human behavior

issues and in turn is affected by them. Some of the* Promotion of and support to sector-related local principle issues are discussed below.

enterprises

Institutional Dewelopment * In rural and pen-urban areas, manyresponsibilities can be transferred to NGOs; these

* Institutional development is invariably the most are often better equipped to perform outreach anddifficult problem faced by the sector. This is grasstoots-level tasks.because the problems concern not only theinstitutions themselves, but also deal with Resource Mobilizationgovernment policies and political issues.

* Policy setting on resource mobilization is the* The role ofthe government should shift from that responsibility of the government; policies will be

of a provider to that of a promoter. defined according to sustainability anddevelopment objectives of the sector for urban

* Community Participation is essential to all and rural areas aike. There will be policies onprojects if they are to be successful. Community operation, maintenance, rehabilitation,participation ranges from marketing efforts to replacement and extensions.convince users in urban core areas of the needfor proposed measures (and the inevitable tariff * In urban areas, operation and maintenance shouldincrease), to actual participation of the user in be funded from charges for services provided bythe decision-making and implementation process the institution. Rehabilitation, replacement andin rural areas or peri-urban districts. extensions may be financed from borrowings

because sufficient capital cannot normally be* Decentralization is essential if an organization is generated from current income or accumulated

to be responsive to local communities. Ideally, savings. Grants are often used to provide fundsthe objective should be to create a support for capital expansion, but no govemnment orstructure which will help the community external donor is able to satisfy the sector's(however defined) to implement, operate and capital needs over the long term.maintain its own systems. Where ahighly-centralized structure exists, the first step * Efficient Operation, including adequatemay be to ensure that true decision-making maintenance of assets, is an indispensableauthority is transferred to local level, within condition to attract capital and to engender in aoverall guidelines laid down at central level. If user a willingness to pay for services provided.this is successful, it can be followed by Unaccounted-for water rates of 50 percent telldevolution of autonomy to the local unit. both user and financier of incompetent

perations.* Privatization is one of several possibilities to

achievedecentralizationand improvedoperational * Effective Demand determination is the basis forefficiency. The overall aim should be to take developing sound investment programs which aremaaimum advantage of the resources and a second prerequisite to attract capital; itscapabilities of public sector agencies (at all absence in the past has commonly resulted inlevels). NGOs, and the private sector (formal and overestimation of consumer demand, excessiveinformal). A decision on full or partial investment and, consequently, inadequateprrvfization should be based on whether the revenues. There is no doubt that in the long termpnvate mervice provided is superior at the same the users in the WSS sector have to pay for the

or lr cost than the same service if provided services they receive, just as they do in other

by public authorities. Where appropriate, the service sectors. Users must therefore be in a

risfar of authority can be achieved step by step; position to express how much they are willing toIn * number of African countries, one pay for a given standard of service (effectiveumserdiate step could be to strengthen and give demand) and have a say in determining thatapproprate authority to regional and local public standard. It follows that technology and service

lor bodies and to commnunity organizations, level options available must be clearly linked tomd to equip them to implement, operate and ability of potential beneficiaries to pay for them.mimain waer and sanitation facilities. Design for effective demand will result in

efficient projects, and avoid excessive investment it is more difficult to quantify benefits. Carefuland excessive financial burdens on government. analysis of health and environmenta benefits

often helps to quantify at least some of them. AsEquitable Chargesfor Cost Recovry are required a minimum, such an analysis will help to identifyfor a fair allocation of the financial burden on ways and means to reduce cost and/or optimizethe consumer. Charges, whether based on benefits. The principal benefits listed oftenmetered consumption of water for both water and include:sewerage, earmarked real estate taxes, chargesfor on-site pit emptying or maintenance, * Health benefits and improved quality of lifeenvironmental improvement taxes or others, must * Increased income, due to greater personalincorporate three important factors. They must: productivity

* Income from the sale of water and the* signal to the consumer the financial cost of provision of sanitation services

the service (by charging at least the marginal * Increased commercial and industrial activitiescost at the highest level of water * Increased value of real estateconsumption) * Reduction of health care costs

* Improvements in environmental conditions* provide the necessary income to the

institution to enable it to operate and Improved Healthmaintain its assets and provide funds forroutine expansion * Improved Health is an important benefit of

adequate WSS services. Adequate access toX be equitable by charging appropriately for drinking water is, among other things, a vital

each standard of service factor in the fight against dracunculiasis.However, health improvements require other

* In rural areas, the principle of cost recovery interventions, such as hygiene education, notjustthrough user payments may have to be WSS. A recent review of literature by the Worldestablished step by step, taking into account the Health Organization (WHO) revealed that such aability of beneficiaries to pay for the services. combination can reduce diarrhea morbidity by asIn order to enhance this ability, sector projects much as 50 percent. Linkages therefore have toshould include income-generating activities. be established with organizations responsible forMoreover, runl banks and credit unions should hygiene education. Recent work also indicatesbe developed to facilitate lending to communities that filariasi and dengue fever are on thefor sector projects. increase in urban areas. Lack of proper drainage

and inadequate environmental services contribute* Financial Intermediaries for Investment Funds to this increase.

will assume greater importance with increasingdecentralization of the sector. Decentralization lhe Role of Wotnenshould therefore provide for the establishment ofan institution to channel funds to sector * One of the anomalies in rural water supply andinstitutions from govemment and external sanitation at the beginning of the Decade wasdonors. that women, responsible since time immemorial

for carrying water to the household, were notFinancial and Economic Benefits given the responsibility to maintain simnple water

systems when they became available to the* Financial and Economic Benefits must justify community. Today, women are becoming equal

project investments in any sector. The WSS partners in the management of water facilities insector is no exception, merely a sector in which rural communities. In the urban areas,

particularly in the negkected peri-urban areas, An Integrated Approachwomen's role in the sector's development is justas important. They are productive members of * An Integrated Approach to the provision ofthe urban society and generate income through expanded sector services in urban areas should bemany economic activities, as independent considered, so that the impact and -theentrepreneurs and as employees. These econonic complementarity of various interventions can beactivities come to a halt, or are at least seriously evaluated, and coordinated solutionsreduced, when a woman has to go in search of implemented, in order to provide the benefits ofwater, wait in line for it, or take care of a sick WSS to the greatest number of people at leastfamily member. Women therefore have a vested cost.interest in the sector's performance, and mustalso become partners in the sector's development. Water Resource Development

Technology Choice * Water Resource Development, the allocation andefficient use of water resources, is an

Technology Choice was a major issue at the increasingly important issue for WSS sectorbeginning of the Decade, primarily because the organizations. When water resources are scarce,standard approach at the time was based on priority should be given to the provision ofindustrialized countries' technologies. Today drinking water. Urban institutions in particularthere exists a consensus that technology must be must encourage water conservation (through theappropriate to the socio-cultural environment use of appliances with low water consumption,where it is to be used, to the financial capacity appropriate tariffs, etc.) to reduce the cost ofof the user to pay for it, and to the user's ability importing water and the expenses of subsequentto operate and maintain it. Experience shows disposal.that these are indispensable conditions for theachievement of long-term sustainability. To this Strategy Formulationend, it is necessary to encourage and supportapplied research efforts in national centers in the Strategies describe how the government expectscountries of the Region. Technology choices its policies to be implemented, and what actions areshould take into consideration the advantages of to be taken to achieve the desired objectives. Theystandardization; this should be recognized by should specify, inter alia, that:ESAs.

- Effective Demand should be the basis of projectEnvironmental Impacts nd program design, in order to ensure the

long-term sustainability of new projects.* Environmental Impacts caused by inadequate

WSS are particularly serious for inhabitants of * Rehabilitation of existing assets has to be givenperi-urban areas, although they also affect, but to priority over the addition of new assets. As aa lesser degree, the entire urban and adjacent minimum, financing of new facilities should berural population. For the pei-urban dweller, the conditional on concurrent rehabilitation ofpolluted nearby surface waters are often the existing deteriorated assets.principal source of water, supplemented byexpensive drinking water from vendors. Health * Credit and Repayment Mechanisms graduallyhazards and the financial drain on limited leading to financial self-sufficiency of the sectorresources are obvious.

must be established. To this end, the govemment and expertise through such mwhanisms as themust promote and provide incentives for savings proposed Regional Orientation Committee andand encourge the development of financial regional professional associations. Withinintermediaries through the banking sector. individual projects, a budget line needs to be

provided for the allocation of technical* Technology Choice should be based on information and its dissemination.

appropriateness and meeting effective deannd atleast cost with due consideration for the benefits * Collaboration with ESAs should followof standardization. established govemrnmnt policies, priorities and

suategies.* haining and Applied Research Acivities must

continue to contribute to the development of * Sensitization of Communities to the needs for andppropriate technology. benefits of improved water supply, sanitation and

hygiene education is an important prequisite of* Community Management of peri-urban and rural program planning based on effective demand.

WSS facilities is required to achieve long-termsustainability. * A National Action Plan should be formulated,

which reflects not just the perceived needs of the* InitialAciv7ties in the development of peri-urban WSS sector, but also other sector priorities, and

and rurl WSS progruas should always include the links between sectors.hYgiene education and the promotion ofcommunity participation. The Action Plan

* Replicability on a large scale is essential and The plan prescribes all those actions required toshould be encouraged so that rural and peri-urban implement the strategy, and should include: (i)WSS coverage can be significantly improved. goverment approvals; and (ii) implementation

activities, with a schedule for their completion.* Decentralization, including strengthening of th The Action Plan should result in:

role and powers of local agencies of public-sectorinstitutions should be introduced or reinforced. * Obijetives, andpoliciesfor their implementation,

Which will result in the provision of WSS services* Where appropriate, a legal framnework for direct on a sustainabk basis to the largest number of

program-ontracts between agencies and peopk possible with any given amount ofgovemments should be established. funding.

* Pnvatization of parts or all of the water supply, * A coordinating mechanism at the policy lewelsaitation and solid waste disposal activities which ensures that allorganizations active in theshould be encouraged, where appropriate. sector, including ESAs, follow the same polcies

in pursuit of the samec objectives.* Eduange of rEperience at national and regional

le[ve should be encouraged, so that sector * A decentralized support structure which candsi ke can lean from experience provide assistance to the communityfor taskselwwere and so improve their own sector's which erceed its ability to undertake, coordinatepeforwce. At national level, multi-agency input from other sectors (public health, etc.),National Action Committees, suitably develop sectorprograms andprojects andprovidestrengthened and authorized, can provide the training to communities and institutionseffective mans of transferring information and necessary to enabk them to deelop andintgating sector policies; regionally, countries implement water and sanitation projecs.sbould support initiatives to exchange experience

* A pipeline of investment projects prepared in ESA Strategiesaccordance with the objectives and policies ofthe sector. Each ESA has objectives set by its government

or governing body and strategies to implement them.* Steps to be taken in order to foster applied Objectives may emphasize specific sub-sectors, for

research and dissemninate information. example rural water supply, strategies forimplementation and, indeed, priorities in country

* Corollary activities designed to increase selection. Most are reasonably flexible in theirself-reliance of the sector (promotion of local implementation policies.manufacturing, etc.).

ESA Coordination and CollaborationMonitoring and Evaluation must be an integral

part of any sector progam. Project developers must During thevarious round-table discussions whichlearn from implementation experience to avoid took place during the Decade, and in which bothrepeating mistakes and to increase the efficiency of ESAs and government sector representatives havethe sector, participated, a consensus on sector concepts has

evolved which includes the role ESAs should play intheir promotion/implementation. The concepts aredescribed in detail in the WHO booklet, 'Global

M. COLLABORATION AND Sector Concepts for Water Supply and SanitationTHE ROLE OF EXTERNAL SUPPORT AGENCIES (March 1987).

Agreement on sector development strategiesThe Role of ESAs under the umbrella of a national policy framework

would make the activities of all ESAs in the countryIt should be noted that the responsibilityfor the more efficient. Eventually, these efforts would lead

provision of WSS services for setting policies andfor to sector program lending (credits) which are moredetermining priorities, is the countries' alone. efficient tools for providing financial support to the

sctor than project-by-project financial assistance.ESAs support and assist with their activities, but

they do not assume responsibility for the sector. Cooperation within agreed upon national policiesAlthough this sems self evident, past history shows would result in greater opportunities foran often excessive influence by ESAs on sector collaboration. A typical example is the financing ofpolicies. Prference for inappropriate technologies, physical facilities by one ESA and the training oflack of ocio-cultural sensitivity and sometimes local staff by another. A variety of otherconflicting approaches and priorities (anongst opportunities for collaboration exists at country level:themselv and with government agencies), haveresulted in problems. * The United Nations Development Programme

(UNDP) is funding technical assistance programsOn de positive side, ESAs have had many from interregional, regional and country funds.

beneficiad impacts with their participation in the The best known of these programs is the projectdevelop_ of the sector. A number of sector sponsoring the regional WSS groups located ing i- hawve benefitted from ESA-supported Abidjan and Nairobi. Many bilateral agencies

trining at dslf, and their financial support has made are participating in this project, either bypos p d smal sector development projects seconding staff to it or by supporting itwithos milLiom of people now provided with financially. The project cooperates withservice wld Sill be without it. The impact of governments in the formulation of sectorlendeon dw sional development of sector policies, programs and action plans, the preparation ofinvest_w segie and institutional development is

projects and institutional development. A companion They helped the exchange of information betweenproject, the International Trining Network (ITN), is representatives of donors and countries, but theredevoted specifically to train national staff in the use have been no opportunities for sector policymakersof appropriate technology and related topics. This to meet on a regular basis.project also is supported by bilateral organizations.The project can serve to further increase collaboration The sector could clearly benefit from a moreat country level and develop consensus on policy and systematic exchange of information at all levels,strategies. among governments and ESAs. Knowledge of

successes (and failures) or of new approaches* Health for All by the Year 2000 is a WHO implemented in one country, can contribute to solving

program which includes WSS in its primary similar problems in another. Use of scarce expertisehealth care activities. This program could or resources to undertake applied research orpromote hygiene education in water and demonstration projects to solve a generic problem orsanitation sector expansion programs. test a new approach may be far more cost-effective

if shared than if each problem were tackled* Healthy Cities is another WHO project supported independently.

by UNDP which deals with the improvement ofthe urban human environmental health conditions ADB is a regional development financingand which could assist national efforts in the institution involved in financing projects in the sectorimprovement of sector services. in Africa since 1968. It has collaborated with

multilateral and bilateral financing institutions, UN* The Mega-Cities Project supported by UNDP Agencies and NGOs involved in the sector in Africa.

attempts to disseminate information about Based on the experience gained in its years ofsuccessful problem-solving in major cities so involvement, ADB has developed and adopted aothers can employ similar methods to improve sector lending policy for its activities in thetheir municipal services, including environmental Continent. As such, it could, with the help of otherservices. institutions, mobilize the necessary human and

financial resources to help its member countriesInformation Erchange develop adequate sector policies and strategies that

will ensure: (i) development and strengthening of theTo coordinate activities successfully, in particular management and operation institutions; (ii) selection

to plan ahead for such cooperation, requires the of the most appropriate and effective projects; andsystematic exchange of information about forthcoming (iii) the systematic extension of WSS services to theactivities as early as possible. The information most deserving section of the population.retrieval systm (CESI) developed by WHO can servethis purpose if supported by ESAs and governments. Regiotial Orientation CorniitteeAccess to CESI or similar information centers shouldbe made eay for governments. In order to strengthen regional consultation and

cooperation for the development of the sector, theRegional Cooperation Conference request ADB to set up a Regional

and the Collaborative Council Orientation Committee as soon as possible. In doingso, to the extent possible, the Orientation Committee

Regional CGoperation should rely on existing sector organizations. Theobjectives of the Conmuittee would be:

RcgIoa consultations organized by WHO andUNDP with the support of various bilateral agencies * to monitor the development of the WSS sectorhave led lo a fair degree of consensus on the and the implementation of the strategyumportant aeu of the sector's development. These recommended by the Abidjan Conferenceco tsultxis wte organized on an ad hoc basis.

* to promote the exchange of experience and the improve the effecveness of their individual programssharing of skills and projects, and to encourage joint activities on

topics of common interest such as applied research,* tore iewthe orientations of programs undertaken dissemination of information, and institutional

at regional and sub-regional levels development. The Collaborative Council has alsoincreasingly become a forum where sector

* to liaise with the global consultation bodies, in professionals from developed and developingparticular with the Collaborative Council and countries can meet and exchange ideas.similar bodies Consequently, it is desirable that the proposed

Regional Orientation Committee be represented in theCollaborative Councl Collaborative Council. It is equally desirable that the

Collaborative Council assist regional agencies (suchThe ESAs participating in the Collaborative as ADB) in mobilizing ESA support for regional

Council do so in order to exchange information about activities such as workshops, seminars and othertheir activities for the purpose of promoting consultations and collaborative activities.cooperation at country level, to share experiences to

RURAL WATER SUPPLY AND SANITATION WORKSHOPSUMMARY OF WORKING GROUP REPORTS*

Accelerated provision of sustainable water supply and sanitation services in the rural areas of Africaduring the 1990s requires a fundamental change in the role of central and local government, the formal andinformal private sector, and local communities. Govemments must progressively change from being directproviders of rural water supply and sanitation (RWSS) services to being mainly promoters, equipping localorganizations to implement and manage new services. In taking over the responsibility for the choice andmanagement of their own facilities, beneficiaries must contribute a substantial proportion of the costs ofsustaining the services. For most African countries, the immediate need is to establish a clear policy andregulatory framework, backed by a firm political commitment to bring widespread and sustainable servicesto the rural population within a specified and achievable time frame.

Main FindingsMany governments in Africa are presendy providers of RWSS services. In the-1990si the pimary

role of government should shift from provider to promoter or facilitator. The objective should be to createan enabling environment in which sustainable services can be provided, taking maximum advantage of thecapabilities of central and local govemment, the formal and informal sector, non-governmental organizations(NGOs) and communities. The pace of this decentralization will necessarily be gradual during the 1990s,varying from country to country, and linked to capacity building at the national, regional and local levels.

Today in Africa, costs of RWSS are heavily-often fully-subsidized. This cannot be sustained. Whileit will still be necessary for govemments to subsidize a substantia proportion of the capital costs of newservices, beneficiaries must shoulder most or aU of the recurrent cost of operation andmaintenance. 'Thisimplies that service levels and technologies cannot be prescribed but mustbe responsive to consumerdemand.

In implementing these institutional and financial reforms, govenments need to establih a clear policyand regulatory framework for sector development. The ctivities of sector institutions, NGOs and externalsupport agencies (ESAs) should be defined and coordinatod withinthis fiamework. Few countries in Africapresently have such a franework.

-nstltution.Institutional roles will need to changp in order to Cope with pir for Accelerating. octot

development. The time frame and the extent of the shift iD the role of governmet will depend on poaitcaleconomic and environmental factors. In some countries, govewnnts :rI':lryiid assumig a pru -ionalrole, including animation and health oducation. To a n enablig e for sctordp igovernments' promotiona ole illa inclu h bfic tbit appropriate policies and legislation, coordination of ppor agene, ev etof m o-,planning and standardization, and monitoring4 nd ealuation.

The process of docentralization reqliires sitnthening th capacity of local governments and-ofcommunity organizations to manage simplo systems. Women'saorganizations can play a particuarly importantrole in the management of services. It may, however, bo difficult to achieve community management in-theshort term; this should be facilitated by appropriate legislation and supportstructures. Sensitization of localcommunities to their changing responsibilities will be an important precondition of the now approach.

The promotional role of govermment will also include supporting the formal and informa privat sectorthrough training, the provision of incentives and the creation of the right market conditions, Attontion shouldbe paid to supporting local artisans as providers of construction and operation and maintenance services.Privatization of drilling and other activities may teduce costs and improve efficiency,

* This Summay was annexed to the Conference Statement: Abidjan Accord as part of the presentation in NewDelhi, September 1990.

Finame and Resource MobilizationA strong political wil is needed to, ensure thes institutional reforms. It will therefore be important to

raise the awarness of politicians to the justification for and implications of change.

TMere is general agreement that the principles of cost recovery linked to effective demand should be

progressively adopted in the delivery of RWSS services. It is reognized that in some areas, especially where

water has traditionally been regarded as free, cost sharing will need to be treated with particular sensitivity.

Capital costs of the provision of RWSS ae differentiated from recurrent costs of operation and

maintenance (including depreciation or amortization). Financing capital costs should be largely the

responsibility of governments, through their own resources or with the support of ESAs. Demand for services

will be reflected by community contributions to these capital costs, either in cash or in kind. Subsidies should

not be used indiscriminately, but to ensure the widespread provision of basic services and to meet the costs

of promotion activities of government. Govemrnments and ESAs should ensure that sufficient esources are

devoted to outreach activities, sensitization, training, etc.

Beneficiaries should progressively assume nearly all of the recurrent costs of operation and mantenance.User acceptance of charging systems will often be improved if funds are collected and managed by thecommunity, rather than channeled to central governmnt treasuries. Recurrent cost recovery may also be

made more feasible if income-generating activities are linked to RWSS interventions.

Accelerated service coverage in the 1990s can be achieved by reducing unit costs and mobilizing

additional resources. Cost can be reduced by the adoption of appropriate technologies and service levels, and

by increasing the efficiency of sector institutions. Particular attention should be paid to reducing the

extremely high cost of drilling in Africa. New sources of finacing in wral ars need to be :explored;

possibilities include mutual credit unions. Private banks should be encourged to develop financial packages

suitable for community organization.Sector ManagaentC

Goverments need to have an effective mechanism for coordinating sector policies, planning andmanagement. Furthermore, they need to take strong initiatives in developing and enforeing a soundsector.policy and regulatory famework, within which national sector institutions and ESAs can provide diatdsupport. Such a framework should reduce the need for ESA conditionaity ad discoue tied aid. Effective

coordination can be jeopardized by ESAs that re notvwilling to conform to established poies ndsrgies.

In the development of sector strategies and the implention of program, maximm use should be

made of national and regional expertise, thus building the ccity of local conltnts and contractors. All

RWSS programs dhuld include components for trining a nd national technicians and expert

to minim tihe use of expensive technical assistance in the future..- i i

RWSS sctor planning should form part of rural development planning and, at the national level, be

integrated into the economic development planning and budgeting process. In the l990s special attention

needs to be paid to planning for rural sanitation, largey lyeglected to date.

There is a need for mechanisms that will enable external assistance to be more directly channeled to

community activities. Governments should seek ways to enable local organizations to enter contracts directly

with support agencies.Action

Participants welcomed the opportunity that the workshop had provided to focus attention on the daunting

prolems of providing sustinable RWSS services in Africa. Th recommendations and conclusions of the

five working groups represent a consensus of the delegates, who requested their wide dissemination to

govrnments and ESAs for endorsement and implementation. The workshop provided a good beginning to

rioal cswltation and orientation in Africa, which now mast be translated into effective action at the

country level.

PART I

RURAL WATER SUPPLY AND SANITATION

WORKSHOP

May 7-9, 1990

WORKSHOP PROGRAMh

Monday, May 7, 1990

Time Session Topic Speakers

9:00 am 1 Introduction

* Opening Ceremony Mr. F. Lounes, Vice President,West Africa Operations, ADB

* Introductory Remarks Mr. Jean Doyen, Division Chief, WB* Welcoming Statement Mr. Bamba Vamoussa, Minister of Public

Works, Transportation, Construction andUrbmnism, Cote d'Ivoire

10:30 am Coffee Break

- Workshop Framework Mr. Randolph Andersen,Principal Financial Analyst, WB

11:00 am 2a Contribution of Rural Water Prof. Makanjuola, Director,Supply and Sanitation to Rural DFRRI, NigeriaDevelopmentProsentation and Discussion Panel: Mr. Las Rasmusson, WB

2b The Role of Women in Rural Water Ms. A. Traore, PROWWESSWater Supply and SanitationPresentation and Discussion

1:00 pm Lunch

2:30 pm 3 Technology Devdopment Mr. R. Roche, WBIRWSGProsentation and Discussion Panel: Mr. J. Mvududu, Zimbabwe

Mr. B. Wolde-Gabrielle, WB/RWSG

4:00 pm Coffee Break

4:30 pm Meeting of Working Groups;Introduction and Appointment ofChairmen and Rapporteurs

6:00 pm Meeting of Chairmen

'Mt. Kwgw Chaufournier, former Vice President, World Bank, and Dr. Letitia Obeng, UNDP/WB, served asClii md co-Chairperson respectively for the plenary sessions of the Workshop.

Tuesday, May 8, 1990

Time Session Topic Spakers

Group9:00 am 4 Institutional Issues 1 Mr. F. Ben Slimmne, WB

Presentation and Discussion in 2 Mr. G. Tschannerl, WBFive Working Groups 3 Mr. D. Gubler, ADB

4 Mr. K. Khotle, ADB5 Mr. D. Grey, WB/UNDP

11:00 am 4 Institutional Issues (continued)

11:30 pm 5 Financial Resource Mobilization 1 Mr. A. IAou, MoroccoPresentation and Discussion in 2 Ms. P. Boerma, WB/UNDPFive Worling Groups 3 Mr. L. Laugeri, WHO

4 Mr. H. Garn, WBIUNDP5 Mr. U. Mbonefo, WBIRWSG

1 2:30 Lunch

2:00 pm 5 Funandal Resource Mobilization (continued)

4:00 pm 6 SODECI - Presentation Mr. M. Zadi Kessy,and Technical Visit PDG, SODECI

Wednesday, May 9, 1990

Time Session Topic Speakers

Group9:00 am 7 Rethinking Sector Managanent 1 Mr. A. Locussol, WB/RWSG

Presentation and Discussion in 2 Mr. S. Diakite, ADBFive Worling Groups 3 Mr. H. Le Masson, CCCE

4 Mr. L. Rasmusson, WB5 Mr. K. laubjerg, DANIDA

11:00 am Discussion in Five Workcing Groups

12:30 pm Lunch

Rapporteurs2:00 pm 8 Summary of Discussions in 1 Mr. Abdou Hassane, Niger

Plenary Session 2 Mr. Emmanuel Hell, Cameroon* Institutional Issues Mr. Kouadio Amani, C.D.I.* Fnancal Resource 3 Mrs. Kambaba Bilonda, Zaire

Mobilization Mr. Mohamed Adamou, Comores* Rethinking Sector 4 Mr. Balisi Khupe, Botswana

Managanent 5 Mr. Momodou Sahor, The Gambia

4:00 pm Diswussion and Approval ofWorkshop Statanent

OPENING ADDRESS

Mr. F. Lounes

Vice-PresidentOperations for Region II

Your Excellency Mr. Minister, Honored Guests, The provision of drinking water and sanitationDelegates, Ladies and Gentlemen: facilities to the entire population seems to us to be a

highly justified goal. However, the attainment ofThe first Decade for the development of the this objective during the Decade turned out to be

water supply and sanitation (WSS) sector ends this unrealistic, both because of an underestimation of theyear, and we meet here today to assess the situation financing required and an overestimation of theand to reflect on the future. economic capacities of the African countries to

mobilize such amounts. Indeed, according to someFirst, however, in the name of the President of estimates, a minimum of approximately $50 billion

the African Development Bank (ADB), in the name would have been required to reach Africa's objective,of all of you, and in the name of the organizing and yet the actual mobilization of resources duringinstitutions, I would like to thank Mr. Bamba the first two-thirds of the Decade did not exceed $5Vamoussa, Minister of Public Works, Transportation, billion.Construction and Urbanism in Cote d'lvoire, forhaving honored us with his presence at the During the Decade, Africa was in the midst ofinauguration of this meeting. a difficult economic situation. Macroeconomic

political reforns weighed heavily on the volume ofI would next like to thank the delegates public investments, and especially on social

representing regional member states, bilateral and investments. Today, it is clear that changes must bemultilateral agencies, international institutions and made in favor of social investments in order tonon-governmental organizations for having responded compensate structural adjustment costs borne by theto our invitation, as well as the agencies whose most underprivileged segments of the population.financing has made this meeting possible.

TMe rate of population growth has been high.Finally, I would like to express my pleasure in The population explosion we have witnessed-

the collaboration which was established between our growing at an average rate of six percent per year-institution, the World Bank (WB) and the United is unprecedented in the history of mankind. The poorNations Development Programme/World Health and newly urbanized population has exertedOrganization Collaborative Council for organizing considerable pressure on the demand for publicand making the preparations for this meeting. To all services. This was particularly evident in the WSSof you, I bid you welcome. sector, and thus an already unfavorable situation

continued to dderiorate.Drinking water is & basic human necessity, as is

food, housing, education and health. The objective The results of the Decade have varied greatlyof the WSS sector is to meet this need, and, in so from country to country. Although certain countriesdoing, to contribute to economic and social have obtained appreciable results, overall, thedevelopment by improving public health and the approaches chosen and the measures taken have notquality of life. For the past ten years all of us- been appropriate in view of the magnitude of thegovenmments and institutions alike-have joined problem. Indeed, because of the lack of clearlytogether to attain this objective.

defined policies, critria for selection and setting of The significant disparity of coveage betweepnortios, the objectives of the WSS sector have not rural and ubon areas is one of the reasons forboen realistic and have not always been supported by choosing the topic of the workshop (which has boewa rigorous mobilization of available resources. organized by WB) on which you have been invited to

reflect for these first three days. However, otherIn the rural areas-too often neglected-projects considertions have also influenced the selection of

did not always consider the needs and the actual this topic. First of all, runal populations represent 68capacities of the targeted populations. Hence, the percent of Africa's total population. In addition, theyatt were subjected to solutions and techniques they ae the poorest populations and the ones which have

were unable to naster. least benefited from the WSS sector investments madeduring the Decade. Moreover, the prioity given to

In urban areas, institutions created to provide agricultural development implies the improvement ofdrinking water to the populations and to raise the the standard of living in rural areas. If the long-termfinancial resources imperative for sector development improvement in the standad of living in mral reaswere not able to fulfill their task. A arge number of will result from agricultural development, the latterthese enterprises lck financial and manageril is itself conditioned by social development in rualautonomy. Their material, human and financial aeas.resoures are limited, and they are dependent ongovemnment subsidies. Their management is often We must admit that social investments have notineffective, thus resulting in expensive, ermtic and been sufficient with regards to education and health.mediocre service. And the first to be penalized by The development of the sector in rural areas providessuch service is the low-income pei-urban popuation. the opportunity to partially compesate for lost timeThese deficiencies have had an impact not only on the by the implementation of education and healthquality of service, but also on the preparation of progrnas as components of each water and sanitationdevelopment plans, on the identification and project.preparation of projects, and on their implementation.

Mm recommendations of the workshop on ruralThe lack of realistic policies has also weighed areas will provide important tools for the two-day

heavily on the results of the Decade. At the end of conference organid by ADB to dcuss sbategies forthe Decade, the available provisional data shows that the development of the WSS sector, whether in rual,between 1980 and 1989, the overall urbn coverge peri-urbmn or wban ars.for water supply and for sanitation increased from 66percent to 78 percent and from 54 prcent to 75 At ADB, we believe that while the Decade haspercent respectively. On the other hand, in runl not met its quantitative objectives, it has neverthelessareas where the starting points were 22 percent for facilitated a very wide exchange of views on thewater supply and 20 percent for sanitation, at the end nature of the problems and altenative approaches toof the Decade coverage is at most 25 percent. solve them. It is in light of more than 20 years of

experience in financing development activities in theWe must admit that the efforts of the donor WSS sector, and important interventions during the

agencies have been well below the sector's needs: past 10 years (resulting from the dialogue betweenonly ten percent of agency financing has been regional member states during the Decade), that ADBallocated to investments in rural areas. We are of has elaborated a Secor PoUcy Docwment.the opinion that governments and donor agenciessbould star to rectify this disparity. They should Throughout this week you will be asked tomobilize and allocate more funding to the nual water confront and debate extremly important and complexsupply and sanitation sector in the future. issues in order to answer two decisive questions

conceming sector development:

* To what extent can we provide drinking water to the conferce in New Delhi with a unified view

and sanitation services to the greatest portion of on the strategies to implement. It is because our

the population? needs are vital and important and becae ourresources are limited that the task which faces us is

* To what extent can we set up durable and self- both stimulating nd formidable, purticularly given

maintained systems? the economic situation in most of our countries.

At the end of this Decade, the African countries Nevertheless, I am confident that by drawing on

and the institutions supporting their efforts for WSS unbiased conclusions from our own experiences, and

sector development have accumulated considerable by depending above all on ourselves and our own

experience. A consensus is now taking shape which, resources, we will be able to start the 90s under the

we are convinced, your delibeations will confirm. best of conditions. It is with these words ofencouragement and hope that I would like to wish

The objective of this meeting will be reached you much success in your work.when, after these days of discussion, Africa will go

INTRODUCTORY REMARKS

RURAL WATER SUPPLY AND SANITATION:COMMON GROUNDS FYOR A RENEWED EFFORT

Mr. Jean DoyenChief, Infrastructure DivisionAfrica Technical Department

The World Bank

Your Excellencies, Honorable Delegates, Ladies and The central question before us is how best toGentlemen: organize, fund and plan the expansion of RWSS

services. Convenient and reliable access to adequateFirst let me reassure you-this is not a keynote quantities of safe water has long been recognized as

speech but instead a few introductory remarks. central to the improvement of living conditions of theModesty of purpose should be very fitting, because rural populations. This has provided the raisonwe at the World Bank (WB) have a lot to learn in the d1'tre for the Intemational Drinking Water Supplyfield of rural water supply and sanitation (RWSS). and Sanitation Decade (IDWSSD). The Decade,The main purpose for agreeing with the African which is coming to a close this year, has drawnDevelopment Bank (ADB) and the United Nations support from a large number of bilateral donors asDevelopment Programme/the World Health well as agencies of the United Nations. TheOrganization and the ESA Collaborative Council to collaborative framework established to promote andhold this Workshop is to enable us to lean from one coordinate the programs initiated under the Decadeanother. has provided the support that has made this meeting

possible. We owe it our thanks.Is there a better place to learn than here in C6te

d'lvoire, which through the program Eau Toujours The technological advances made under thehas developed innovative approaches to the expansion Decade as well as the experience of govermnents,of rural water services to rural communities? We donors, nongovermmental organizations (NGOs) andwill also have the opportunity to gain some communities provide the elements to chart the futurefamiliarity with C8te d'lvoire's urban water directions for the subsector. While efforts andcompany, which stands as an example with its record advances must be recognized, we must also face theof efficiency and continued expansion. While Cbte fact that the overall impact has come short ofd'lvoire has a lot to offer to us professionally, we expectations. A considerable proportion of systemsshould also admit that the warm hospitality of the built have fallen into disrepair and disuse. CoverageIvoirien people, the beauty of the city of Abidjan, in many countries has hardly kept up with populationand, of course, the welcome and support of the growth. There are still over 150 million ruralGovernment are reasons enough to meet in C6te inhabitants in SSA with no access to safe waterd'lvoire. within a reasonable distance of their home. The

counts of children dying of diarrheal diseases and ofOften we at WB are in the position of giving people infested with Guinea Worm keeps mounting.

advice, but today we come to this meeting primarilywith questions. Our purpose is to engage you- The pace of progress must be accelerated. Thepolicymakers, technical experts and practitioners-in question we put before you is: 'How should this bea searb for common grounds for a renewed effort to done?' My purpose this morning is not to providesupport effective and sustainable water supply and answers, but rather to clarify the question and to putsnitation for the rural populations of Sub-Saharan it in context.Africa (SSA).

My next comments will be directed to broad * The study points out that Africa's populationtrends effecting the macroeconomic and policy gowth-which is the highest in human history-framework under which sectoral strategies and is weighing heavily against efforts to raiseprgrams will have to unfold. On the economic income and improve standards of education andfront, the movement for policy reform and structwal welfare.adjustment is gaining momentum. The grossdomestic product (GDP) for the 30 countries * The study calls for investment in people-in theircommitted to stucturl adjustment grew at a rate education and their health-and suggests that coreslightly above the aveage for SSA. Despite programs for the development of humanencouraging results, we should recognize that the resources be doubled and supported by stableresunption of growth is slower than anticipated. It funding from governments as well as donors.has been hamperd by strctural constrints that canonly be resolved over the longer period. * Finally, LTPS underlines the importance of

infnrsue services in creating an enablingIn order to improve its undentanding of these environment for bottom-up development

constraints, WB has recently completed a study strategies.entitled Sub-Saharan fica: From Crisis toSustainabk Growth,' which considers Africa's Having reviewed key elements of the overalldevelopment with a long-term perspective. The policy context under which sectoral programs will bestudy, referred to as the 'Long-Term Perspective developed, I propose that we now review brieflyStudy' or LTPS, attempts to characterize second- infastructure policies for the 1990s. The overallgeneration development strategies. Its central theme situation of infrasructur in SSA is characterized byis that the achievement of sustainable growth with the following:equity depends less on directions from the top thanon the mobilization of skills, energies and resources * First, one sbould recognize that Africa is stillfrom below. grossly underequipped by any measure of access

to infrastructure services-be it kilometers ofLTPS points out that overall economic policies roads per inhabitant, or access to water, powerwill be determined by the deepening of or communication services.adjustment to go beyond stabilization and btcklethe trmnsformation of production strur and * Seoond, many African countries, althoughthe rationalization of the public sector. undeqUippe&, are overburdened by theirAdjustment programs would also have to include infrastructure, i.e., they have tremendousmeasures to alleviate related social impact, for difficulties in sustaining existing capacitieswithout such measures, adjustment cannot be through efficient operations and maintenance.sustained.

* The third point concerning infrastructure services* The improvement of the productivity of the in SSA is that they are generally costly. Their

agriculture sector is seen by LTPS as a central costs re geneally higher than those prevailingobjective of second generation development in other regions. They aTe also high in terms ofstrtegies. To raise incomos and to improve affordability if one compares them to incomeoveall nutrition nd food security, the growth levels, especially in rural areas. The reasons forrate of agricultural production must double to this are many. Let me mention: (i) low densityabout four percent a year. Agriculture accounts of demand which precludes economies of scale;for 35 percent of GDP, 75 percent of (ii) high investment costs; (iii) inefficientemployment and 40 percent of exports. operations and poor maintenance; (iv) weak

'To_*_ain_a___y, coOkct dw Pubkations S&W Unk, Mbe World resource mobilization capabilities within theTo obin a copy. cotr ct b. Publications Des Unibe WoU d sector as well as in the economies as a whole;

a, 15IBN 0Ht3-134. a, D.C. 20433, U.S.A.; nd in many cases one should add (v)inappropriate policies.

LTPS concludes that infrastructure expenditue set parastatal agencies on the course towards financialwill have to be stepped up to 20 percent of public viability and improved performance; and (iii) toinvestment, i.e., about 5 percent of GDP. The study enhance the role of the private sector. Thepoints out the advantage of approaching infrastructure restructuring of large parstatal agenCies and thedevelopment within a stable ftamework, allowing for privatization of infrasucture services is intellectuallylong-term commitment from governments and donors demanding and politically delicate. Privatization canalike. This commitment would have to be founded be approached thrugh a menu of options includingon common policy grounds. Our purpose is to define outright privaization, divestiture of ancilarythese common grounds for RWSS. activities, and management contracts. Often one

importat initial step is to allow private operators toBefore we attack our task, it will be of value to compete with parastata agencies. The devolution to

review priorities for infrstuture progrms and the private sector of functions heretofor swumed bypolicies for the 1990s. public agencies, wiU require a re-examination of

donors' policies since they have used central* The first priority is rehabilitation. One must parastatal agency infiasm ture as privileged channels

arrest the ongoing deterioration. Rehabilitation for external funding.is cheaper than full reconstruction at a later date.It is of higher economic and social priority * The fourth policy dimension for infrastructure inbecause it serves established demand. the 1990s concerns the recognition of the role ofRehabilitation should geneally receive priority the informal sector. Sectoral policies andover new investments. infrastructure programs have generally dealt with

the formal sector. The fact remains, however,* The second focal point of infrastructure policies that in many cases the majority of the population

for the 1990s is maintenance acity. The depends upon the informal or artisanal sector forproblem of maintenance has frustrated both the provision of its basic infrastructure services.governments and donors for the last two decades. This is particularly the case for the poor. TheThere is no quick cure. It is nevertheless clear objoctive here would essentially be to removethat more attention should be paid to the policy constraints to the upgrading of services throughdimensions of the problem. Th consequenc of regulatory changes, training and promotionalneglect are usually borne by a broad and diffused measures based on incentives.constituency. A higher measure of accountabilityand responsiveness to users of inftru * The final and peruhps the most pervasive areasservices would be essental and should be sought for policy chnges concern human resource andthrough ystematic information and through institutiona development. The importance ofconsultations with user groups. Neglect should training has long been recognized; however, thesimply not be aceptable, and maintenance should impact of long-stnding efforts on institutionalbe regarded by the public and by governments performance has, on the whole, beenalike as the most significant determinant of disappointing. New approaches are needed toinstitutional performance. deal not only with training, but also with

utilization and deployment of trained staff and to* The third common policy strand for infrastructure provide motivation for continued professional

in the 1990s is parastatal reform and cost development.recovery. Infrastructure agencies in charge ofroads, railways, water supply, etc. will remain at The buildup of infrastructure capacity needed tothe center of efforts to rationalize the public achieve the overall objectives laid out in LTPS havesector and to improve resource mobilization. been estimated in the magnitude of about $100 billionRelatd programs have the following underlying over the next 10 years. Increased resources will onlyobjectives: (i)to refocus theroleof govemments produce results if the policies necessary to ensureawy from the direct provision of services; (ii) to their efficient use are in place.

Tho first top in -may countries will be to oprtions, WB has boen involved as executndevelop the necooay policy foimdations for the agency for the UNDP Water and Sanitationprearation of strategies and programs for the Programme.improvemont and accelerated development ofinfrastructure sevices. We believe this to be the cae A significant achievement of the Decade has beenin particulr for RWSS. the development of low-cost technologies for

handpumps and filters as well as on-site sanitation.After introducing briefly the raison d'Dtre of our We will have the opportunity to discuss these

Worklhop, we have taken a step back and have advances this afternoon.reviewed broad trends concerning macroeconomicmanagement and development policies. We have then In the institutional area, the concept of villagereflected on infrastucture policies for the 1990s. Let level opeation and maintenance (VLOM) was anus now turn to the subject of our Workshop, that is important step in searching for viable alternatives toRWSS. There is some temerity for me in doing so direct reliance on central institutions. Muchbecause I address myself to specialists. My experience has been gained with innovativeobjectives have been set accordingly, as I will mainly institutional strategies involving central and localattempt to point out the areas of greatest uncertainty governments, as well as the private sector, NGOs andand thereby outline your mandate for the next three the communities themselves. For central institutions,days. the shift from provision of services to promotion and

fcilitation may imply retrenchment and redeploymentLet us again remember that 70 percent of the of personnel-as well as loss of influence and

population of SSA-that is 300 nmillion people-re authority-through decentralization, but also throughrural and their number continues to increase. Hardly the emergence of new capabilities at the communityhalf of them have access to a reliable supply of safe level. The first subject proposed for our reflectionswater. The effectiveness and sustainability of past concerns these institutionat issues.programs, as well as the dissemination and replicationof successful experiences, have beon hapeed by the The second one pertains to financing andabsence of a coberent policy framework and the lack resource mobJlization. The starting point of ourof a clear institutional focus for planning, funding reflection is a recognition that centrally provided freeand maintenance. services have failed over time to meet the needs of

the poor nd to support the expansion of coverage.The experience and research of the past ten years The movement towards appropriate technologies and

suggest that the search for sustainable and effective more flexible and pluralistic institutional approachesRWSS strategies should be oriented in the following has been paralleled by greater acceptance of the ideadirections: (i) appropriate technologies emphasizing tht users can and should contribute toward the costvillage maintenance; (ii) effectiveness in terms of of the services they receive. The new perspective onhealth impact, largely by coordinated measures in cost recovery has led to considering the concept ofhealth and hygiene education; (iii) recognition of the effective demand as the basis for system planning.primary role of women in water management at the The task before us is to provide advice on fundinghousehold level and in child care and education; and and resource mobilization strategies that will, over(iv) involvement of local communities at the planning time, maximize services and serve the need of rraland construction stage as well as in operation and poor.marintenance.

The final subject proposed for our reflections isOn all of these points individual countries, as seeor policy devlopme antd planning. The

wl as their partners in development, have question is not to be seen in a static perspective butexperiences to share. We all have some degree of in a dynamic one. How should countries undertake

amiliarity with the contributions of UNICEF, the process of policy reform and institutional changesUSAMID/WASH, the bilateral aid agencies (especially for RWSS? The need to carefully plan and managethe Scandinavian countries), and nny NGOs such the process of policy reform has not been sufficiently

WazerAid. In addition to its own relatively limited

recognized. The experiences of several countries the sub-sector, provide a sound basis for definingshould provide the basis for useful recommendations. common grounds for a renewed effort to expand

coverage and to improve sustainability andI have tried to place our Workshop in context effectiveness

and to define the task ahead. Like all things whicbspeak of true necessity my points are simple: In defining these common grounds we tum to

you. The outcome of our deliberations will, above* WSS will continue to be essential elements of all, be addressed to African policymakers, planners

strategies centered on the development and the and practitioners from governments, as well as NGOsproductivity of rural populations and the private sector. Our findings will also be

addressed to development agencies and in particular* The overall context for policy changes, as well to WB. They will be reflected in the RWSS Strategy

as the specific experiences and the research in Brief to be issued by the end of the year, and willguide our operational work. Thank you.

WELCOMING STATEMENT

His Excellency Bamba Vamoussa

Minister of Public Works,Transportation, Construction and Urbanism

C6te d'lvoire

Honorable Ministers, Mr. President of the African adequate water supply and sanitation facilities,Development Bank, Your Excellencies Mr. adapted to specific local conditions for the welfareAmbassadors, Honorable Representatives of of their populations.International Institutions, Eminent Delegates ofMember States of the African Development Bank, At the end of the Decade, can we affirm that theLadies and Gentlemen: objectives designed to solve the water problems in

urban and rural areas have been achieved7 Truly, itToday my greatest emotion is joy--the joy of is not easy to give a definitive answer to this

welcoming you to Ivoirien land, this land which question. The retrospective assessment to which youProvidence has enabled our venerated President, His have been invited this morning both highlightsExcellency Felix Houphouet Boigny, to mold with positive experiences-whether in terms of realizationslove and wisdom, in the peace that is essential for all or the implementation of new and developingdevelopment. This is why, in the name of President management mechanisms in the water sector-andF6lix Houphouet Boigny, in the name of the pinpoints problem areas which have inhibited theGovernment and in the naame of the Ivoirien people, reaching of envisioned results.I bid you welcome to C6te d'Ivoire and moreprecisely to Abidjan, our economic capital. Regarding positive experiences, we must admit

that the establishment of the Decade by the UnitedYour presence in our country honors the Ivoirien Nations inspired in the governments of the world a

people, its President, and its international institution, greater awareness of the significance of water forthe African Development Bank (ADB). This morning mankind. This awakening of all humanity to thewe are pleased to stress that our common institution water problem is a major asset, and has prepared ourinspires confidence, respect and admiration, for over consciousness to better appreciate the efforts requiredthese past years its initiatives have embodied to satisfy the needs of populations in the sector withoriginality, seriousness and permanence. We which we are concemed.congratulate and encourage the president of ADB,Mr. Babacar N'Diaye, for his great receptiveness and Moreover, several countries have been able toknow-how. start projects inscribed within the framework of

recommendations of the United Nations in the realmThis morning, we meet to discuss a concern- on which we are focussing today. Thus, various

water, in its complete cycle-a project-how to most mechanisms and methodologies have beenreadily supply the populations with water-and an impplemented and their effectiveness has beenobjecive-to organize a dialogue for assessing our sed. In the final analysis, some mechanismsprogress and restructuring ourselves in order to better deserve to be strengthened, while others wouldrespond to the water needs of our fine rural and benefit from modification.urban populations.

It is on this particular point of the apparentIn 1977, at Mar del Plata, Argentina, the United deficiencies of several investment programs that the

Nations-being fully aware of the acuteness of the ADB and the World Bank (WB) have rightlyproblem of water in the world-unanimously decreed emphasized the following issues:the period 1980-1990 the International DrinkingWater Supply and Sanitation Decade (IDWSSD). * The first issue results from the volume andThe United Nations thus responded to the desire of management of external aid given to differenteacb of its member countries that they be assured countries due to their lack of resources to finance

their own investments. An analysis exemplifies that the lending agencies represnted here rais thethe fact that external aid is fragmentary and consciousness of the developed world to the realitiesinsufficiently coordinated. This has created the of developing countries who ask for nothing otherdanger of contradiction in initiatives. than a stable remuneration for their raw materials, so

they can better measure their investment efforts.* The second issue concerns the insufficiency of

credits for investment in rural water supply. Sweet will be the victory for mankind over itselfAlthough in Sub-Saharan Africa 70 percent of the day when, driven by the truth of justice andthe population is rural, only 6 percent of loans equity and under the guidance of a new ethic inand grants from donor countries in the water North-South relations, this cry-which now echoes insector are directed towards rural areas. You will the bleakness of hearts and minds-will be heard byagree with me that this disproportionate men overcome by good will and justice. Thusallocation is too pronounced. programs of intervention in the water sector will be

reinforced and better oriented to the benefit of the* The third issue emanates from project planning populations.

and the use of affordable technologies. Despitethe remarkable efforts of WB, the United Nations The presence of eminent experts both in theDevelopment Programme, and ADB in this field, realm of finance and in those of management andexperience demonstrates that a new dynamism on water distribution constitute, in our opinion, athe part of African countries is necessary to deal legitimate guarantee for the success of your work.with the requirements of a more intelligent All Africa waits, with a focused attention, for themanagement of the rural sector. conclusions of your discussions, the results of which

will undoubtedly greatly impact the management ofIn other words, in order for water in Africa to the well-being of millions of people on the Continent.

be accessible to the entire population in the future,the following corrective measures are required: (i) For our part, we hope that the necessarytechnical: (ii) financial; (iii) institutional; and (iv) improvements of the rural population's livingpolitical-distinguished by a reallocation of the environment will be tken into considamtion. Wevolume of investments in runl and urban zones. believe that the imbalance of investments in the water

sector stems from the ever more pressng needs of theIt is in this vein that we welcome the aspirations urban population-faced with the numerous constraints

of this meeting organized under the leadership of caused by the rural exodus, which in tu rsultsADB and WB. This meeting provides an opportunity from the low standard of living in many rual areasto refloe on the appropriate directions for the four of Africa. It is therfore necessary to considerareas lsted above in an attempt to adopt a common integrated projects. so that the positive interactions ofposition which will become the 'Voice of Africa' at projects targeted for rual areas will contribute tothe Global Conference on water issues to be held in keeping their populations in their area of origin.New Delhi in 1990. Such projects will undoubtedly contribute to reducing

the needs of urban populations and will favor a moreYet aven more than consensually shaed equitable allocation of investments between rural and

resolubm, we are convinced that the Abidjan urban areas. Political will has a leadership role tomeeting will eable country delegates to highlight a assumne in such a choice.tremendous handicap for developing countries in theirefforts at program planning for short-, medium- and All Africa is listening to you and attentivelylong-.r. ivestments. This handicap derives from follows your deliberations. It waits for you to givethe hera_-ed turbulent-fluctuation of the price of it a 'voice' for New Delhi. On the eve of your daysrw aowas oo the world market. All the systems of deliberation, it is in this hope-that you will givefor pr*mming and choosing investment priorities Africa this voice-that we declare the sessions of theam nderd ineffective by the eroding of the Workshop on Water Supply and Sanitation in Africacondam of exchange. In our view, it is imperative open.

WORKSHOP FRAMEWORK

Mr. Randolph A. Andeisen

Principal Financial AnalystInfrastructure Division

Africa Technical DepartmentThe World Bank

Before we launch into the plenary and group for the Workshop and ADB for the Conference.sessions, I would like to take this opportunity to give The Conference would then provide a logicalyou some briefing notes on four aspects: (i) the extension for the Workshop, with an emphasis onhistory that has led to the holding of this Workshop; urban areas and external support agencies' (ESAs)(ii) the objectives and theme of the Workshop and present and potential role in the sector.how it is linked to the Conference; (iii) somepractical details; and (iv) our expectations for this * Secondly, the objectives and theme of theWorkshop and for the future. Workshop are considered to be: (i) to present and to

share experiences in RWSS in Sub-Saharan Africa;First of all, what brought about this Workshop (ii) to examine different approaches and policy

and Conference? As the Decade was coming to its options available for the further development of theend, within the World Bank (WB) we began to sector; and (iii) for you, the delegates, to developevaluate what we and others had been doing with pragmatic recommendations for future strategies thatregard to ural water supply and sanitation (RWSS). can be implemented by different countries in theIn order to have a better understanding of the issues Region.and directions that ought to be pursued during the1990s, we attempted to capture the experiences of the The objectives are reflected in the topics to be1980s, which could then be used in blending, discussed during plenary and group discussions. Thereviewing and redefining the policies for the 1990s. topics constitute a theme which should lead to an

approach for specific activities to be undertaken at theIn WB we prepared the RWSS Strategy Brief, to country level.

which Mr. Doyen referred. This was preceded by anextensive data gathering exercise and preparation of Today, during three plenary sessions, we arecase studies covering different subject areas in going to cover subjects which will provide a commondifferent countries. Based on this rather extensive understanding of the sector. These are: (i) theamount of information, the position papers before Contributions of RWSS to Rural Development; (ii)you were prepared and will provide the background the Role of Women in RWSS; and (iii) Technologydocumentation for the plenary and group sessions. Development.

The draft RWSS Strategy Brief was also Tomorrow, we will have two group sessions toreviewed and commented upon by the African discuss institutional and financial issues. ByDevelopment Bank (ADB), and it was at that stage Wednesday, we should be well prepared to discussthat therm was agreement between ADB, WB and the approaches to improved management and strategyUnited Nations Development Programme (UNDP) planning that would enable the introduction of whatthat there should be a joint dissemination of we have leamed in larger scale implementation ofcomclusions and recommendations reached in the RWSS facilities. Although any sector developmentStrmtegy Brief. This idea was further developed, and and increased service coverage could be assumed toresultd in the proposal for a combined Workshop be a slow process, concerted efforts by governments,and Conference, with WB to be primarily responsible ESAs and non-governmental organizations (NGOs)

could accelerate the pace.

In the position papers, major issues have been Wednesday. The report from each group should then

identified, which are proposed to be addressed during be consolidated to cover findings and conclusions

plenary, but particularly during the group sessions. reached on Institutional Issues, Resource Mobilization

In order to achieve some uniformity between the and Strategy Planning. Based on these reports,

groups and the group discussions, it is important that Workshop resolutions and conclusions will then be

the issues as identified are firstly concentrated upon, summarized to serve not only as an object in itself,

and if time perrnits, supplemented by other issues but also as an input to the Conference.

which may not have been adequately identified in theview of the delegates. As shown on the agenda for Tuesday aftemoon,

there will be a presentation by SODECI, the water

Thirdly, some practical details. The Workshop authority for Cote d'lvoire.

has been organized in plenary and group sessions,with the countries being divided into five groups, of * So finally, what do we expect to be the result of

which two will be English speaking and three will be the Workshop and what do we do next? I do notFrench speaking. During the plenary sessions which want to preempt any conclusions that may be reachedwill take place today, time will be left for questions during the upcoming sessions, but it shouldto be addressed to the panels after the presentations. nevertheless be emphasized that this Workshop and

also the Conference are to be considered merely aLater on today, the working groups will convene, stepping stone for subsequent activities to take place

providing an opportunity for the participants to get at the country level. At the end of this week, all oftogether and also for the country delegates to select us should have a better understanding of possibilitieschairpersons and rapporteurs. In each group, it is and opportunities that exist and of what we can doproposed to retain the same chairperson and together to accelerate sector development and tomapporteur throughout the three working group realize the objectives of the Water Supply andsessions. This may be questioned as being too Sanitation Decade as extended. If we can reach andemanding a task, but considering the coherence of understanding on how-together-we are going tothe topics to be dealt with, this arrangement would continue at the country level, and also how we areseem to be preferable to the selection of new goimg to function at the regional level, the Workshopchairpersons and rapporteurs for each session. can be considered to have been worth its efforts and

also its costs.Prentes have been appointed, who will also

act as facilitators and as such to assist the group As far as WB is concerned, your contributionchairperson in whatever matters might arise. It during this week will also enable us to finalize theshould also be mentioned that the Workshop should RWSS Strategy Brief for distribution later this year,

be run by the country delegates sitting at the table, which in turn hopefully will generate additional fundswith the pauicipants from ESAs and NGOs acting for the sector. Your contributions will also enable usmore as observers, but of course ready to assist as to better promote the RWSS sector in the context ofneeded. That will provide an opportunity for the ongoing discussions under the Long-Term PerspectiveESAs and NGOs to learn from the viewpoints and Study referred to by Mr. Doyen in his openingexperiece of the country delegates. remarks.

For the three group sessions, presentations will In closing Mr. Chairman, I would like to saybe made by the rapporteurs for the five groups in the that I look forward to a week of open, frank andplenary iaons scheduled to take place on constructive discussion.

POSITION PAPER 1

THE CONTRIBUTION OFRURAL WATER SUPPLY AND SANITATION

TO RURAL DEVELOPMENT

Prepared by

jars RasmussonThe World Bank

THIE CONTRIBUTION OF RURAL WATER SUPPLY AND SANITATIONTO RURAL DEVELOPMENT

This positio pawr highfightsthe role audpphe jtificaion f Ruly awn Satti0(RWSS) in nria development d thepotent benefits tt cIa be achiedt p e tconceptaof efftiv dend w in oej i wit icieve eot b ing m the dedl -enof delivery systsppriches in c u it mnagemet ad ppropriate tecnogycanp oeconomists and laeoin idatio f i t ivsmts

The long-term potential benefits of RWSS trea to improved health, eo ic and social conditions.For some of the benfits significant efforts have been ma.de intheir quantificition with conclusions reachedbriefly summarized 1S 1: --ows:

* RWSS inprovents-can have aigificant positive impact oi hbedth wtthy nnot be expressed yet:in quantitative tm although used: for the justification of ntm:ent

* rural water supply could bejustified economically byconidering time saved in caying ,-pidedthat relat benefits canbe into financ-al es.urces

* the provision-ofRW.SS baa a poti tob a ad pindovomme]t

acesle means for hivluaist miX f usion til eanuame.eltdf o odsa RWSS and hypene dOn p.age rer etti t dhave to be based on true ot covey :o w

Effoctive demad illinea to pi y f i tad ad vela -dcid by tecommnities and users h Ms It bulhd idso be nii tatih coept of efeveemdcan-only be applied useflly if allo .otenolwgica, istit al and i uisoseareaddressed concurrently.

The two major issues tob considered: by% gtgencies (ESA.) w idthus-refer to:

* do implations of changing from cental prolvisions to the conqept of effective demmd, and

• th deveopment of an approach to fine-tuning the design of a RWSS and hygiene education packagto optimize its impact

INTRODUCTION importance of RWSS in ural development and toshow that sustainable and replicable RWSS facilities

The main objective of the Workshop will be to can be delivered.present experience in RWSS in sub-Saharan Africa,examine different approaches and policy options RWSS IN RURAL DEVELOPMNETavailable for the further development of the sectorand develop pragmatic recommendations for future Any review of past records in rural water supplystraegies that can be implemented by individual extensions provides a gloomy picture of facilitiescountries of the region. either under-utilized or totally out of commission.

The reasons for this have been extensivly analyzedThe topics to be discussed during group and and in summary can be attributed to iappropriate

plenary sessions constitute a theme which should lesd selection of technology, and to institutional orto an approach for specific activities to be undertaken financial arrngemets leading to unsustibleat the country level. The topics which are investmets. However, this state of affairs has alsosynthesized in position papers refer to: forced us to gain a deeper understanding of the sector

and the demands of the communities, which, in its* the contribution of RWSS to rund turn has led to the development of new ideas and

development approaches.* the role of women in RWSS* technology choices The more convincingly the benefits of RWSS can- institutional issues be quantified, the easier it will be for the decision-- financid resource mobilization makers to justify increased allocations to the sector.* sctor management and strategy planning The long-term potential benefits could be classified

as:This position paper highlights the role and the

contribution of RWSS to rural development and the Hedth Blnefits:potential benefits that can be achieved. As such, itcan be considered as a precursor to subsequent * prevention of diarrheal diseasessubjects dealing with institutional, financial and * control of other diseases related to poortchnical isses and the development of sector water supply and sanitation (WSS)strategies and plans for the application of conclusions * improved primary health care and nutritionalreached in programs/projects prepartion and statusinplementabon. RWSS constitute an esseotialcomponent in an intricate nral development patter. Economic BefitsThe RWSS linkages are manifold and theirimplications e be wide-ranging. * time reeased from carrying water

* promotion of commercial activitiesOBJECTIVES * household irrigation and animal watering

* support for other sectorsThe peitbon paper provides a synthesis of

potential buieflts to be derived from RWSS and of Social Benefitsthe cpt of effective deumand which-in conjunctionwith o ahivements being made in the * improved community organizationdevekwp of delivery systems, approaches in * stimulation of enterprisesoinuma _nagement and appropriate technology-would povd tool for justification for increased The above benefits could simply be summarized asaoator i As such, the overriding objective basic needs to enhance the quality of life, and for* to a 1a dwt uMtion of the decision-makers to the some of them, significant efforts have been nade for

their quantification although with mixed results.

Studies show not only that complex interactions Recent WB work also suggests that rual waterbetween RWSS and other activities exist which make supply projects can usually bejustified economically,quantification of benefits from a single intervention by considering the time saved in carrying water. Indifficult; they also show that impacts are sequential such a case the amount of time that users would saveor linked. This is well illustrated in a graphic as a result of whatever service improvement is beingpresentation of water supply impacts (see Box 1), considered should be assessed and then the value ofwhich was developed by Carnuthers' while working this time to users estimated on the basis of evidencein Kenya in the 1970s, on the basis of experience in of household behavior. In relating the value of timeEast Africa, and still holds good today. to investment costs and technology it is suggested that

if the value of time is above about US$0.20 per hour,For a number of years there have been the yard tap system is the least cost option, assuming

unsuccessful efforts to quantify and to place a value that consumption is in the 20 to 75 liter per capitaon the health improvements resulting from RWSS per day (lcd) range. When the value is less theninvestments. Recently, new analytical techniques- US$0.05 the handpump system is the least costcase control studies-have been developed, which alternative.appear to offer, at least on a long-term basis, a betterchance to resolve this question. These case control However, the prevailing problem is thatstudies have conclusively demonstrated that RWSS economic justification does not always translate intoimprovements can have a significant positive impact financial resources. Time savings of rural carriers doon health. However, the impact cannot yet be not automatically result in additional income whichpredicted on a case-by-case basis or expressed in could be used to pay for water supply facilities.quantitative terms. The case-control technique is not Income-earning opportunities may not exist, evenyet sufficiently sophisticated to justify investments though time would be made available to takeor allow 'fine-tuning' of RWSS project designs. advantage of them. On the other hand, theSeveral excellent long-term health impact studies are advantages of time saved would not be lost if spentbeing written up, for which a summary report has on other 'non-productive' activities such as caringbeen prepared (1989)2 and is proposed to be for or educating children.published as a World Bank (WB) documentation.

t is widely recognized that any ruralHowever, in the case of Guinea Worm, the development initiative will have to emanate from the

benefits can be clearly identified on account of its communities themselves in order to enure long-termsingle transission route. In Nigeria 2.3 million sustainability. Any sector organization at nationalpeople are infected with Guinea Worm every year. and local levels should thus be directed to theAlthough nmst are temporarily incapacitated for 1 to provision of support required for initiating such a3 months. D estimated 12,000 are permanently process. The extension of RWSS could thus be andisabled. The disease severely affects the production entry point for the further broadening of the conceptof rice. A packaged intervention (predominately of community management, which, as the processimproved waer supply) estimated to cost US$36 gains momentum, would not be restricted to thismillion ovr a 5 year period, would eliminate the sector alone but would diversify into otherdisease in a population of 1.6 million. The resulting community functions.increase in nce production is estimated to be worthS20 million each year. This would correspond to a The advantages of a close and convenientlypbenonl return on such an investment. located water source are obvious. Regarding

facilities for excreta disposal, the situation may be

tCwmi ID. Invact and Economics of Community 2HIelth impact ofwater supply and sanitation (WSS) projectsWeter Smh' A Study of Rural Water Suppl, Investment in pmpared for WB by Kalbermtnen Ausoc.5w'. (39T4.

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different. Low population density provides plenty of has been sess (Rual Development, WBspace and the importance of privacy might not be an Experience 1965-1986) with conclusions reached thatissu and there may not be an expressed demand for required coordination of project preparation andproper saitation. Under such circumstances, benefits execution often proved to be too cumbesome andto be achieved through provision of water supply in caused serious delays. This does not mean thtimproved health conditions may also be marginal. integrated projects should not be undertaken but thatHowever, all experience indicates that in order to an improved institutional environment includingoptimize the impact of investments in water supply, improved delivery systems would have to be createdthis should be integrad with or linked to concurrent in order to ensure efficient project processing. Inactivities to be undertaken for sanitation and health or many, if not most cases, it may also be found to behygiene education. more feasible to carry out RWSS projects as self-

standing components. This would facilitate bothIt has become incrasingly apparent that any sector strengthening and project fonnulation and

RWSS development, including hygiene education, can implementation. However, it should be recognizedonly successfully take place with the involvement and that ny RWSS extensions would be a part of andcommitment of women. The women are responsible linked to the overal objectives on rural development.for household needs for water and, as such, they have It may also be concluded that RWSS extensionsa stake in ensunng that, once systems have been should only take place in communities where ainstalled, they remain in operation. Therefore they developmental potential has been identified.should have a dominant influence in the developmentof water facilities and should be selected and trained Impact health analysis has been done to a veryfor their operation and maintenance. This could be limited extent on the effects of water supply providedexpected to have a wide array of spin-off effects on in isolation or jointly with sanitation and/or hygieneother related developmental issues. It may also be education. An integration of these components whichargued that women in any village provide for the are often handled by separate institutions will,continuity when men have to go to other places to through the coordination requirement, complicate theseek employment opportunities. process and might also slow down the provision of

water supplies. However, the benefits of a closelyIt might be concluded that planners will not linked approach would seem to outweigh possible

have, in the near future, readily accessible means of disadvantwes. That does not exclude the executionvaluing health improvemnts or time saved or any of sepaate WSS projects like in Zimbabwe where aother benefits in such a way that the valuation can be large number of ventilated improved pit latrinesa useful operational tool. This would imply that (VIPs) have been installed successfiuly under ruralinvestment justification at least for the time being will sanitation progms. The provision of water supplyhave to be based on true cost recovery and on (awaterpointorapiped system) is anactivity takingpmgrams to be designed to maximize health impact; place within a short time period while the extensionto the extent possible to provide opportunities for of sanitation (VIPs) would be considered as a long-productive utilization of time saved; and to ensure term process. Nonetheless, it is important to initiatethat facilities to be built function and are used as this process and it seems that can best be done whenintended. linked to water supply.

RWSS AND ITS LINKAGES A lot has been written about health and hygieneeducation and the need for behavioral changes.

It has been advocated that rural development Hygiene education in this context is the first stepshould be undertaken as an integrated process in towards a more comprehensive bealth educationorder to optimize the benefits. This led to the which should be the final goal. Hygiene educationformulation of projects or programs encompassing all would also provoke behavioral changes in relation torlated components. The success of such approaches the handling and use of water and the perceived need

for aprpiate sanitation. Hygiene educaion-which could improved hygiene education compensate foris already widely applied-is a necessary coimplement water quality and quantity?to and also constitutes the common denominator forWSS and sanitation. The introduction of RWSS When arguing on water quality and quantity, itwould also provide the opportunity for hygiene should also be mentioned that, due to the multipleeducation to be given a more focussed attention with potentia transmission routes of most pathogens, it isthe development of more consistent and sustainable now common to refer to the relevant diseases asapproaches for its delivery. excreta-related' rather then, as in the past,

vwater-borne. * This only emphasizes the criticalISSUES RELATED TO THE EXTENSION importance of sanitation and hygiene education.

OF RWSSThe above and other issues on which there are

A prevalent issue refers to quantity of water to be still no satisfactory answers could be summarized asprovided as well as to the importance of related follows:quality. For example, a World Health Organizationliterature review on the effect of WSS improvements * What are the anticipated health benefits ofon diarrheal morbidity in children reached the various standards of RWSS services? Whatfollowing conclusions: are the marginal increases in health benefits

corresponding to marginal improvements in* improved water quality caused an 18 percent standard of service? What are the values to

reduction the economy as a whole of such marginal* improved water quantity 25 percent increases in health benefits and to what* improved water quality and quantity 37 extent would these benefits justify the

pecent provision of program subsidies?* improved excfeta disposal 22 percent

* What are the existing hygiene behaviorStudies of villages in the project area of the Blue Nile patterns and how do they influence the useProject (Sudan) also suggested that increasing the of water and sanitation facilities? How canconsumption of safe water from 40 to 70 lcd would personal hygiene behavior be improved andresult in the prevalence of diarrheal disease in at what costs? What would be the optimalchildren falling from 60 to 35 percent. packages of water supply, sanitation and any

other inputs? What are the implications ofWater quality refers to the point of delivery as the possible sequencing of investments

well as the point of consumption. The former is a (water supply followed by sanitation, forquestion of funds that can justifiably be spent on instance)?source development and protection and on degree ofwater treatment The latter is a direct function of * What are the comparative health benefits ofhygiene education and behavioral changes. providing wide coverage at a relatively low

standard of service (such as waterpoints)It is obvious that increased availability of vater rather than more limited coverage at a

will have a positive health effect. This will directly higher standard (suchashouseconnections)?rlate to the question of service standards, taking into In general, are there particular access oraccount distance from a water source, queueing time quality thresholds- which must be reached?for collection of water nd provision of yard or house These matters are proposed to be addressedconnections. This raises the question: what would in demonstration or pilot projects and in thebe the optimal trade-off between service standards implementation of RWSS programns andand health and other benefits, and to what extent projects.

EFFECTIVE DEMAND the time being, exclude the most destitute amongvillages from getting any immediate improvements in

Although the benefits of RWSS are indisputable, RWSS services because of lack of developmentalan opertional tool for their quantification has yet to prospects.be devised. Therefore as already stated above, any CONCLUSIONSjustification for the rehabilitation or extension ofRWSS facilities will have to be based on true cost Based on information and viewpoints presentedrecovery or what has been termed effective demand. above the following conclusions could be reached:The effective demand signifies a willingness to payfor a service standard and level as decided by the a. RWSS extensions should take place withincommunities and users themselves. a fammework of overall rural development.

RWSS could be executed separately or beEffective demand is essentially a demonstrtion integrated into larger rural development

of people's voluntary behavior when faced with projects. In this context special emphasisoptions for obtaining services as opposed to what should be placed on the creation ofpolicymakers may assume they can afford or need to opportunities for the gainful use of timedo in any given situation. The demand for water and saved in carrying water.sanitation can be explained partially in terms of theprice of these services in relation to the level of real b. Although extension of water supply could beincome of the consuming household. This valid idea undertaken separately, its impact will behas sometimes been arbitrarily used to imply that much larger when integrted with hygienerural people could afford to spend approximately five education and integrted with or linked topercent of their income on water and sanitation. sanitation. Thus institutional provisionsCost-recovery projections have then been calculated should be made for facilitating such anon the assumption that people will spend this amount approach.on WSS services. However, effective demand isbased on consumers' own perception of benefits as c. Project justification should be based onwell as on price and income. Most rural communities effective demand which, however, can onlyalready have access to traditional sources of water. be applied usefully within a framework ofUnless new facilities present a noticeable overll sector development.improvement (as valued by consumers) overpreviously used sources in tenrs of such factors as d. In order to further refine the tools for thedistance, convenience, reliability and quality they will design of program or project packages andnot be used and hence not paid for, even if the to optimize RWSS investments, issues raisedcommunity might in principle be able to afford to do above will have to be addressed. That couldso. Thus people's willingness to pay, as feasibly be done under ongoing or in thedemonstrated by actual behavior, determines the formulation of new programs or projects.effective demand for the service, rather than somesocially determined need or affordability criteria. The two major issues to be considered byThis matter will also be further elaborated upon in governments and ESAs would thus refer to:the position paper on financial resource mobilization.

* the implications of changing from centralIt should also be emphasized that the concept of provisions to the concept of effective

effective demand can only be applied usefully if all demand, andother aspects related to technological, institutionaland financial issues are addressed concurrently. * the development of an approach toHowever, it should also be realized that the use of fine-tuning the design of a RWSS andeffective demand as a major determinant in hygiene education package to optimnize itsinvestment prioritization most likely will, at least for impact.

PRESENTATION OF POSMON PAPER 1:CONTRIBUTION OF RURAL WATER SUPPLY AND SANITATION

TO RURAL DEVELOPMENT

The position paper, Contribution of Rurd Water be used to pay for water supply facilities. IncomeSupply and Sanitation (RWSS) to Rural opportunities may not exist, even though time can beDevelopment,' was presented in plenary session by saved and thus could be used to advantage. On theProfessor G.A. Makanjuola, Director, Department of other hand, the advantages of time saved would notFood, Roads, and Rural Infrastructure, Nigeia. MTe be lost if spent on non-productive activities such aspaper highlights the importance of RWSS to rural caring for or educating children, and for women todevelopment and the potential benefits that can be improve themselves. Therefore, it becomes an issuederived from its improvement. It therefore lays the or a major challenge for policymakers andstage for subsequt subjects, which deal with the communities to create economic activities for the timeinstitutional, financial and technical issues in saved by the provision of rur water.developing sector strategies and plans for operations.

It is widely recognized that any ruralThe speaker emphasized that RWSS constitutes development initiative will have to emanate from the

an essential component of rural development, and that communities themselves to have lasting effects and beRWSS linkages are many and their implications wide s_usnable. Any such organization at national orranging. He indicated that a review of past records local levels should thus be directed to the provisionin rural water supply extension portrays an image of of support required for initiating such a process.facilities that are either not utilized or re totally outof commission. The reasons for this can be attributed On the role of women, Prof. Makanjuola saidto inappropriate selection of technologies and to that it has become apparent that any RWSSinstitutional or financial limitations, which lead to development, including hygiene education, can onlyunsusanable investments. Thus, this state of affairs take pbce with the involvement and commitment ofhas stimulated a different understanding of the sector women. Women are responsible for household needsand of the demands of the community. This in turn for water, and therefore they have a stake in ensuringhas led to the development of new ides and that systems reman in operation once they areapproaches. installed.

The position paper provides a synthesis of the Prof. Makanjuola talked briefly about RWSSpotential benefits of RWSS. The concept of effective linkages, mentioning that it has been advocated thatdemand in conjunction with recent achievements (i.e. rural development should be undertaken as anthe development of delivery systems, approaches to interatd process, in order to optimize its benefits.community management, and appropriate technology) This has led to the formulation of projects andwill justify increased sector investment, progms enconpassing all related components. The

succes of such an approach has been assessed andThe more RWSS benefits can be quantified, the the conclusion reached is that the required

easier it becomes for decision makers to support coordination of project preparation and executionincreased allocations to the sector. The long-term often proves to be cumbersome and to cause delays.benefits can be classified under three broad headings- This does not mean that integrated programns shouldHealth Benefits, Economic Benefits and Social not be undertaken, but that an improved institutionalBenefits-on which the speaker elaborated. environment-including improved delivery systemns-

will have to be created in order to ensure an efficientProf. Makanjuola warned that economnic project process.

justification does not always translate into financialre_oume. That is, seavice provision does not In many cases, it may also be believed that it isautomatically result in additional income that can then more feasible to carry out RWSS projects as

self-standing components. This would facilitste both development, protection and the degree of waterproject formulation and documentation. However, it treatment, the quality of water consumption dependsshould be recognized that any RWSS extension on hygiene education and the resultant behavioralshould be a part of, and linked to, the overall changes of the community.objectives of rural development. It can also beconcluded that RWSS stations should only be located Although the benefits of RWSS are indisputable,in communities where a developmental potential has an operational tool for their quantification has yet tobeen identified. be devised. Therefore, as already stated, any

justification for the rehabilitation or extension ofOn the linkage between health and rural water RWSS facilities should be based on true cost

supply, Prof. Makanjuola stated that a very limnited recovery, or what has been terned 'effectiveimpact health analysis has been completed on the demand.' Effective demand signifies a wuillingness toeffects of water provided both in isolation and jointly pay for a service standard or service level aswith sanitation and/or hygiene education. Integration determined by the communities and users themselves.of these components, which are often handled by Effective demand is essentially a demonstration of theseparate institutions, may--due to coordination population's voluntary behavior when faced withrequirements-complicate the process and may also options for obtaining services, rather than whatslow down the provision of water supply. However, policymakers may assume they can afford or need tothe benefits of a closely linked approach seem to do in any given institution.outweigh its disadvantages.

From the foregoing viewpoints, Prof.Regarding the extension of rural water supply, Makanjuola stated that the following conclusions

the prevalent issue is the quantity of water to be could be reached. First of all, RWSS extensionprovided as well as the importance of its quality. should take place within the framework of overallProf. Makanjuola quoted the review by the World rural development. RWSS could be executedHealth Organization of the effect of RWSS on separately or could be integrated into larger ruraldiarrhea and morbidity in children. Studies of certain development programs. Special emphasis should bevillages suggest that an increase in the consumption placed on the creation of opportunities for the carefulof safe water from 40 to 70 liters per inhabitant per use of the time saved in carrying water. The impactday will result in the prevalence of diarrhea disease in of RWSS investment would be much larger if it werechildren falling from 60 percent to about 35 percent. integrated with hygiene education and integrated with

or linked to sanitation. Project justification should beWater quality refers to delivery as well as based on effective demand, which however, can only

consumption. While delivery depends on the amount be applied usefully within a framework of oveallof funds available which can justifiably be spent on sector development.

POSITION PAPER 2

THE ROLE OF COMMUNITIES AND WOMENIN RURAL WATER SUPPLY AND SANITATION

Prpared by

Aminata TraoreUNDP/PROWWESS-AFRICA

THE ROLE OF COMMUNIS AND WOMENIN RURAL WATER SUPPLY AND SANITATION

1. INTRODUCTION precisely, it is important to fully support the ruralwater supply and sanitation (RWSS) components,

Water and health, given their close relationship especially given their potential for human capacitywith all other development sectors, remain at the end building.of the International Drinking Water Supply andSanitation Decade (IDWSSD) high priorities for Thus we wish to submit to the Working GroupsAfrican governments as well as for external support present here, for their deliberations on the future ofagencies. The objectives of healthy water for all and RWSS, the following points:better living conditions for the less privileged are stillappealing, yet effective ways and means to provide * the facts as they exist in the villagesthem still have to be devised.

* some of the hypotheses on which the strategies ofDomestic household management, including intervening parties (donors, governments, etc.)

water supply and health care, is the responsibility of are basedwomen in many parts of Africa. Their contributions * some perspectives to be explored and someand creativity can be utilized in ensuring effective remarks on the imporance of a participatorydevelopment of the water supply and sanitation approach in promoting community and women's(WSS) sector, participation in RWSS

What is at stake is not only an improvement atthe socio-sanitary but also at the economic and U. WATER IN THE VILLAGEfinancial levels. As a matter of fact, genuine In Africa, it is almost impossible to imaginecommunity participation may increase productivity dIning water supply amo rral areas ithout bemingand bring high returns on investment into the WSS drinking te image of women be insector as a whole. As a result, a greater number of strukby the image of women bearing water. Inunserved people mnay have their needs me most of the rural areas, water transportation,

u -served people may have theirneeds-met. management and distribution for household use areThis participation is a must inasmuch as there are exclusively entrusted to women.

increased needs related to population growth while In addition to thes tasks, women provide theavailable financial resources are insufficient. households with staple food, prepare meals, and care

In spite of the serious economic and social for and educate the children. Thus, they are in aproblems which they face, governments have financed position to maintain social values, practices anda major part of the investments in sector habits, and they can adapt all these for their owndevelopment. Their main thrust, however, has been benefit and for the benefit of future generations.on hardware and not enough attention has been paid This process of socialization, of which womento the participation of the users, especially of women. main ages, involizatin a which ofIn view of the econonuc crisis and structural ure the main agents, involves girls in a number ofadjustment policies, African governments mnay be tasks, including water gathering, looking after theadjusmented polmicimize ues, A angverments may fo e cleanliness of their siblings, and domestic wasteprompted to minitize resources necessary for the collection and disposal. Unfortunately, developmentsectors which do not provide direct economic and of the roles of these *women-to-behas usually beenfinancial return in the areas of health, community and overlooked. This point can be illustrated with datawomen's participation. collected in Tanzania within the framework of a

Therefore, any attempt to plan for the future of project of women's involvement in the rural waterAfrica should focus on these sectors and review them master plan of Rukwa wregion, the conditions under

is liht o newalterativ6, icludig losost which nral women collect water, and the situationsin light of new alteratives, including low-cost which RWSS programs are aiming to improve (seetechnologies, cost recovery and institutional Bo .strengthening which IDWSSD has explored. More x ).

WATER IN THE VILLAGES OF RUKWA REGION CTANZANU)

Villages Population Traditional Source of CommonWater Supply Disases

ISESAUrban District 970 residents Wells, 2.5 km away from dysentery,Itwelele Division 197 households the village conjunctivits,.Molo Ward 400 women malaria

MYULAN'kansi District 625 residents Rain water in Spring,j dyeteKate Division 115 households 15 km away from the village typho 6oifte,Kipandi Ward 267 women during the dry season yeJlow fever

KASOTESumbawanga 1,950 residents Kapondive River, dysentery.,Rural District 359 households 1.5 km from the village eye troubles,Kassnga Ward 359 women Rain wat in wet sason .::aiam -le

KASUN'kansi District 2,100 residdents Waterwlls,25kn:away diarrhea,Chala Division 485 households from the village dysentery,-Chala Ward 201 women : -:ies: s nmes

KASUIWAN'kansi District 1,s494residents We lls,:S kmaway frobm te diarrhea,teyeChala Division 300 h3oM0ftuseolds: cnter of theviUsge ; k0 uMtenga Ward 201 wonln sca::ity of water in dryseason scabieV

KATUMBA/AZIMI0Sumbawanga Urban District 1,118: rsidents- . River and wells, 2 km away typhoid, skinItwelele Division 250 households fr. m the vilage diseases, _-Pito Ward 250 womenw.: s dy*sy

MILANZISumbawangaUrbanDistrict :.':-1,131residets W:ells S.spring, :21km away dysentery,Itweleic Division 237 households from the village d:m:: mm"Milanzi Ward 256womn.

MLANDASumbawanga Urban District 1,775 residents Wells and river, 2 km dysentery,Itwelele Division 253 households away from the village dhi1,m sMilanzi Ward 560 women

Source Kauzcai, A.S.: Women's Participation in RWS Decvlopment Progrnam, February 1987.

In such a context, the socioeconomic and health IV. TYPES OF PARTICIPATION BY WOMENbenefits of an appropriate RWSS program are AND COMMUNITES IN RWSS PROGRAMSobvious. It is responsive to a basic need, reducesmorbidity and nortality rates and alleviates one of the Community participation is not a new concept inmost burdening tasks at the household level. Women the development process. However, its complexityare undoubtedly the prime beneficiaries of such a and multidimensional character is a puzzling issue.program. Technical, financial, institutional, economic, human

and cultural factors, must be properly addressed inThis fact has a number of theoretical and an integrated and consolidated approach.

methodological implications, the improper assessmentof which has caused considerable loss of financial, Methodological difficulties of such an approachmaterial (underutilization and failure of facilities), which are useful to some extent, but often ratherhuman (high rate of morbidity and mortality) and limited. Participation in cost recovery, ineconomic (low productivity) resources. construction, in operation and maintenance are the

main types of actions that have been explored. Theydeserve to be examined here in terms of effective

m. DECADE STRATEGY AND OBJECTIVES involvement of women.

A too sectorial approach in the field of RWSS Participation in Cost Recoveryhas generated very costly investments in themaintenance and management which are entrusted to Drinking water has a cost. The communities'a body of technicians who have not been prepared to understanding of this reality and their participation,take users into account. at least partially, in cost recovery are for many

funding agencies and governments a way to make theIn 1980, when the General Assembly of the istallations the users' property, thereby assuming

United Nations (UN) declared 1981 to 1990 as the their sustainability. But the implementation of suchIDWSSD, the rate of coverage of populations water a policy depends on several factors: availability ofneeds was about 40 percent, whereas coverage rate the financial resources, productivity, acuteness ofsanitation facilities was estimated at 25 percent. water needs and reliability of the financial and

technological solutions proposed by the projects.Against this background, the rural areas were

still more disadvantaged. The Decade objectives Most of the intervening parties who are in favorwere the access of all to safe drinking water supply of women's participation in this process take intoand adequate sanitation by 1990. account that women as principal victims of the lack of

water and pump failures, are more aware of theInitially, the main thrust of Decade activities was importance of operation and maintenance than others.

resarch on low-cost WSS systems, namely They can therefore contribute themselves financiallyhandpumps and lattines. However, it became clear or influenoe -en in doing so. In addition, in manythat institutional strengthening, commnunity societies, they are considered to be better managers ofparticipetion, hygiene and health education, cost public funds.recovery and interagency cooperation are alsoimportant itsues to be addressed. These facts are real in social and econonic

situations where people do not have many financialDemonstration projects which focused on design, constraints. The on-going process of economic and

planning. implementation, monitoring and evaluation, financial crisis no longer supports such attitudes.aimed to demorate to governments the management Cost recovery for water, therefore, is difficult toof low-cout RWSS systems by the population achieve because people will weigh it against othertbemdvm and the potential for large scale contributions they have to make to education, healthimpleintation. and other basic services.

The ameas where men used to be active, such as income for women if an enabling environment is notthe modem sector of cash-crop agriculture, re the also created.most affected by this crisis. They now have to relyon women who with creativity and skill sometimes Moreover, it is up to the communities thomlvessucceed in meeting the needs of the household. But to define who, according to his/her socioeconomicwhen the financial pressure becomes too much, the realities, has to pay for water: the woman, the man,more needy women tend to tap polluted water sources or the couple. The conmunities should also be in awhich are free. position to participate in the decision concering the

form and the amount of the payment.Rural development is definitely an overall

process. Only the commnunities provided with Participation in Constructionattractive economic opportunities and the possibilityof participating in decision making are confident and This type of participation seems to be easier toable to take part in new responsibilities such as water obtain from the rurl communities who are asked tocost recovery. demonstrate their commitment to the RWSS projects

through their labor. This type of investment createsWe want to stress that water supply does not at the users' level a certain sense of ownership which

systematically lead to increased productivity and contributes to the proper running of the facilities.

Participation of Conmunities/Women in Cos-t: e y:.:.

The implications of the above remarksRinWSS 'projects hive been eamindb.homet from :June 26 to July 3-in Abidju at the African lelopmet i B DB)durig PROWWESSW.(Promotion of the Role of Women in Water ad Enviroetal Sniiation Stdes)* riona wok .ndby the Government of the Netherlands. he Jiplctioins ire :et th wg

; i 0 y ::ditsf.- ls.~~~~~~~~~~~~~~~~~~~~~..:~~.. ......

feltby he ppultios? ad i itan expresse.neeiibd? d6wo wonm.eafy aricpae

* :The: choice of tehology: -who chooses thetcnooy mid aue diffrent:-alternaiv::::i-............................... . .es :0consideredT'

* : The rmaintenance system: aecommunitidw n iforimed:iaboit theii i tionsof the maintenancelsystem?.

* Financing and repayment is the finncingischeme explained to the communitylwomeftn...... -in terms which they can understand? do they accept-it? are other methods of financingexplored? were ways of inreasing the communities'/women's capacity to reimbursethe costs explored?

* Managing the system: are the communities/women consllted about the managementsystem to be established and how a management system will function?

Source: Repout on the Regional Workshop for the Strngthening of the capacity of ofrican cnsdanuIn the design and implementation of projeis involhng communities and women in WSS,Abidjan, June 1989.

This approach has been useful in certain projects Thus in order to promote equity between gendersin tenns of cost reduction. But it also demands some projects advocated an equal membership ofadditional work for women when they are not women and men in these committees. Out ofinvolved. Women are already overburdened by timidity, however, women, so promoted, cannotagricultural and domestic chores. Construction is express themselves publicly and even less onphysically demanding for them and does not tochnical issues on which they are not used tonecessarily lead to their participation in the deliberating.decision-making process and in water pointmanagement. Such an approach leads unfortunately to the

selection of politically influential individuals in theseParticipation in Operation and Maintenance committees which increases the risk of the population

disowning the project, thereby jeopardizing theThe development of local skills in operation and potential outcome.

maintenance of low-cost technologies is an importantstep towards decentralization and towards viable Endogenous Structures for ParticipationRWSS.

In view of this type of social and politicalThis assertion, in terms of village-level operation constraint which hinders the promotion of efficient

and maintenance, leads to a fundamental issue: village organizations in the management andshould women participate in every aspect of water maintenance of water points, it is crucial to exploremanagement at the village level in order to ensure alternatives which by virtue of their endogenoussubstantially an effective use of the facilities? nature would be more responsive to genuine

community participation.The principle of social equity would like it to be

so since women are the main users of water sources. The most appropriate orientation would consist inIt has been proven, for example, that the paying attention to community experiences inappropriateness of a handpump is assessed by collective actions, in particular, in the field ofwomen's ability to disassemble it, conduct maintenance and the protection of traditional waterpreventative maintenance and make basic repairs with points.simple tools.

It is also important to pay attention to theMaintenance of low-cost facilities by women is functions and the operationality of existing structures.

artificial if the decision to carry out the repairs is not For example, in a village where women are organizedtaken by the women themselves. They know which in production activities or where they have revolvingnew functions they are ready and willing to assume, funds (tontine), it is easier to reach them, to listen toand they can organize their time in such a way as to them, and to mobilize them. Their participation inenable them to handle new responsibilities once they decision making in terms of cost recovery, foraccept them. example, is much more easily envisaged in such a

context where they are not only able to expressV. PARTICIPATORY STRUCTURES FOR RWSS themselves but also generate income.

Village Water Comnmittees A third alternative consists in leaving a windowopen to endogenous initiatives which appear

The type of participation mentioned above, is an automatically as soon as commnunities have properlyorganization within the village structure and is understood the project objectives and accept to makegeneraly called a village water committee. These it theirs. People are thus capable to put the righthave ucceeded in some context in mobilizing individuals in the right positions and to makecommunities. But their pre-established character commitments that they can respect.(structure, composition and function) generallyprevents them from functioning well.

VI. GENDER ISSUES more covert aspect of their life which is neitherlocated in the public domain nor in the word.

Poor understanding of the socioeconomic realitiesof the village and especially of the true aspirations of Decision makers and communities focus more oncommunities and women still prevent their water needs. But the absence of hygiene andintegration. Some remarks may be made here on this sanitation, if not properly taught, is widelysubject: prejudicial to any effort of water provision. But how

to capture and integrate in the same approach two* the role of women in RWSS cannot be needs which are not felt with the same acuteness by

effective and sustainable unless women and decision makers, communities/women and which aretheir communities decide to be involved at the institutional level the responsibilities of

different ministries?* the roles of men and women are not

systematically interchangeable, especially in At the sociological level, the difficulty inrural areas where populations are still promoting hygiene is all the more real, since it leadsattached to their cultural background us directly into a universe of symbols which is also

a field rich with preconceptions. For example,* certainhistorical andeconomiccircumstances children's excreta is exposed to the open air because

(such as seasonal migrations of men) can people do not consider them as harmful. This maylead to changes in the division of labor and be true to some extent, but it is insufficient to explainlead women to assume the roles of men communities' attitudes towards infants' defecation.

In fact, it is often the exposure of the genitals at aThus, if one cannot deny that the woman assumes certain age which is the issue. The notion of "dirty

the responsibility for providing water for the daily hands' also deserves to be reexamined in light ofneeds, we also know that construction, maintenance cultural diversities and practices as do ideas aboutand supervision of water points are essentially garbage which means death in many cultures.assigned to men. Sociologically, the men assertthemselves only when performing functions linked to The above remarks are not meant to questiontheir status of husband and father. The construction these approaches since nobody knows the truth,and maintenance of the basic infrasnrtures, which especially in the rich and changing field of culturalinclude the water point, is one of his roles or responses. We simply assume that:functions.

* the sustainability of the WSS systems andIt is therefore essential in WSS programs to large-scale activities which are foreseen,

understand the different roles in accordance with the exclude partial interpretations and hastysocio-cultural realities and taking into account the generalizationsaspirations of the population, and not only theprojects objectives. * these conceptions which are many in the

sanitation sector can be used in aOne of the difficulties in scaling-up arises when constructive way in the implementation of a

agencies and projects attempt to apply guidelines true endogenous strategy, if populations aredeveloped on a small scale inmplementation without the ones who interpret and exploit them.full understanding of the interactions and mechanismsinvolved.

VIIL THE MISSING LINKS:VII. WATER, HYGIENE AND HEALTH LITERACY, INCOME GENERATION,

FAMILY PLANNINGThe relationship between water, hygiene and

health merits to be better understood in order to be In the same way that these reduce fertility rates,intgrted in RWSS. women's education and employment are the most

decisive factors in the promotion of new behavior inFrom water to hygiene, one passes from a the field of water, personal bygiene and

physiological need that individuals and their environmental sanitation.conmm-ities nooesarily feel-and often express-to a

The opposite is true as well: water supply can X. THE BENEFITS OFhelp develop other sectors. The relationships linking A PARTICIPATORY APPROACHvarious developing sectors should be taken intoaccount since the early stage of project design. We can never stress enough the importance ofIncome-generating activities are from this point of genuine participation in promoting the role ofview the best linkage point for functional literacy communities/women in rural development in general,which itself leads to better understanding and and RWSS in particular. The data collection by andpeople's commitment to new behavior in water, with the beneficianes of the project, theirhealth and family planning. participation in the analysis of their own situation and

in the evaluation, are the first steps in recognizing1X. INTER-INSTITUTIONAL COOPERATION them as full owners of the systems and partners in the

AND RESOURCE REINFORCEMENT process. Only then does the program acquire theconsistency and flexibility to remove the bottlenecks

Community participation is a multidimensional which jeopardized villagers' self-promotion, theirpmcess which questions again the development participation in needs asessment, in the definition ofprocess. It is a real challenge, not only for rural roles, in cost recovery, in facilities maintenance andcommunities, but also and even more so for planners, exploitation and in health education.decision makers, external support agencies,technicians and trainers. This explains the This participation and these methods establish animportance of considering the institutions to which enabling environment for a multidimensionalthey belong, to evaluate and reinforce their strategies development.as well as their resources.

Reduction of financial resources and repeatedSince independence African countes havefailures of centralization have created over the lam experienced much in the area of mobilization offew years a context for these questions. The handing people and grass-roots training. Software ministries

ov.. of responsibilities to communits vz execute these programs at the national level. Theyvetofres,pncuingthes W etor benefniti vfr o often benefit from the assistance of non-governmental

sectors, mcluding the wss sectr, benefit from tins opiain NO)situation in terms of mobilizing the resources. But organizations (NGOs).this transfer can be achieved through increasedconcentration at vaious levels: between funding Approaches and methods of intervention stillagencies and ministries, and between ministries. In prevailing in this field, consist in studying thethe WSS sector, for example, community practices, beliefs and needs of the people and bydeveloPment agents, who are in charge of the daily designing messages in light of the data collected.ning of parjeets, am working mnder different These didactic methods, which are valuable to some

ministries (Health, Promotion of extent, suppose that the trainer is the one who has theminitrie (Helth,Socil Afairs Prootio of tnowledge to be transmitted to the communities.

Women, Agriculture, etc.) which do not cooperatesufficiently with the Ministries of Wawe (orHydsculics). Community participation relies on the conviction

that communities have their own resources andThe reinforcement of human and financial potental which can and must be mobilized m {he

resources used for the mobilization of communities process of problem solving. Training thus is to beand women is another,requirement that neither the understood as developing their ability to solvefunding agencies nor the govemments seem to problems bY means of internal and external resources,observe. The qualifications and the motivation of if needed.the field-workers are, however, the best guarantee forsuccss in every grass-roots development process. The participatory approach does not deny the roleThe efficiency of motivated and qualified of project managers, it is its redefinition. Thedevelopment agencies will be measured in the way decision maker, who has succeeded in providing thethat they are able to hand over the project to the required flexibility through participatory methods,villagers in a reasonable time. plays essentially on the role of catalyst, proposing the

information and needed resources, and responds to On the institutional levl, the major challenge is

the communities and women. Such a decision maker decentralization, concentration, coordination and

thus has a program which is flexible and in better managemt and resource utilization which areaccordance with the evolution of the environment. essential in overcomnug a too sectoral approach.

XM. BEYOND THE DECADE In resource mobilization, equitable or judicioussharing of responsibilities between governments and

In 1985, the General Secretariat of UN, in its funding agencies is vital. Particular attention needsreport of the results achieved by mid-Decade, to be paid to economically weak members of the

underlined the importance of the achievements and population who suffer from the effects of the

the necessity to intensify efforts in Sub-Saharan economic crisis and structural adjustment policies.

Africa (SSA). The Declaration of Abidjan, issued at Economic pressure and deprivation can only push

the International Seminar held in 1986, defines, in 5 them towards risky solutions including the use ofpoints, a strategy for community participation, polluted water sources.especially for women, as one of the maincomponents. Sectoral policies need to be rethought and

redefined in terms of the above-mentionedThis participation is far from being effective at socioeconomic and cultural demands. These policies

the end of IDWSSD, especially because of approaches foresee and provide themselves with the means to act:

and methods which do not properly take into technicians conscious of the importance ofconsideration the relationships between women and communities'/women's involvement and working

the socioeconomic, political and financial hand in hand with qualified, motivated field workersenvironment. who are sufficient in numbers and provided with

adequate material resources. Participatory research,This document, far from being exhaustive, may trainng, monitoring and evaluation taking into

serve as a means of raising some questions for account communities, including women, theirdiscussion in the Working Groups which will creativity, socio-cultural and socioeconomicexamine the implications of communities'/women's specificities are remarkable tools for change that theparticipation in terms of capacity building, countries of SSA should exploit.institutional strengthening, resource mobilization andsector planning.

PRESENTATION OF POSITION PAPER 2:THE ROLE OF COMMUNIIES AND WOMEN

IN RURAL WATER SUPPLY AND SANITATION

Mrs. AminaaTraoreofPROWWESS/Africa However, cost recovery is not automatically assured,introduced her paper, 'The Role of Communities and since water must compete with other demands such asWomen in Rurl Water Supply and Sanitation education, health and other basic services. But, as(RWSS),' in plenary session. She began by drawing RWSS is part of rural development, it must occurattention to the following responsibilities of women with attractive economic opportunities based onin the villages: (i) carrying, managing and community involvement; this may then improve thedistributing water for household use; (ii) providing cost recovery potential for RWSS. The enablinghouseholds with staple foods and preparing meals; environmet is particularly important for improving(iii) caring for and educating children; (iv) cash crop women's productivity. Mrs, Traore considersfarming; and (v) providing health care. women's education and employment to be the most

decisive factors in the promotion of new behavior inIn many households, young girls assist with the domain of water, personal hygiene and

these responsibilities, but like their mothers very environmental sanitation, as well as in the reductionoften their contributions are overlooked. Mrs. Traore of fertility rates.laented that goverments have placed too muchemphasis on the provision of RWSS hardware and not The speaker described participatoryenough on the participation of the users-and structures for RWSS delivery including village waterespecially of women. Thus, the government has committees and other indigenous structures as well asmissed important opporunities for capacity building. inter-institutional cooperation and resourceEngineering training does not adequately incorporate m et. However, the relationship betweenthe role of women. water, hygiene and health needs to be better

undersood. Decision makers and communities whoMrs. Traore stated that while community focus more on water needs and pay little attention to

participation is not a new concept, its benefits are hygiene and sanitation-the more covert aspects ofonly now becoming apparent. It is a complex issue, village life-can severely prejudice the provision ofand an integrated approach in RWSS development water.demands that technical, financial, institutional,economic, human and cultural factors be properly In conclusion, Mrs. Traore stated thataddressed. She acknowledged that more agencies are African decision makers, technicians and externalnow looking to women's participation, since, as support agencies must take a more determinedvictims of water shortages and pump failures, they approach towards considering the relationshipsare more acutely aware of the importance of between women and the socioeconomic, political andoperations and maintenance. financial enviromDent, in fact the entire human factor

in general. Sectorl policies need to be rethought andRegarding aspects of cost recovery, the redefined in socioeconomic and cultural terms, with

speaker sated that in many societies women are special emphasis on institutional decentralization,considered better managers of public funds. improved resource mobilization, and moreTherefore, they are deemed capable of ensuring the participatory research, training, monitoring andavailability of funds both for initial capital evaluation.participation and for the purchase of spare parts.

DISCUSSION OF POSMON PAPERS NO. 1 AND 2

Due to the complementanty of the two papers, notion that women should not be involved with thethey were presented in succession and then discussed constrotion aspects of the projects. He stated that iftogether in plenary session. There was much support women are going to be involved, they shouldfor the opinions expressed by the presenters and in paticipate in all aspects-development, planning,the two papers. The following is a sumnary of the implementation and maintenance efforts. He notedmain points raised. that the mawi beneficiaries of water supply systems

are, ultimately, women, and that if the responsibilityThe first discussant expressed some concern that of deciding on water supply is left to men, or for the

the fad of the role of women in solving water supply better part to men, then some of the projects will beproblems may convert them into machine operators. delayed. He also cited the population factor. womenHe emphasized that for years women in Africa have represent the majority in certain areas. Thus, if theyplayed an important role which, although not very are not involved in project implementation, projectsvisible, could be compared to that of an understudy will take much longer to be realized. In certainor a prompter. It seemed to him that the role of cases, donors might think that women are notwomen in nual water supply and sanitation (RWSS) interested in projects. He also discussed the socialprograms should be strengthened through feminist factor and cited his country as an example, notingorganizations by education and training activities so that there are differences in the way people perceivethat women could be more apt to prompt or exert women. In some aeas, women are fully involved inpressure on men to be more responsible for water the construction, digging out trenches, etc. This hasinstallations. He noted that water gathering is also a not upset people at all because the whole exercise issocial activity, providing an opportunity for women planned by the community. But there are other partsto chat and discuss, and that if they were deprived of of the country where men, because they do not wantthis activity (through impnrved water systems) they to swe their women digging trenches, do itmight not be willing to asre the upkeep of the themselves. He noted that in those areas projects aresystem. The discussant also strssed that when there not realized as fast. For this particular reason socialis a water distribution system in rural ares the factors have to be taken into consideration whenwomen's schedle becomes disrupted. He suggested attempts are made to implement projects.that women be mobilized to put pressure on men tomaintain the system in the same manner as when they A delegate from Togo supported Mrs. Traore'sdesire from them some rticle of clothing. Women view that women play a very important role in water

must be the driving force to motivate men to repair gathering. He aclnowledged that installing waterand to maintain existing water points, because they points close to the women allowed them to save time.are the ones who suffer without water. Considering the amount of time they save, he does

not think it is too much to ask for them to participateA second discusnt stated that an improvement in the maintenance and operation of water points. He

of the population's health and productivity is also believes that it is up to others to see how thecerainly more significant than the time saved in time saved could be used to develop lucrativesearching for water. He then commented on activities. He stated that he would like the delegatesMs. Traore's presentation and the point she raised to look for incentives for women to reduce their timeconcerning the role of women in family planning. in gathering water as they address the problem.Referring to Niger, with a population of 7 millionand a Population growth rate of 3.1 percent, he noted A representative from the World Healththat all the water points installed during the Decade Organization Collaborative Center for Research,

did not keep pace with population growth. He Taining and Control for Guinea Worm Disease at thecontended that women are at the center of family Center for Disease Control in United States wished toplanning and that if progress is made in RWSS in the draw attention to the Third Annual Regionalcoming yeas they must become involved. Conference on the elimination or eradication of

Guine Worm disease which was held inA third delegate from Malawi who commented Yamoussoukro in March 1990. During the

an Mrs. Trora's presentation, believes that conference, all 17 endemic countries in Africa wercontradictory issues had been nised regarding the repesented by 125 participants. The conference

made three recommendations which pertain to the quality, but rather water that is simply free of theWorlshop agenda, and with the permission of the intermediate host. For these reasons there is anChairman, he read them. The Yamoussoukro increasing need to link water supply projects inconference recommends that sponsoring agencies endemic countries with initiatives for Guinea Wormemphasize the progress realized to date and the need eradication. Each endemic country in Africa this yearfor a Guinea Worm erdication initiative. The will complete plans or will be in the process ofYamoussoukro conference further stressed the urgent implementing plans for conducting a national searchneed for water supply projects to include effective to define the extent, incidence and location of Guineahealth education and social mobilization to be brought Worm disease. With these results in hand, eachto bear more effectively in endemic villages. Priority country will have a detailed list of all the villagesshould be given to the most highly endemic villages where Guinea Worm disease occurs. Once thefor RWSS and other prinary health care infonnation is available, it will be extremelyinterventions. Furthermore, the Yamoussoukro important for water supply projects and the nationalconference emphasized the critical relevance to this eradication progrms to link efforts so that villagesrerdication initiative of accelerated support for RWSS with Guinea Worm disease can be targeted as a

activities beyond the end of the Internationd priority for provision of safe water.Drinking Water Supply and Sanitation Decade. Thereason for this is that Dracunculiasis is a disease of A sixth discussant addressed a question to thepeople who live in very remote areas and are in great author of the first position paper, concerning the shiftmmessure disenfranchised from the political process. from a centralized system to a system based on actualEvery year Guinea Wormn affects five to ten million demand. He wondered how the shift could bepeople in these very remote areas, and the infection implemented on the project, community and nationalprevents affected individuals from working for a levels and how the interaction of the actual demandperiod which may vary from two weeks to three (which is a matter of cost) could be conceptualized.months, depending on the number of worms which He believes that the centralized level allows for aemerge and the location of the emergence. For these certain justice. The discussant congratulated Mrs.reasons, the disease has a very severe impact on Traore for putting the finger on the real issue: theagricultural productivity in endemic populations. problem is not one of women in development but ofFurthermore, it affects school attendance by children community development. He thanked her for herbecause they are disabled and are unable to attend plea for community action because not only women'sschool if there are schools available. In addition, it behavior, but men's also, must be changed. Heaffects maternal child health. For example, disabled stated that in the context of African countriesmothers cannot take their children to be vaccinated. everyone knows that in order to modify women'sGuinea Worm-endemic villages account for but a behavior, one must first go through the men's.fraction of all the villages in the countries which donot have safe drinking water. Taking Nigeria as an The panlists were then invited by the Chairmanexample, the discussant indicated that during 1989, to respond to the points made by the several622,000 cases of Guinea Worm diseaes in discussants. Mrs. Traore began by saying that if sheapproximately 6,500 villages throughout the country has provoked the audience she felt that she hadwere counted. Guinea Worm disease is prevalent in read her goal. She believed that women'sonly a snall fraction of the approximately 90,000 participation does not leave people nonplus. Shevillages which do not have access to drinking water expressed her pleasure that the technicians present insupply. For this reason, endemic villages should be the meAetig had concrete examples from theirtrgeted for the provision of safe drinking water respective countries on the participation of women inwherever feasible. The quoted figures are linked to RWSS.the quality and quantity of water. The discussantargued that for a very small increment in the quality She agreed with the representative of Zaire thatof water, Guinea Worm disease could disappear. women are a driving force in community mobilizationSafe water-water that does not contain the and that everything is not roses for them. From aintermdiate host for these parasites-must become social and juridical standpoint, they are disadvantagedvilble. This does not necessarily mean water of in most regions. Although she did not want to goratly improved bacteriological and chemical into details which would not be constructive for the

prent discussion, do wished to point out that there Yet thos water points are not well mantaied adis a tedency to mphae situations where wom n they newr work well. Therefore, the demad forar mar zed, and thus their potetil role is water supply has to be an effective demand so thatmasked. Womeon e very persusve. Mrs. Tmaore water points ae well managed and communities findmentioned tat se has seen that in some regions-in their own solutions when problems anse.Niger, for example-men were reluctant to pay backfees for irrigation schems. When the women noticed Mrs. Traore mentioned that if she had not beenthat rmn did not want to pay for the water which to school, if she had not found work, she could notallowed them to cultivae vegetables, they organized have answered many of the questions. Thus she drewthemselves and put pressure on the men. In the end the conclusion that education and employment are thethe men had to pay. Women know how to organize mrost important solutions for bringing about newtheir acivities if they want something. Cleaiy they behavior in water, body and environmental hygiene.do not need anybody to organize them. Although she discussed only briefly the issues of

family panning in her paper, she acknowledged thatOn the subject of the time spent in gathering it is an important issue and that worn are at the

water and socializing, Mrs. Traore thought that one center of health structures, of the management ofmt order priorities and clearly draw the line water points and of income generation in thebetween what is fundamental and what is not. In that agricultual sector. It boils down to the fact that it isrespect, water is a priority and people organize a matter of project 'of society, of communities. Shethemselves around water points. Villages exist asked the delegates, "What do we want the Africanaround water points or along rivers. If the source sety to be? Do we want women with ten childrenrms dry, people move out. She has seen may going to fetch water with a child on their back?"dserted villges whose inhabitants moved out of the Mrs. Traore concluded her remarks on this particulararea because their source of water dried out. Life topic by saying that the issue had to be dealt with inrevolves around water points and populations face a responsible manner and that maybe the workingvarious situations in a dynamic way. Popuations groups could discuss in particular the role ofhave a lot of froedom and the capcity to find international coopertion in the matter.solutions to new problems.

In response to the question askod by theMrs Traore recalled that when she was a little discussant from Malawi, Mrs. Traore explained that

girl she would fetch water for her mother quite a there re in Africa as many situations as there aredistanco from her home. When a fountin became countries on the Continent. She said that she isavilable io the village and there was no more need to aware that there are countries where rn have leftwalk viey far, she still went to the fountin, still and the majority of the womrn have had to takediscumd with the womn and everybody found it charge of most of the actions and daily activities.equally plesnt. Once womn did have to spend so For those projects it is the woren who are themuch time athering water, they found other beneficiaries. Mrs. Traore explained that she did notactivities t oocupy their time. Mrs. Traore said tht -en to imply that womn should not participate inshe is covaiced that if we can mage in the future the constuction but rather that one must be careful.to put * placo a paticipatory system for the While women are entitled to drinkable water and tocomnita to make their own decisions, the a healthy environment, its fulfillment should notcooa of bow women are going to utilize their time necsarily mean additional work for them. Shewill daPPr. All technical improvemnts within a believes that it is unfortmate that we only speak invillg om-I new behavior, new horizons. The terms of our own interests. When we consider thecon,m_ nun be given the elements necessary to role of women we must consider them entire beings,make dr own decisions and the imporance of water even in their capacity to participate in the decision-mu be _mphszed She believes that we must be makring process, which might very well be in mixedancobw tm what the communities are saying. Are audiencs. One should not consider the participationpeopl akig for water? We have seen c ign of womn, or the role of women, from a purelyp roim -mde and water points created-free of economic point of view (i.e., that their participationchad my paces and given to the communities. might reduce the cost of the project), but one should

discuss with women their role in the construction of role, but what would the other implications be? Thethe project so they sense its necessity, so they accept situation nd the role of women must be understoodit, so they feel that a minimum of justice exists and by the whole society, by the whole community,so they are aware that when they carry pipes they do otherwise women will become "elements" and thisit for themselves and thus they accept it. Otherwise has far-reaching implications.women will become used and abused cheap labor.

Mr. Rasmusson referred to the Guinea WormMrs. Traore recalled that in Malawi, as in many presentation and said that it was also mentioned in his

other countries north of the River Senegal, men are position paper on RWSS in rural development. Asfree and women have to take on certain far as he knew, in any country where programs areresponsibilities. Responsibilities are not always being prepared for the extension of RWSS facilities,interchangeable, but behavior modifications result areas infected by Guinea Worms do have highfrom social changes. Women can be called on to take priority. He sad that it is rather easy to eradicatenew responsibilities, provided that those changes are Guinea Worm infection: it is a matter of protectingnot motivated by the interests of the project or the the water source and of improving the quality of theobjectives unilaterally decided by those who designed water.the project.

On the question of time saved, Mr. RasmussonOn the issue brought up by the discussant from said that time saved can either be used to increase

Togo, Mrs. Traore replied that asking women to take productivity or for non-productive activities. Rather,care of maintenance was not asking for too much the question which should be asked is, 'How do weprovided that women participated in the decision- value that time saved and how do we include it inmaking process, in the construction, in all the qualitative and financial or economic analyses so wedevelopment stages of the project. Then she can justify the investments to be made in RWSS?expounded on the practical implications of her After all, we must try to attract more funds to thestatement for the future: Is it feasible? Is it the way sector and this can only be done by devising tools tothe population feels things should be done? She said justify increased investments and to point out thethat she could foresee women becoming mechanics specific benefits that derive from improved waterand some women being promoted to a more important supply and sanitation.

POSMON PAPER 3

TECHNOLOGY DEVELOPMENT

Prepared by

Robert Roche and Piers Crosswith contributions from

Bertrand Ah-Sue and Steve MaberThe World Bank

TECHNOLOGY DEVELOPMENT

SUMMARY

In an environment in which technology development remains heavily oriented to the needs and marietsof the developed world, the 1980s has seen the resurgence of low-cost technology development more.appropriate to the needs of the countries of Sub-Saharan Africa (SSA). Innovative approaches have been thedriving force behind sector programs in many countries. The paper reviews the major achievements in low-cost sector technology development in recent years, focussing particularly on. handpunp and pit latrine:.::development. The factors affecting technology choice are reviewed and a model of typical costs is presented.

Issues of relevance to policy nakers regarding further techhnology development, marketing andmanufacture are highlighted. These include:

* Creating a favorable environment for the public sector to fulfill promotional and regulatory functions* Building local manufacturing capacity* Facilitating growth of local welllborehole drilling industries* Establishing technology standards without limiting innovation or inhibiting incremental improvements

I. INTRODUCTION As a result, RWSS technology has been thedriving force behind many of the most successfulprograms on the sub-continent, from handpumps in

Despite the fact that the great majority of the C6te d'Ivoire or Kenya to gravity-fed reticulationworld's population is without access to safe and schemes in Rwanda or Malawi to ventilated improvedconvenient drinking water and sanitation services, the pit btrines in Zimbabwe. These advances createmain thrust of water and sanitation technology considerable potential for further sector development.development remains concerned with technologies The realization of this potential will depend on policysuited to industrial countries. As a result, much of makers' ability to create institutional and financialthe technology available is designed to meet the needs environments conducive to the development ofand ability to pay of industrial country consumers and sustainable programs. If the 80s has been a decade ofrequires an enviromment with ready access to reliable technology refinement, the central challenges of theenergy sources, spare parts and skilled installation 90s will be to create policy environments whichand maintenance services. facilitate technology adoption and encourage the

production, manufacture and mnarketing of thesePerhap the most significant achievemet of the technologies.

decade of the 80s for the RWSS sector in sub-SaharanAfrica has been the development and application of a II. OBJECTIVESrange of technologies well-suited to rural Africanconditon Technical advances have included The paper has three main aims:innovave approaches to long standing problems ofmitenanc ad construction, adaptation of technical * to review the major lessons and achievements ofdesign to Ihe constraints of skills and spare parts RWSS technology development in rural SSA inavailabilty, use of improved manufacturing and recent yearsconanon technologies, improvement in quality * to identify the range of options available andcontrol. ue of appropriate materials and area of ares for further developmentfiexibibry for adaptation to differing local conditions. * to review the challenges facing policymakers for

manufacture and marketing of RWSStechnologies

m. TECHNOLOGY DEVELOPMENT * Groundwater Sources

The purpose of this section is not to review all By comparison with surface water sources,the options and technical advances made, but rather groundwater sources have sevend importantto present highlights, particularly with respect to advantages. Groundwater rarely needs treatment;groundwater abstraction and on-site sanitation provides a substantial storage buffer to cope withtechnologies. The bibliography presents a few key droughts and seasonal variations in supply andpublications which provide further information on the demand; allows the community to manage andstate of the art of RWSS technologies. maintain the system more effectively because the

entire system is located in or near thecommunity; and capital investments are also less

Rural Water Supply substantial.

Water resource conditions differ widely across Perhaps the central area of concern in RWSSthe sub-continent and within most individual technical development in recent years has beencountries. Effective techniques have been developed handpump development. Manufacturers havefor both surface water and groundwater provision. generally taken two routes in handpump design. One

has been towards durability' - to make pumaps that* Surface Water Sources break down less often, minimmizing repair by

maintenance teams. The other is towardsSpring Protection and Gravity-Fed Supplies: 'maintainability' - to make more easily-maintainedWhere perennial, upland, protected, potable pumps that can be repaired by the users or localsurface water sources are available (springs or mechanics, without the need for lifting-tackle.mountain streans), gravity-fed reticulation is aproven and effective technique. In the case of The unbreakable' pump has proved impossiblesprings close to settlements, simple spring to make and reliance on public sector maintenanceprotection has significant merit. Gravity-fed teams too costly. The current trend in nmnysupplies have had success in providing reliable countries is, therefore, to make pumps that can beand cotitinuous services. repaired by local mechanics. The potential has now

been created for the replacement of pumps whichWatr 7)tamen: In an environment where formerly had to be extracted with lifting-tacklle andskilled operators and uninterrupted supplies of entirly dismantled to replace a simple seal. 'Userspae puts, fuel and chenicals are available, friendly' pumps can now have the same repairtreated water from rivers and lakes can also completed within a few minutes by one man orprovide good service. Few situations in rural woman in the community. In addition, corrosion-Africa have these prerequisites, resulting in resistant plastic materials have found their way intodiffculties with operation and maintenance and handpump design, eliminating a source of userfreqmat bakdowns of the system, with inherent dissatisfaction with handpumps, namely, corrosion ofhealth rsks, the galvanized rising main components which gives

the water an unpleasant taste and discolors food andIn tdus cotext the past decade has seen a return clothing.to, ad futher development of, water treatmentmethods botter suited to African conditions. Solar pumps are an increasingly attractive option.Slow mwd filters, roughing filters and other Over 300 solar pumping systems are presentlytrm p- technology have recently received operating in West Africa, most of them in the Sahel.co_aderble attention because of their simple The major constraints to widespread adoption-highop0at0o and low maintenance requirements. capital, maintenance and repair costs-haveBoa I mview information on the major technical diminished to some extent. Box 2 presents furtherww o_amet advances appropriate for rural details about trends in technology advance inSSA. groundwater extraction techniques and equipment.

Box 3 describes the successful development of acommunity-maintainable pump.

Tedmical Advances in Water Treatuent

Recent years have seen a return to tried and tested methods of water treatment, and the reemergence of-techniques that minimize the requirement of a continuous supply of chemicals, fuel, spare parts and kils. -

Sw Sand Filters: Where there is no groundwater and surface water is available but is modlertely pollutedand turbid, slow sand filtration is likely to be one of the simplest, most economical and most reliable methodsof producing safe dninking water. Limited chemicals and mechanical equipment are needed. In a slow sandfilter, water percolates slowly through a porous sand bed and in the process suspended particles ae -retainedand organic materials removed by a combination of filtration and biological action. Suspended solids removaldis typically about 95 percent and only 1 in 10,000 coliform bacteria survive (99.999 percent removal). Oveitime, a biologically active film builds up at the surface of the filter bed which must be controled by scrapingoff the top few centimeters. In more polluted waters, disinfection can be included in the design but this isonly recommended where chlorine will be available on a continuous basis.

Roughing Filters: Reasonable operation of slow sand filters is only possible with raw water of low turbidity.As a result, pre-treatment of generally turbid surface water is necessary. Chemical water treatment processesare used extensively, but roughing gravel filters have recently received considerable attention because of theirsimple design and reliable operation. The combination of roughing and slow sand filters will undoubtedlybe increasingly used in coming years. The direction of flow in a roughing filter can be up, down orhorizontal. Also, it is typical to flow the water through'a series'of cells with decreasing sand particle-sizes,this maximizes removal efficiencies while extending the time between backwashing. Studies are a ny-underway to better natch the media size to the raw water characteristics in order to determine the factors thatfavor particular direction flows.

New Water Trealmnent Tchnol: Conventional wateteatmet plants have a high dependey on electro-mechanical equipment and advanced technical skilli. Difficulties mn operation and maintenance are oftenexperienced in environments where there is scarcity of adequate technical skills and u "ililif spareparts. As a result, water- treatment installations have rapidly deterioiated, oftein requuig extinterventions for rehabilitationand operation and mainten'ane.

Since 1970 (and even earlier in some regions), simplified watr trieament t y ha's been developed-to replace conventional systems. Technologies Cdeveloped in Latin America to resolve the problems of pooroperation and maintenance are also approprit to the Africa Situation. Treatment plants havebeen built with,considerable elimination of electro-mcdhanical equipnt aind grater introduction of hydraulic or gravity-orientated operations, thus teucing deIpedency on advanced technical slDs and ensuring fewer plantbreakdowns.

Chemical dosing is usually -made by gravity feedes, -mixing by flumes or weirs, flocculation for smallplants by hydrulic drives, sedimentation using plate settlers, desludging by syphons and backwashing offiltes by hydulic operations. The advantages of these procedues are:* A simplification and minimum use of mechanical equipment, such as the elimination of head-loss

ICoCRdus, flow-rate controlles, filter pipe galleries, pumping equipment, wash water tanks anduglating valves.

* L advanced technical skills are required for opeation and mantenance.* De of the simplification, less-costly equipment is required. Simplified water treatment plants can

oel beween 1/4 and 1/10 of conventional plants.Affican decision-makers are encouraged to consider thepotential applicability of these available

i _claaolius, which may improve the sustainability of water treatment installations and contribute to a moreasisfadky ad dependable water supply service to their population.

Technical Advanc in Groundwatw Extraction

1. Wd/lBoreholeSinidug- :

Dui Wdl Sinkina: Hand dug well iking is a taditional technique in many parts ofAfrica. Improvenentof well-sinking techniques through improved well-lining -materials, equipment for excavation:ad: wterextraction, as well as beter safety measures can improve constnuction standards And increase well pds andyields. Use of explosives in hand dug wells is a uccssful mmethod inhrroCk.

Hand Drilled Boreholes: The development of improved, tobus andcommunity-operableh aug hprovided a quick and low-cost mems of drilling in certain so conditions.

Mechanized Borehole Driflina: The range of mechanized drilling equipment available 'inte : sco .greatly expanded. Medium-weight and medium-priced rotaty drilling ngs offier the best.eratio. Use of oversized rigs esults in unnecessrily highcotforst ope ndequipment u

2. Handpumps

Direct-action Pumos: For pumping lifts of up to 15 meter.,direct- pumpslt hepod, ihysuccessful. Without a lever-handle or bearings, they are characteizedl by the simplicity, low cost and Ceseof repair. They am ideal pumps for village-ba maintenace. Tie mtO sucssful hve beentheTa dthe Nira pumps. In Africa, up to 50 perceat of all m b d be direct-actios.

liah-lift :Pmnps: 7bThe India Mark H/IOl is the most com pump in both and:ric: Isuccess in India, where more than a million haveen intl, h not e ep iAri. Aireason for this is that its galvanized steel. pum p rode:ald niin mainsl are 0ucptibl. o o ion ingroundwater of pH 6.5 or les. sisnominorbleince more ii hfewell i Ware in this category. While it has be6m the standard by whichto judge e raily o- generation of bandpumps in the la decade,' th ni M pumping lifts of up to 45 - i hi ift ve i tthe Volanta, Vergnet and Afridev handpumps, all o. f whic d d a 3 efinformation oa the Afridev..

A typica solar pumping system is composed of: . ovoa pe electrical energy; an invertor to tansform the DC aoutut ofthe pael ino ai i operate the pump; a submersible electric pump;a such s th r ,:wa l t .meter and wiring; and a water storage tank. The pow of tir pu ingranges from 600 to 4000 Watts, equivalent to a water deli- oft S-to 100c t e d a pumping lift of 25 meters. Such systems -ae b r cmuit 700 io 5000 residents,assuming that their water consum is 620.1i te p pry.

The trend in solar pu"ps has been towards high-effiency AC mtors op;ertedl t low voltages of 60to 20 V (Grundfos of Denmark) and standard30hse 380 V AC: mt ors tal of Prance andilsolar of. Italy). Within the next 5 ye, low-power Pumping (150 to :250.Wtts,O, with yieldts from5 :to 20cubic meter/day are likely to be developedcomm1ercialy u:sin DC motors ad auorphu silicon (Cof the USA). Their potentially low price could make them competitive with handpumps for communties ofbetwoen 500 and 1000 people.

Normal repairs include: partial re-wiring of the amy; exchange of the invertor; exchang of the pumpand motor, repairs to the rising main. Both the pump and tho photovoltaic arry are now very reliable, witha life expectancy of 8 yeas for the pump and at legst 20 yeas for the array. Breakdowns ar generally dueto wiring or invertor problems. While all thes rprs can be porformed by a technician, with the help ofemilled workers, private maintenance schemes are feasible only if a critical mass of concentratd

installtions (not less than 20) is reached, making it viable for a private company to invest in vehicles andSePA Pas.

10X3,...,.,.. -,D o- 'f , Rand t 'un Si.

--pport of the United *at:wis DevelopmeNt Pr:.:.mme/W.dd B.nk Water and Sanitation . g....h..... .j-X ^_ ~~~~~~~~ '. ,,g,, '~aimlo pim. ""

::~~~~~~~~~~~~~~~~~~~T PUM- 1- i b-: CIOoIjciei einn h pmp hav, been to deeo -mintial pum sa on Nha co

. . - , . ... .... . ,. , .. .... -, , .. -., ,, ... , , , .. ., -....... ; ., ., ., ..........,,.,.,, .,... .,..;..

be :-:.:tn,h in A:fr-.-::i,cy:-nS cunrie -it -iie -nutra m re. -. e pum -u evle fro.--.-.-. .

pr:totyps developed in a f t : . many c

b: many` puropeoos o In"ss p ucton.Manua n c

to it being d op i o d for Neiam and n thuopia.

Patics ofeac ind devlopmnt a plye SaDvitalrole n zth succeiss oa the p:o_c. Th:fie

I Tcorporat y of the cons that ar mort8 for co kmnit asd nhnote bne d.i :h: :-:

mofldeatepwbspc

5 - - , ~~~~~~~~~~~~~~~~.-.-.--... -, . .. j,......................... .

* r e :ai:e by c-b m mmunity. . .es

-design in the public domain:* cla be manufaccured locally at.p:e opttiei h nerainlmre

The pwmpbhad is an a-teeil frication espcially designedforeay mainteace and manufcitdre.1Treplaementof the fucrumn and hanga bearings can be carried Out quicly ad 'simply it a igl panr

T re tro e ltuts a1nd(boWts need sgly be stackened and nm

The pumpriods alxret doine od w rnotht t ing e onstenaboowed conneonst andThe ros, pnger

ad floptvuv cauntr bes ismve fitrn-s toiets~wl with onetoo.nTe in i subSiharnedt gfive has bood yiel

aederae ducnae puptoes Byusigt ths mthodeisizdml diaometer lonf ithe vylntlodeipoedptlarn

ge tcal ndaprdpizati ea outeido spre rhequire VP ute eeoments,rdcdfre ofan ligte kpoeyt whchnrepso

che apner ndasie, lmtod remvelbt fof piapnodu n was cogntroyil caa rlteshater poetiablfo muth -purpawigosa

watler ued teibsnkcn of suiateable t ardetmon , attl wadearragyfof the optmns Waclter in adaparcne.

Th. pump ctincorpowvr,thes ladstrl desig pers cass suho asvaeisap-ltyogehe loalmaterals.bifearings cluand

oenrutilizes hin ulthe inection mould andprmtiomon t profere bes masdlees poduedanfodabuilieaty low

cost.~~~~~~~~~~~~~~~c

Low Cost Sanitnati n Drinkng wa tersupply and santation Decade(IDWSSD), providing significant health benefits at

The conventional excreta disposal method in considerably lower cost. The most sigificant

developed countries is cistern-flush toilets with advance in sub-Saharan Africa has been 'the

sewerage drainage systems. But this method is development of the ventilated improved pit-latrine

generally inaproprl4t outside of the urban (VIP). Further development of the key concepts of

environment in view of the high costs of construction this simple technology, specifically its fly and odor

and maintenance, limited availability of piped water control caPabilities, have enabled the spawning of a

suplies and the absence of suitable treatment and wide arry of VEP options, facilitating adaptation to

disposal facilities. However, the last ten years has the availability of local materials, differing cultural

see a renaisane in the development and promotion preferences and levels of affordability. Box 4

of on-site sanitation systems in rural and peni-urban presets a technicgalsmmary of the recent advances

area, supported and encouraged by the Intemnationai in sanitation technology.

- -- 0 ~Tecnia Advanc* in0000T; Low 0-Ct Sanitatio

1-'. ' etlae -- roe Pi, -t- Latrin'es .'" . " :

:-0 A vnt pip lminats oorsby- craing a airow throug h ltin.inero an.ptevn ie leare crbiotrolled by limitin th lgh0t ~nern the pit truhte*qa-o rsa rm :ineriorr ~latine

preventepd frm leaving teltinelopit by incrpraingaurabl.e(steelt ortlmnm s;creen in he0^ ven pie-In:1 most soil condtions asing inlaties isecurgd fiorhygiene reasons, but als beaseit cnront

whchv can tadd: up to- $75 -toVthec latine cost.ffg A .iwides Tangoof maZteria n deFsignEs an lbe ued fors {the:suearutr, from: thathto brcstio fer-cmet,withcosts vrng.acrin to aviaili-tyoFlocal.00materials and willingness to pay.: InI cultures fwith traditional :brick tproductio, cemntplsteed brick walls0 can be a durable and atrctive solution. :lIn gnrl,:strut_e using:-largeamounts of: wood shouild be;discouraed. A m_s:eof balance betw houingand latinmaeia;lm is desirable.tl -000:;;70 00:;::0::0 -

Either single or doule pits cantbe insalaed. Single pits ae--less expenive but reqire0 a ew pit to be 0dug every 8 to :15 years.0 :Double pits are more expensive but can roidea-pernnt structure ad-bettrdaccom dae failmie -for hm cutrl aosprevent etrehuseolds saing a single::latrine. A resti gperiod of:18 to 24 mots:is required: forfdie-off ofpathogead deompsiio owste materias -Heoce,-::the reetion timie:for: double pits cuan be shorter thanforsinglepit latrieis nd th. dried solids can be used-

asfripiaron hueoldi plots.

2. PourFlus Toilets gkfi8f0 B0 00

-A dvlpeto6ao motne nAi a entefuhrdveom ftepu ls olt

wellsuiteod. The poutir flush toltsesnial ipiicto rtefls olttiictn ofbnto

wThere are roeuiefo flusing ada atrea pevnt fWiei;0s anKd odors.td,-0rhttssSo 0

r3. eqti Ta na

Septic tnshave lImited iapplica0tion Iinral coDmmunilties,. except intiD'he homes :of toe Vwith houe:-connectionsan internal plumbig.-j Their' design has ot chaned UIn the last edee} but more iSknw aClWl;bout;4 the design parametersiof the .drain_fied. Becae l term inbfiltratin cacity-is 6 pr t to: the permeability of the soil, care must:lbe takentosize thefdrain field prpry.; :The use of twin pits can inresinfiltration capacity and allow for:rgnrto of fthe draiagfields . -.:i::t .;t|-: ;:D

IV. TECHOLOGY CHOICE are willing and able to pay, which give users the

The range of technological options that have b greatest benefits and which is sustainable within thedeveloped not only provide for solutions in different given institutionXal capacity. The choice of

0virnznntsbut provide consumers with a wider technology should ultimately be the consumers, sinceenhioiments ltptch ed dclua they should assume responsibility for at least part ofchoices nd suitfparticulgr ns o a cTural the capital cost and all of the operaion andpreferences and diffrn Ablt f o peay Th maintenance costs of their facility Affordability ispotenialhasbee created no beab the overiding consideraton in technology selection

to an inreased ange ofdemand.Box 5 presents a model based On a set of base

o any particular setthng te technology chosen condiions for a prototype community, comparinghould give the highest service level for which users the costs of different pumping technologies.

-*~~~~~~~~~~~~~~~~~~~~~~~~~~~~~

Pft~~~t

w I:IIUI!~~L a1111111I 11 WCi___ '

............ v, 'U"iir~~~~~ i~~~~~~~~~~~~~~~~~~~~~~~~~~Woa cp v

tw~~~ ~~'

BOX 5 (continued)

S WdeiX WUpo.nxoaiaulide*sS200per

wal b Uagaeh,r wher arts; use th 'aidr muia .M

ptoataeasofpayrnswandamouz of expatriate law lafmeat

Intherangeot$Zn000to$3.000repaalblS.Pcla,'* une -, A""/"--'''-S5~)OO ae s xme relsi apti fia. Eforts mas b

maid. tofedcency :t of *wells since it would enable gre-

?oeereal wel yiels usa ffectthe ch&c j o pumpiw*g

~~~~~~~~~~~~~it _klt jolclsc,*:fi llijC ,| ̂ Vy: /a.. ,i0|:

to cw ah' $11* t oul o$3,0W ii*-i/0-0;

Pechlo .weltl ws& p Sicuat true In the bao semet oc;'k :f : . _ _ : , _

cwb*a.: 7b4is pot*uidytn#0lb hitt¢1¢-t OK boom :li: IO::

Afca adIndi 2a *bM i c be diMeuit 16 e We&l eVe,, to ;drw it mklmm accp ble w or a bandpu' (b 12-:

ifanoeorizsdpuqi ameuse. Aaeos6kto(a eIite*lsef ), nd J*:p~~~~~~~~~~~~~~~~~~~~~~~..c': .:S., .. .. ... ... .

uazkablefrmtored ptntpnlagca Increaaemrk.y becuu; ;-,,,, s .- we-l ma: hae bIa be bored dveeper *aud;the :sav*er of:y!: -: .::iccfal brhe i decse. n ach cae, ":', :

trained ga-hsiit sa y geologwb^ iu In well m*:t;o can\ t e r

micSaflU& well.

ahe potemially ,, m,al _

i,pol Mas wa. A crm_ it bh as .. os ... ws u.

4. Tm~ategy Chce ed . _o-t- ....... -

mwa b ained pa.4iec affec phe pwI . :5.1 I -i.

ecadaliad ~ ?gs zz,t inac of these a,o,. oa syst' eameF

onprice. is diown Is, Figurems ,, n * :

pu,a _ rcftX:ys an pel c:'t -s4n .:; ':l~ _a

un, Ptar4icg pump ann COaL v de u etwe :u te ex_e , soyar pUnyS becoi conic Inoouaoldbetween 1.000 and 2 .00 l asth l

lihstrre tha sola puny %MAUealato cotYeyhUarae han diesel ptun instllaiow acnlat$eiooaale,pol

*a wiser coomuaytion remaims at about the typical ;:a p O

eammneinai, electric PM*,y can provdew teatlsestImo eoamumnlde. particular if woate conmnpimponIhgh0

is eaVloyed. epmr prt nmg b available and loca mechtaxica_t be eqabbe of mak Au te necestsay teesp or, st

I1, rplacig the ndividua coayon.s,.

The sedoeion of nttion options smilarly contaminato; population density; the potential fordepends on many factors, of which the most future upgradig; water re-use; and culturalimportant are: cost and affordability; wate preferences. Box 6 presets a table comparingavailability; groumd conditions; the risk of water diffent sanitation systems by a variety of criteria.

Chosig iffrenit Santation:Sstu

Flownun are, !m werwaAle -ol COat 0mnN. wvdvetmupja N t e L ...Y - = .......... ...Ss N

Y-- r.in Y L ::-L -:. .V- i

Pbrowsw.lu toilet ye12L L NedbuleWte ms*rYsNoseptic tank - Yes L . : H. Weeds buildeiviuipM ":p L.- S.. .H -. u

SuoU bote No H H :Me. H ;a

( ' '';''.:' igh ' '; :' .. .'"d.. ";.. '. .'''~ ~~~ ~~~~~~~~ ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. . .... ... ..N_.:.{: -{

.o.e ,, , ,, :: .... ,:

:- . .0......... ... .. . .... . .t .. . ...45 ;

Extnding the Range of Choices: V. POLICY ISSUES INUpgrading Traditional Sources TECHNOLOGY DEVELOPMNT,

MARKETING AND MANUFACTURETaditionally, in much of rural subSaaran

Africa, water is regarded as a free resource. Dospite Tedhnology Developmentthe fact that willingness-to-pay data indicates thathere is n untapped potential for payment for wte The advanoes made in technology developmentfrom improved upplies, it remains true that ability to deive from a more professional orientation towardspay is a seious limitation. Given the considerable developing country RWSS technologies by sectorgaM that still remains between full technology costs professionals, matched with longstanding research byand wilin to pay, an incrementa approach to African (and other) resear institutions. Basicsector provion is propate. A first step for the bcnologies derive much improvement and localmunerved population is upgrading traditional sources. credibility by adaptation to the local national

conditions. Technologies cannot be transplanted intoMiLion of rual Africans collect drinldng watr widely differing environments and immediately

daily from ope dug wells and unprotected sprinp. expected to take root.Simple tecmnique in protecting and upgrading thesetaditional ocur require further development sad Policymakers should promote the adaptation ofpromotion. This can provide a major improvement technologies to local needs. A good example of thisID drinkg waw quality and availability and be the is the adaptation of VIP latrine technology tofirst and A affordable step in a sequence of different settings in Africa, e.g. the modifiedij ved wae prof dision procedues. Many country Mozambique unlined single VIP, the Zimbabwepogm octrate on upgrading springs nd single Blair latrine, the Kumasi Twin Pit VIP, thetuditiol war sources and they have made good Lsotho VIP etc. The policy framework required topro s i m untrias as divrse as Sierra Leone, manage this adaptation and the further developmentZambia, md Zimbabwe. of technologies requires both initial support to

applied resch bodies ad collaboton with pnvawte prosets a case study of the deveopment of

sector mauftue, who, once muikets are technology in Zimbabwe, highlighting the role of

established, should be able to undertake furtber public and private scts in RWSS tchnology

modifications in accordance with demand. Box 7 devlopment.

TechnlogyDevelopat In Zibabw

Zimbabwe0 bhas a ci ble it ooyd in the RWSS fiedd he-

institution att o logy dboasIBbeth Blaiorato BRL

publc-funded reeachisbtituion:within:the -Ministry:of Health-. BRLc has, ovaer te:-last dead nd..a halt;-.:.prd,inreRWSS tn ie T o ofecn

:deveopmet as, with a few exceptions, baen consistent thrugh a varety of technologi;-es a c

ablendofcnrbtosfmbohtepbianthprvtscor

The Bucketlnump, designedby the BRLin 1983,:is anupgraded traditional bucket and windlass ystemw::

whicJi prdce*improved qualityrinking water at low ht keeping mit c at the most basic

level. After development of a prototype and modifications, ittuderwibt ope onl nd bacteriooil tials,-:field evai in 1985 and 1987ad is now man p by a lo lmiu iz giering firm using

productio line tI hiqe.0; Som95 percet of the materias.a1sedare.local and boly: the steel pst 1i6imported.,Ovr 4,000 pms have been manufard- and cuirrently over 100 pumpsar.prodc 'every

month. Many J:y: : - .. developing coun;X-E :00trvd-ist. . he ci-Vompan pOv trg

installatin and.:simple tool kit and0s (basi beducational oftrias.(rodcdb t M' I

The Vonder Rig was developed.by an en0ginee in repnetoa ldr tto enbletel

to be suank Imly and lino t60h'oveb.-aove harder r6ok fil .- are its

workable and robust nsti.;its poil.for cmmnit s t by teasfw n ng

little sevision orpnor e ce;andits sucoess n iil rtlghsols and do sdc down ot30 metes. BRI _a filmetngadii pr ouoprtin thel Rig for use aonpublic.

sector -iV Ri l.se gaice oftei inimbabWe. Tlhefirm ewer st m

tools n a ms p ct e i P onof te A tV l . i. m workshop Xwhic employs a f wo .Teir e.g emphasi.

on the quality of producta.ThE rig is built largl from loca- -. tlzn only impo s cablea ilpt .W p produced 300 tAl I c h d e

agencies, but has alsio enoidterg t 6ohrcutre 1 nyi Afric .

The 1Bus Pumpi the icurrent .deepIleve and Thayduty*. bandpump. of choic nZmbbet

overiding strength is it lity; and itr the moit succ l and longest-use d pumps in rli

Africa. Standard Bush Pump deigns tvebeen produceand localmanufacturertender for orders. Te

caut requirement is app inaly2,000 units per year. It isestimated that themre up to 15,000 Bush

Pulmpls preetly in serice in the country.

The local developmnet and aof rurl water technologies has benefitted Zimbwe in a variety

of ways. It has been a sourCe of nat.ol pride and an important factor motivating efforts in program

All the tohnologies have boen developed for local conditions and cat also to local cltual

ad socioenomic consideaons. B:L's Clowe contact with the progamm beneficiaries has resulted in

effctive and timely feedbak from field trials and evaluation. Local manufacture has resulted in savi in

hard cumecy and the export of the rual water technologies has considerable future potential.

Standardization promotional and regulatory function in serviceprovision. The beneficiaries thereby take the lead

Standardization is useful in many ways and can position in requesting, instaling and paying for newbe conceived of on three levels: (i) standardizing of water supply services. This approach brings a newservice levels; (ii) standardizing equipment selection; perspective to typical current service extensionand (iii) setting standards for design and production. approaches. The concept of marketing technologiesDefining a standard range of appropnate replaces that of service extension. In the preferredtechnologies, suitable to local conditions, provides a model, hardware such as handpumps and especiallyfocus for activity and investment and lays the basis spare parts, would be available in local markets andfor a maws program. The setting of such standards trading stores. Financial support such as creditshould, however, be made with the full knowledge of through local banks would be made available so thatconsumer demand and affordability since desirable communities could make more expensive purchasesbut unaffordable or impractical standards can when they do not have sufficient cash. In addition,seriously constrain program development. bidding procedures must be improved to encourage

qualified local contractors to contribute to sectorAdherence to a small standard range of proven development with good quality WSS facilities at a fair

technologies and equipment will increase availability, price.lower cost, minimize spares requirements, minimizetraining needs and simplify promotion. For example, Building Local Handpump Manufacture Capacitylimiting national programs to one or two deep- andshallow-lift handpumps achieves many efficiencies. The requirement that each community purchaseWhile standardization can bring many economies, its own pump will favor serious manufacturers (bothover-zealous imposition of standards may also inhibit national and international) who are prepared toinnovation. Standardization should not limit distribute their products through regional outlets anddevelopment of simpler and affordable technology local retail stores. It will also ensure thatoptions, such as the upgrading of traditional sources. communities select the pumps that have proven toSetting design and production standards also brings give the best performance at the least price.many benefits, enabling better quality control, betterinventory control, lower costs and provides a more Local manufacturers must have a market for theirstable platform for mass manufacture and distribution. punp before they can justify the necessary investment

in materials and tooling-up. This requires an effortM'arketing Rural Water Technlolgies on the part of government and donors to facilitate the

introduction of local manufacture. Two things areChoioe of strategies for widespread technology necessary: (i) assistance to initiate production of high

adoption depends on institutional and financial quality pumps; and (ii) purchase of local pumps ifenvironments. Typical past practices were for central made to specification. To both do this and still leavegovernment project personnel to approach a the purchasing decision up to the communitycommunity, elicit a token contribution, request the necessitates both flexibility and risk-taking, but thecommunity to decide where they want to locate their long term benefits are substantial.water point, bring in a government or internationaldriller to construct the wells, install a preselected Policymakers need to create environmentspump made in the donor country and then turn conducive to the development of local industrialmainteance over to the local water authority or to capacity for the manufacture of pumps and keythe community. This approach, however, seldom hardware components. Establishment of local sectordevelops the local infrastructure needed for rural industries will enable easier availability ofcommunities to maintain their water supply facilities technologies and spare parts, development of localand is unsustainable by central government agencies. skills, creation of job opportunities and greater

national self-reliance. Governments need to limitRather than assume that governments need to be surcharges, import duties and other constraints to

the sole providers of services, widespread technology encourage local production and make local pricingadoptioo demands that central agencies adopt a competitive.

High interest rtes, delays in obaning foreign wels) will help ensue that regular work is avalable

exchag and duties on imported materials all wok and on a scale that small contractors can effctively

apinst a local manufacturr's competitiveness. mange. Bidding procedures mudt ensure tht

Typically, capital must be tied up for one year experienced local ddlling contractors are given a fair

between the tiem foreign exchange is ud ad cac and equal opportunity to compete.

a pump is sold. This alone can increas Pre-qualification procedures help to achieve this, as

manufacturing coss by 20 percent. Base profit they ensure that contractors with documented

margi are small in the intational hadpump performcn records are slected.

market, such fators can make the difference in theviability of local manufacturing. If local Drilling equipment should be sized according to

manufacturers mus then compete against pumps that the job, since the use of unnecessarily over-zed rigs

ae imported duty frie and distributed at no cost to relts in greatly increased costs. Where hand-dug or

the off-shor mnufacturer by govemment or donors, hand-drilled wells can be installed, savings are likely

local mufacturers have no chance of competing. to be substantial. In all aes where such wells are

Grater efficiencies may be schieved by arranging for suitable, govemits should initiate training

regional production of key pumps or pump pograms for pnvate contractors to teach them the

componets, particularly betwoen countries with trade relevant technical and accounting skills.

agreemmts, common currencies and import dutywaivers. Inovative approaches that help to establish local

well drilling industries are needed. For example,

Establishment of WelllBorehole Drilling Industries local firms should be able to obtain credit for thepurchase of materials and equipment as part of

Many African countries continue to operato financing for a water supply project. This could be

central drilling industries at high cost and with low to a wholly-owned local contractor or through an

output. These inefficiencies derive from the fact that angement with an off-shore equipment

the persnnel and financial control policies of central manufacturer who buys equity in the operation. This

govenmmts am rrely flexible enough to support angment would provide vital overseas technical

measures-suh as piece rates, shift work and othor and purchasing wpport.

productivity incentives-which make for efficientdrilling prctices. Maintenan and Spare Parts Supply

The establisment of local welldrilling idustnies To take best advantage of their resources,

in many African countries ar constrined by sver governments shoultd play a support role rather than

fAco, but the central problem is cash liquidity, both take full responsibility for the maintenance of water

in locsl currmcy and foreign exchag. Local sply systems in small commuities. By turning

conrato also need a stable market so at they responsibility for maintenance over to the

have asurance of future work, otherwise ty are and prive mechaics, local demand fbr

forced to quote high prices for individual jobs in spore puts will increase, thereby supporting a local

order to cover their investment in drilling rigs, market. Also, response times for repairs will depend

equipmt and vehicles. The provision of free rigs on the importace of the supply to the community

by donon without dutes or bonds to govenments and will no longer be subject to the personnl and

has boe counterproductive to the development of transportation constraints that goverment agencies

local well drilling industries. face every day. Costs will also be lower becauseprivate mechanics do not have overhead costs

A policy environment is required which favors asociated with a govemment maintenance unit such

the sablishmt of local well drilling industries. as vehicles dedicated to maintenance, housing and

Measre which tie up local weU driling industries' serisory costs. Again, government's role ought to

ctal should be minimized. For example, ecurity be one of support by training private mechanics and

sad prformn bonds should be no higher than providing bclwup. Box 8 provides a case study of

nDOCry ad paytnt for completed work should be involving the private sector in the supply of spar

po Pakaging of small contrcts (20 to 100 parts in CAtW d'lvoirm.

Supply of Spare Parts and Standardiation in C6te d'Ivoire

In 1988, Cote d'Ivoire embarked on an ambitious progrm for trnsferring opertion and mineaeof all rural facilities to villagers. Prior large scale pilot activities tested conity mobilization and trainingprograms. One major issue, however, remained to be addressed, since:all pilot hactionshad reliemdongovernmental support to supply spare parts to rural communities. .. Even 'thogh the public distnibution'...netwot* performed reasonably well in supplying spare parts to some 1,000 vilages, expansion to cover'te.remaining 8,000 villages was not feasible or affordable. Shifting the supply responsibility to the'privatesector was clearly the solution.

The large number of handpumps nstalled (13,500) epresed a ivprosPeCt..fosuppliers. But trading companies were much more concerned by storage anidi''stbutiocosts. Thechigh'.degree of standardization--2 pump models accounted for 98 percnt 'of the total mariket-generae lower.....costs and brought a decisive incentive to the involvement of the private sector,',which iesponded' favorablyto inquiries from the Rural Water Supply agency. A privadt networkc was soon ' ablished which now.supplies some 500 area mechanics.

Community based maintenance is predicated upon and replicable program whereby the semvice can belocal availability of common spare parts and at least extended to all the unserved population. Fullregional availability of the more expensive ownership and all subsequent replacement costscomponents. Inexpensive wearing parts are also sould be the complte esponsibility of the owner.important so that distributors and retailers can makesufficient profit to interest them in the business Widespread coverage wiU never be achieved ifwithout making the cost prohibitively high for the govermt-employed personnel are responsible forcommunity. Molded plastic components are ideal for all constction. Govements cannot afford tothis as a complete set of wearing parts can be made aeploy enough staff and trausport vehicles, and therefor about US$10.00 and sold for under US$20.00 in is no incentive for mas construction. Privatelocal retail stores. conrctors are much better suited to this task because

they will be paid only if latrines are constructed andMarketing Sanitation Technologies it is in their interest to promote sales. As part of

govenment's promotional role, small scale localLike rural water supply, successful provision of contractors should be trained in the construction of

rural sanitation facilities in a sustainable manner stdard tchnical options using optimal techniques.depends on demand. Improved sanitation has in Government's ongoing role should be promnotion,general less prominent demand yet is of major public ensuring adequat standards of construction byhealth importance in most onvironments. Sanitation contractors and monitoring coverage.programs require substantial promotion activities.Promotional approaches which market sanitation VI. CONCLUSIONStechnologies in terms of the benefits as perceived byhouseholders-privacy, convenience, comfort and The development of attractive, appropriate andhygiene-have been successful. Demand creation affordable RWSS technologies are a powerful tool foroften requires a subsidy element in initial capital cost. sustainable nd replicable programs. WidespreadThe extent of this subsidy component needs to be adoption of the important advances in appropriategreatly limited to ensur development of a sustainable technology development that have occurred in recent

years will only be achieved where policymakers

create an environment for sustainable program SELECTED BIBLIOGRAPHYdevelopment.

Arlosoroff, S. (ct al) Community Water Supply:Steps for policymakers towards creating a The Handpunp Option, UNDPJWorld Bank Water

favorable program climate are: and Sanitation Program, World Bank, WashingtonD.C., 1987.

* To promote the adaptation of technologies tolocal needs. This requires collaboration with Cairncross, S., Small Scale Sanitation, Rossapplied research bodies and private sector Institute of Tropical Hygiene Bulletin No.8, Londonmanufacturers. School of Hygiene and Tropical Medicine, Lndon,

August 1988.* In collaboration with applied research institutions

and manufacturers, to identify a range of Kalbermatten, J. (et al), Appropriate Tehnologaffordable and locally appropriate technology for Water Supply and Sanitaton, The World Bank,options as the program standard; to standardize Washington D.C., 1980 (12 volumes).on equipment selection; and to set design andproduction standards. Morgan, P., Blair Research Bufletins on Rural

Watr Supply and Sanitation, Blair Research= To redefine the role of public and private sector Laboratory, Harare, 1989.

agencies such that public sector institutions areresponsible for technology promotion and WHOIWEDC, On-ite Sanitation, World Healthregulation (effective demand creation) while the Organization, Geneva, (publication planned forprivate sector is responsible for the delivery of 1990).services (construction and maintenance) at therequest of the consumers.

* To promote local manufacturing and drillingindustries through creating environmentsconducive to developing local capacity. Specificmeasures required will include limiting securitybonds, import duties and other constraints,encouraging local production, making localpricing competitive and providing training andtochnical assistance to key industries.

PRESENTATION OF POSITION PAPER 3:TECHNOLOGY DEVELOPMENT

Mr. Robert Roche of the Regional Water Supply * Minimize use of Government and donorand Sanitation Group based in Abidjan introduced the owned and operated drilling rigs as they arepaper that he had co-authored, entitled 'Technology inherently expensive and take work awayDevelopment' in plenary session. Mr. Roche from private contractors.commented that the 1980s were marked by innovationin water and sanitation technologies, particularly in * Establish a National or Regional WellAfrica where easy to repair, corrosion resistant Drillers Association to encourage sharing ofpumps and VIP latrines have been developed. The technical support, information, inventories1990s on the other hand will require innovation in and spare parts as well as establishing a self-delivery of services in order to meet the demand for policed standard of performance.water and sanitation. He indicated that for thepresentation, he would pay particular attention to Service level and technology section:ways of improving the delivery of those technologiesand focus on - Mr. Roche then tumed to the question of service

level which he considered involves a combination ofe the cost of boreholes factors-quantity and quality of water, amount of time* technology choice needed to collect water and reliability of the system.

* local manufacture and distribution of spare If quality and reliability are similar then there areparts and pumps two alternate service levels - point services (hand

pumps and public standposts) from which householdsCost of Boreholes: must carry water home, or, yard taps which deliver

water to the home. He then drew on the figures inMr. Roche asserted that at an average cost of Box 5 of the paper to show the cost of water for

$15,000 (4.5 million CFAF) the cost of boreholes communities of different sizes and that, in generd,was too high. To provide water to 200 million yard taps cost about 3 times more than point sources.people in Africa by the 2000 would require 100boreholes to be completed every day for the next 10 He then drew attention to the graph (also fromyears - halving the cost was achievable, in his view, Box 5) to demonsrate the alternative costs forand would save $750,000 every day. But, to reduce Manual, Electric, Diesel, Solar and Wind pumps.

cost means promoting the local well drilling industry He summarised that, generally, manual pumps are thewhich has some very important implications. least cost alternative for small communities where

small amounts of water are needed, and, that diesel* Clients (including Governments) should not pumps are best for communities where large amounts

tie up Contractors' capital through slow of water are required. Solar finds its place inpsyments. medium sized communities (1000 to 2500 people)

being not very much more expensive than diesel* Use competitive bidding to lower prices and pumps in the larger communities.

to eno that qualified drilling contractorsam sdected. Mr. Roche stated that the greatest advances in

the last decade were in handpumps and solar systems* Advertise tenders regionally, especially and that, in his opinion, these would be the most

impotannt for those countries that have only important technologies for RWS in the next decade.ooe or two drilling companies. Handpumps have become much more 'user-friendly'

and easily maintainable with many common repairs* U hand dug/drilled wells whenever feasible being carried out in only a few minutes by women in

s they are only one-tenth of the cost of a the community using corrosion resistant plastic

inchine borehole.

materials. Mr. Roche spoke of the reliable direct- This does not necessarily implyaction pumnps for lifts up to 15 mnetres and the high standardization, but rather sound government

lift pumps for lifts up to 45 mnetres which are also advice to consurers to avoid tenporaryeasy to repair and many having corrosion free below proliferation with each new project.ground comnponents.

* Import duties should be applied consistentlyOn solar pumnps, Mr. Roche stated that there are as between local and foreign nanufacturers

over 300 solar pumnping systems operating in West as governments often disadvantage local

Africa, most of them in the Sahel especially Mali. anuufacturers.He indicated that there are 3 types of systems, eachwith their own respective advantages - * Technical assistance should be provided to

domestic manufacturers to help get them* Standard 3 phase 380 volt AC motors. dsarted or up to an appropriate quality

standard.* High efficiency AC motors operated at 60 to

120 volts. * Local manufacture of an intemationallyspecified pumps is preferable to starting from

* DC motors that do not require invertors. scratch with its consequential disadvantagesof lead time, high entry costs, uncertain

Costs are continuing to come down especially for the marketability and back up for spare parts.panels. Reliability is very high with breakdowns Loal products to specification and at aoften confined to wiring on to the invertors. He competitive price will succeed.urged greater attention being given to the use of solarpowered pumping systems. In concluding, Mr. Roche asserted that

technology is essential for sustainable and widespreadLocal manufacture and distribution of spare parts and coverage for rual water supplies. However,pumps: technology alone is not enough as innovative ways of

delivering RWS services must be employed. TheMr. Roche remarked that a pump that can easily evidence is now clearly available that in

be repaired serves no purpose if spares cuanot be circums e whoere -

obtained; a number of things can be done to promotedistribution of spare parts - * the community takes the lead in planning

and maintaining RWS;* Communities should purchase and maintain

their pumps thereby creating a local market * the private sector constructs facilities andfor the best pumps at the least price. manufacturers spares and pumps; and,Survival of a particular pump will thereforedepend upon the seriousness of the * the government plays a supporting role inmanufacturer rather than the number of assisting communities to make decisions andprojects in a country. creating a climate supportive of local

manufacturers and distributors; then* Direct-action and high-lift pumps should be suainable RWS will be assured.

recommended for particular circunstances.

TECHNOLOGY DEVELOPMENT:A PERSPECTIVE FIROM ZIMBABWE

Mr. John Chatsavka Mvududu, Director of technological likes and dislikes of people inEnvironmental Health Services for the Government Zimbabwe. This was also emphasized by Ms. H.of Zimbabwe, presented the Zimbabwe story of on- Perret's TAG paper of 1983, in which she pointedsite sanitation technology. He said that Zimbabwe out that a conscious effort needs to be made to ensurehas gained a niotable reputation for its ability to that women's likes and dislikes as well as men's aredevelop on-site sanitation technology. This considered, and that the special needs of children aretechnology development has indeed provided the basis kept in mind when choosing technological options.for the development of Zimbabwe's extensive ruralon-site sanitation. The focal point of technology The Blair latrine, when correctly built, isdevelopment in the country is the research laboratory odorless and greatly reduces the problem of flies. Itof the Ministry of Health, which among other things also takes into account variables, or technologicaldeveloped the famous ventilated improved pit (VIP) options, including convenience, privacy, comfort,latrine, currently the technology of choice for rural attractiveness, reliability, prestige value, spaceon-site sanitation. Sustained promotion of technology requirements and compatibility with the traditionalcontinues through a close liaison and collaboration and culturally acceptable defecation practices of thebetween the research center and the field citizens of Zimbabwe.implementing staff of the Department ofEnvironmental Services. The VIP latrine produces the best results when

constructed as a single unit for families. However,In the early 1970s, through the pioneering work in recent years, technology has been developed to

of Dr. Peter Morgan, the development of appropriate offer a double compartment (for families who demandtechnology for both on-site sanitation and rural water it for cultural reasons) and multi-compartment unitssupply commenced in Zimbabwe. This technological (for schools and similar institutions). To promotedevelopment took into account factors such as construction according to desired specifications,poverty, poor education, and the psychological, social community-selected local contractors are trained inand cultural aspects of the community to be served, latrine construction. After trining they are issued aincluding the economic realities that existed at that certificate which acts as a guide to members of thetime. The 1970s saw much technical development community in selecting the correct builder to buildand experimentation. The outcome of this exhaustive the latrine according to specification. Traditionally,research was the emergence of the highly successful latrines had to be situated at an inconvenient distanceand widely adopted VIP latrine. The research was for fear of smell around the home and for privacy.conducted within the Govermment structure-the However, the Blair latrine has managed to overcomeresearch laboratory and the envirommental health the problem of flies and offensive odors, and as ainspectorate-but was assisted by the private sector result latrines are increasingly accepted within thefor technical innovation. Developing technology homestead, thus allowing a greater utilization, evenlocally created a high level of confidence in the at night.technology on the part of the implementing agencies.

The family Blair latrine technology promotion isDr. Peter Morgan's Blair latrine imnproved privy based on the concept of providing a subsidy to each

has, since its development, enhanced the scientific family, which is channeled through the Ministry ofvalue of a dry privy's primary disease prevention Health from donor sources. Since 1980, at leastrole. One of the factors that is attributed to its 200,000 single-compartment units have been built,occess is the fact that it takes into account the although multi-compartment and upgraded versions

are also available. The technical details of these but also require a fly screen, less cement, and less

models have been described in the Blair information payment to the local builder. For these reasons the

bulletins which have been distributed throughout the cost of a single- is far less than that of a double-

world. compartment version which people prefer. Thereforeto ensure acceptance of the low-cost

In recent years, the comnmonly constructed single single-compartment version as opposed to the

latrine has used between five to six bags of cement double-compartment version, educational campaigns,

and reinforcing wire for the base slab and undertaken by environmental health technicians, arechicken-wire for the roof. These components, on-going to promote the single version. The

together with the corrosion resistent screen, are environmentl health technicians are always among

provided through the subsidy mentioned previously. the villagers; they never move from the main centers

The family provides both the labor and the other as is the case with other senior staff of the

building materials, including sand, stone, etc. Very department.often a builder is employed to construct the unit andis also paid by the family. The present cost (1989) The choice of building materials is also based on

is about 300 Zimbabwe dollars (US$125). The low cost and reliability. Recent research on the lifecontribution by the family is assessed at being about of a single VIP latrine in Zimbabwe reveals that the

50 percent of the total cost of the unit. operating life of most latrines is 10 to 15 years.Wood is often attacked by termites; hence the

Mr. Mvududu reminded the participants that in utilization of bricks. In the early stages of localthe development phase in the 1970s, the first latrines technology development, fiberglass fly screens werewere designed with a wooden door. This was later used. Although they are less expensive than

found to have several disadvantages, including the aluminum and stainless steel, the screen was notfollowing: wood is expensive, hinges rust, and often appropriate for the life of the latrine. Now stainlessthe doors do not stay closed. Thus the interior could steel and aluminum fly screens are fitted on thenot be kept clean and consequently flies emerged via btrines. A number of latrines are often completed

the squatting hole rather than being trapped through without screens, because there is Do local

the vent pipe. Modifications of the superstructure manufacturer of the desired screen, and the supplydesign later improved the design to a spiral shape, has to be imported. Recent studies on the

thus avoiding the need for a door. This development of local manufacturers of screenssuperstructure creates a dark interior and therefore concluded that under the present circumstances, local

continuous fly control is maintained. Different spiral production is uneconomic. The program nowversions have since been designed in Zimbabwe: depends on bulk import, and the screens cost as little

ferro-cement and several other versions. In recent as US$0.30 per unit; hence it is clearly not feasible

years, however, they have lost favor as the to manufacture the screen within the Zimbabweantechnology of choice due to a short glush fund and market capacity.environmental impact considerations. Ferro-cementVIP latrines with a cement vent-pipe or PVC vent In more rcent years, the principal ingredient ofpipe, brick VIP latrines with asbestos cement or PVC VIP constnrction-cement-has become scarce, andvent pipe, and brick VIP latrines with brick vent its price has also risen dramatically. The nunber of

pipes continue to be built up to present time. Blair latrines built in 1988 and 1989 has fallen inHowever, in the 1980s the ferro-cement version has comparison to the output of 1987. Some concem has

been overtaken by the now popular brick version. been expressed regarding the sustainability of theprogram vis-a-vis the continuous rise in price of these

Expenence in Zimbabwe has shown that the essential commodities. Further research has now

ltrine of choice for the national program should be been undertaken on lower-cost models which use far

the single version. Not only do these require less less cement and reinforcing, and take intobricks (which are locally produced and have a consideration the technological likes and dislikes of

potentially detrimental impact on the environment) the expected beneficiaries.

The Blair Research Laboratory has designed Approximately 1,200 fire bricks are required for the

low-cost models which use from one to six bags of lining and superstructure. They are commonly madecement for the single version of the latrine. The one in the rual areas of Zimbabwe. The use ofto three bag model uses a commercial vent pipe of traditional mortar is of greatest importance in the

asbestos cement. The middle low-cost model, which construction of the superstructure. The roof is alsouses three to six bags of cement, is being tried in made in the traditional way with wood. This makesrural area projects in two provinces of Zimbabwe on for a cool interior and an attractive appeaance, butan experimental basis. A 3 bag model, which uses requires more rmantenance than does a ferro-cementa 1 10-millimeter diameter asbestos cement vent pipe roof as is used in the original VIP latrine. A four-and 3 bags of cement, is also currently on track. bag model is also being used. All of the models will

be published through the agencies which are helpingBy careful use of the cement, a durable and Zimbabwe, and for this reason Mr. Mvududu

attractive model can be built which lasts the life of minimized the details in his presentation.the pit. The first bag is used to line the pit using amixture of 12 parts sand to 1 part cement. The In conclusion, Mr. Mvududu pointed out thatsecond bag is used to make the slab and to form the based on the Zimbabwe experience, he could notfoundation for the brick wall. The slab, with a emphasize enough that the development of acceptable.diameter of 1.5 meters and a thickness of 70 accessible and appropriate technology needs to takemillimeters, is made from a mixture of 5 parts river into account affordability. Only through affordabilitysand and 1 part cement. A total of 20 meters of can a sustainable program be achieved. Zimbabwereinforcing wire (3 millimeter) is used. The slab is officials are aware that cost must be taken intocured for five to seven days. The wall foundations account, and their effort is to further developare made with a mixture of eight parts sand to one low-cost sanitary latrines, similar to the original VIPpart cement. The sand back is used to cluster the latrine, which can meet the basic likes and needs ofintemal wall of the structure with a mixture of ten to the people in Zimbabwe. He acknowledged thatone sand and cement; the floor of the latrine is made through increased cost increments the present modelwith a mixture of four to one river sand and cement. is becoming more and more expensive.

DISCUSSION OF POSMON PAPER 3AND THE ZIMBABWE PERSPECTIVE

As with the first pleary sesson, the above also stated that in his opinion, solar pumps havetwo presentations by Mr. Roche and Mr. Mvududu proved to be far more difficult thn expeed becausewere made in sequc before opemng up for they tend to run dry and cause very senous damage-disussion with the participants. so much that the pumps have to be changed.

The first discussant posed three questions: The third diswussant said that he works in his(i) How does the cost of latrinos in aeas which are country's Department of Water Resources. Hevery dry compre with those in ars which have high wished to addres a question to his colleague froma water table so there is a need to reinforce the wall?; Zimbabwe, but before doing so he congntulated him(ii) Have you ever experienced any problems relating for executing such an important program into the conditions of pit latrine in dry areas?; (iii) Zimbabwe. He wanted to know under what kind ofWhat is the life of the pit ltrine-bewee 10 to 15 institutional arrangements the program wasyeas? implemented in Zimbabwe: was it implemented with

other activities and/or with other institutions like theA second discussant commented on the first Water Resources sector? Also, concerning the

paper regarding handpumps. He indicated that the construction of pit latrines, he asked if it occuredKuwait Fund have avoided handpumps as much as concurrently with the construction of water points:possible, and have preferred dug-wells with was it exclusively executed irrespective of the localreinforced concrete lining, because handpumps brek implementation of water supply in the villagevery frequently and require very high cost recovry. communities?In geral, the published pnces of tube-wellsequipped with handpumps do not reflect realities. The fourth discusunt said that he was aHe mid that he had see n figures in the neighborhood sanitay engineer and sanitation director. He raisedof $60,000 for the construction of a tub-well with a a question on both the single- and double-pit latrines.handpump, taking into consideration the failure rate. He asked why-as Mr. Mvududu had indicated-The most successful hadpumps are those which re people request double-pit latrines although they prefermanufactured locally. They re not necessarily the the single-pit ones? He also inquired as to the depthmost robust pumps, but thir spare puts are easily of both the singlean the double-pit latrines. Heavailable. The great number of different types of said he askdc these questions because the speakerhandpumps creats a trmendous administrative mentioned that the single-pit latin was far lessproblem. He also stated tht the pr-qualification of expensive than the double-pit latrine. He wonderedcontrctors is very necessary, but sometilm the if the dimensions were in fact the rason for thepro-qualifications re very stiff and tend to disqualify preference, since double-pit latines are permanentlocal contors in favor of those from developed wheress single-pit latrines are only temporarycoutries. Regarding the question of ecouraging the structures-once they are full, they must be closedestablishment of a national constrution company, he once and for all.knew of very good examples where the nationalcompany manages to compete with the private sector The fifth discussant, a deputy-director forand actually offes prices well below the private water sanitation in Cobe d'Ivoire, mentioned that insctor. He took as an example OFIDES which has the countryside of C6te d'lvoire there ae over 2,000been doing extrmely fine construction work of vory double ventilated improved pit (VIP) latrines. Hehigh quality and at prices much lower than those was interested in knowing more about thewhich could be obtained from the private sector. He mineralization process and if in Zimbabwe there wer

some expeience on the use of the substance for other where this is impossible, the 100 meter distanc ispurpose. mainned to ensure that there is undeground

filtation and minimizing of pollution. Research hasThe sixth discussant, a technical director for also been done by our research laboratory in one of

water supply and sanitation said that he would like the mast populated areas close to the city of Haraesomeone to compare the cost of the double-pit latrine which is now been developed to become a township,with that of a single-pit. He was also interesed in but previously it was designated a rumal settlement.knowing whether the Zimbabwn latines could be The research so far has revealed that despite theupgaded for flushing and what the implications concentation of the latrines, because of the geologywould be in terms of choice of construction materials, there has been no underground pollution.costs, etc. He wanted to know if there had boee Nonetheless, he stated that it is always very importantsome experimentation in that direction in Zimbabwe. to keep this in mind and always monitor the

possbility of undegroud pollution.A seventh discussant, a sanitary engineer,

was concemed that although the presentation of his Mr. Mvududu then commented on thecolleague from Zimbabwe was extremely interesting, question of the average size of a family in Zimbabwe.he felt that Mr. Mvududu had missed a point which According to Zimbabwe's 1982 census, the averagerequired some attention. In his presentation Mr. Zimbabwe family is about 6 to 7 people. However,Mvududu talked about constucting VEP latrines, and there are also cases of polygamous families whichthe discussant wanted to kcnow whether this is done may be slightly larger than that. On the questionalong with the construction of water points through from his colleague from Gambia regardingexploitation of ground water, because ground water institutional arrangements, Mr. Mvududu confirmedpollution should be considered if there are so many that in Zimbabwe the promotion of water andVIP latrines. The ground water table has to be taken sanitation prograns is through the integratedinto consideration before consructing the atrines, approach. Zimbabwe has a national action committee

which fortunately as of today is still active. He hadThe paneists were invited to respond to the heard of committees in other countries which have

several matters raised. Mr Mvududu responded to collpsed, but he noted that fortunately Zimbabwe'sthe question fiom the gentleman fom Malawi who is still working and he introduced his collegue theinquired about the vaious costs regrding the water Deputy Secetary in the Ministry of Localtable, linking this question to the one posed by the Govement and Rurl Development who is also thegentleman from Sierra Leone. He stated that all National Chairman of the National Actionlatrines in Zimbabwe are notjust situated haphazrdly Committee. The Committee's main job is toin the low areas, because in the dry reas in coordinate the sector rather than implement it ThisZimbabwe, dry-area sanitay facilities are provided approach has helped tremendously because theby contractors and the contractors are selected coordinator is not competing with an implementingthrough tender. They would provide only waterborme agency-that is where problems occur- when peoplefacilities because in Zimbabwe dry areas, in terms of re competing for the best credit of work done. Thisthe present law, siting of a Blair dry privy latrine is is also the experience in many other countries.illegal. It might be an ambitious strategy, but at themomeot it is working very well. Therefore dry On the issue of double-comprtment ltrineprivies are mostly for the rural areas and all latrines versus a single-compartment, Mr. Mvududu explainedare sited by the professionals, who are environmental that without a doubt the single-compartment istecbnicians. These people receive three years of approximately 50 percent cheaper than thetruning in basic sanitary engineering approaches to double-compartment. The paper highlighted the factwater and sanitation as well as public health that the builder charges more for a double-approaches to the benefits of sanitation. Thbefore, compartment, and more labor as well as nore brickswhenever they are siting these latrines they take into are required for a double-pit. There may be aacoumt the water source of the villages. In most technical argument that the double-pit would lastcua our recommendation is that all latrines-dry more years, but unfortunately the superstructure willpivies-should be below the water source. However not last beyond 15 years unless the family can repair

it. So in Zimbabwe they are trying to makc sure that hours-particularly for hand-dug wels. Unfortunately

the pit latrine they promote has a life is equivalent to hand-dug wells ae not the solution for everywhre.the life of the spertuctur. There are mny places where water is too deep, the

soil is too hard to dig, and there one is forced to use

On the question of the 2,000 latrines built the machine to drill the borehole.with double compartment in C6te d'Ivoire-thequestion of utilization-the speaker explained that Regarding pre-qualification, he said that veryZimbabwe does not mandate contractors to build often when someone wrtes a document they includefamily latrines. All latrines are based on the everything under the sun that is necessary for

acceptance of the individual household which decides prequlification which makes qualifying veryeither 'I shall build a latrine for my family' or 'I difficult and this very much works aganst localshall not build a latrine for my family.' At the manufacturers. That is partly why a well-drillingcommencement of the Zimbabwe program, the association might do well and it would allow localsubsidy was given on a first-come, first-served basis. manufacturers or local contractors, as a group, to seeNonetheless, the project's continuance is due in part to it that when bidding documents are prepared, theyto pressure from those who have been promoting the are prepared reasonably and do not unfairly treat theproject and where demand has become greater than local drillers.supply. At one point, the program was running shortof cement, due to the fact that the beneficiaries were IAy, Mr. Roche responded to the

demanding the provision of latrines in the homestead discussant's comment on the ability of nationalbeyond what the resources can cope with. Because drilling water companies to drill wels for less costthe latrine is built by the individual, its utilization is than a private company. He suggested that althoughassured. This acceptance comes through health and there are occasions when a national drilling agencyhygiene education. He said that he had already gives a quotation that is lower than a pnvatepointed out the differences in prices and he thought contractor, perhaps they are not including the fuUl

that he had answered the question of his friend from cost of their drilling. Thus, if one is to look at theBurkina Faso, who asked the question of water use in real cost, prvate contractors would probably be

privies in Zimbabwe. He mentioned that he would cheaper.not be able to answer becawe in the rural areas ofZimbabwe they do not use water for cleansing. They Mr. Cheikh Toure of CREPA said that hisuse toilet paper and odher locally available materials. orgnzation does not have much experience with VIP

Nonetheless, he emphanized that whenever a facility latines-its experience is only two and a half years

is chosen, it should be based on the social and old-while some countries, such as Cote d'Ivoire, and

clwtural preferences of the community to be served. Togo are quite advanced regarding the structures. Hedid say however, that in collaboration with CIEH,

Mr. Roche said that he geneally agreed with CREPA did built various latrines with differentthe gentleman from the Kuwait Fund. He could not structures, i.e. the superstructure, single-pit ventilated

agree more that hand-dug wells are a very good latrine, structures with adobe, simple structures with

option and an altemative to machine-drilled cement at 22,000 francs CFA, and double-pit latrines

boreholes, and that spare parts are the key to at 30,000. He added that when a cement is added tomaintaining handpumps. However, he disagreed with the structure of a simple VIP latrine the price rose to

leaving hand-dug wells open. He felt that the water 38,000 francs CFA and when added to the structure

quality is sufficiently reduced to be a concern but not of a double-pit latrine the price rose to 44,000 francs

an overiding consideration, and that secondly-all too CFA. Referrmng to Burkina Faso, he mentioned that

often-all sorts of things end up in a well and people the soil is hard and thus there was no need tocnd up not using it. From his experience, Mr. Roche reinforce the pits. He also said that the price of the

sid that the real problem is that the handpump that superstructure greatly influences the overall price of

has been put on the open well does not provide good the latrine and that CREPA has built superstructuresenough service and undoubtedly it breaks down too with roofs made of straw, walls made of the stems of

often. Modern pumps should not break down more mil plants, and a hole dug by peasants. The

than one a year and sbould be repaired within a few ventilation pipe has been made of large stems from

mil plants and covered with cement and adobe. imprving the walls of the pit and that techniquescost of sch latrinms is minimal compared to latrines exist for tht purpose.of the same size in other countries, which cost from100,000 to 250,000 francs CFA for the single-opit and Mr. Wolde-Gabridl, sanitary engineer for thedouble-opit latrines respectively. UNDP/Worid Dank Regional Water Supply and

Sanitaion Group in Abidjan said that as far asOn the subject of the utilization of the pollution is concerned, the problem is not only

mineralimd substance in the first pit, Mr. Toure said limited to pit latrins. But in the case of pit latrines,that there were problems of acceptance on the part of esoearcb carried out by the International Referencethe population. He wondered whether popultions Center for Waste Disposal has clearly shown that thecould monipulate the substance after four years for soil has the capacity to filter any disease bearingcalorific purposes. This represents a fdmtal matrial from polluting any ground sources underissue which is currently being studied at CREPA. normal conditions. Of course, if there are anyThe question as to whether they will be able to have fisures which provide a conduit to the ground water,the population manipulate the substance after four there is a risk; but under normal circumstances theyears cannot be answeed because their experience is fisk of pollution from pit latrines is not as high asnot yet that long, many people think and it has boen shown through the

resoarch that it is not a problem.On the question of latrins with pour-flush

toilets, he tatd that this is another aea where he Th second point raised by Mr.has very limited experience but he noted that Wolde-Gabril related to the decomposition of focaleventually pour-flush toilets will replace the pit matter in pit latrines. He had not seen it personally,latrine. Te speaker mentioned that CREPA has only but he had a photograph showing the effects of thethree expeniences with that technology in Burkina material used as a fertilizer in Tanzania. TheFaso-clearly too few to draw any conclusions. photograp ows two plots of tomatoes-one treatedHowever, he did say that in Africa the seat to be with material from pit latrins and the other withoutistalled for pour-flush toilets was extremy ttment-and shows a clear difference in the grwthexpensive-on the order of 30,000 francs CFA-which of the two plants. He also mentioned that in Beninis double the price of the latrine. If one could find there was a pit latrine contracted for a hospital, andlocal manufacturers to manufacture those seats at a after the material was emptied, it was seen that therelower cost, he does not see any reason not to promote was a complete decomposition of the matter. In thatthe pour-flush toilet in Burkina Faso. hospital a problem which was not anticipated was

disoovered: the fecal matter thown in plastic bagsOn the question of pollution raised by had not demposed. So the assumption that under

another di_csat, Mr. Toure emphasized that normal circumstamc in a period of two years theregardles of the type of sanitation chosen in any matral will decompose is even demonstrated forgiven site, pollution persists; it is an issue of transfer public ltrines.of pollution. Taking as a example sewerage treatmentplants in lrge cities, he noted that the plants are a On the question of the depth of a double-pitsite whlr pollution is transfrred. Similary, latrine, Mr. Wolde-Gabriel said that in order to bewhethr a snard treatment plant or a standard pit able to empty the pit manually, the designs which arelatrine i ctm, at some point the pollution must be used vary from 1.6 to 1.8 meters. In Africa, thedispoed of somewher. He added that in the case of family is estimated to number about 20 persons, andthe latnr, coe can protect the water table by the design for about 20 persons is common in these

parts of Africa.

At this point, the plenary procoeedings were closed for the day. The objective had been to provide allparticipants with a broad understanding and consensus on the context of rural water supply and sanitation in rural

development, the role of communities-and particularly woomen in that development-and to confirm the experiencesand validity of technological developments and choices available to communities. This was to set the scene for the

five working groups (three French-speaking and two English-speaing country grupings) to begin their deliberations

over the next one and half days on three further position papers: no. 4, 'Institutional Issues,' no. 5, 'FinancialResource Mobilization,' and no. 6 'Rethinking Sector Management.' The three papers reproduced below. Each

paper was presented to each group by a pro-selected facilitator who was either an author of the paper or who had

some interest and familiarity with the topic. These facilitators, after their respective presentations, became resourcepersons available to the Working Group to help the chairmen and participants clarify topics or issues as they arose.

However, before finally breaking for the day, each of the Working Groups met to appoint a chairman and

rapporteur(s) from among the country delegates. Representatives of the external support agencies distributedthemselves among the groups according to their preference, as observers.

POSITION PAPER 4

INSTITUTIONAL ISSUES

Prepared by

David Grey and Jennifer Sarawith contributions from

Steve Maber and Randolph AndersenThe World Bank

INSTITUTIONAL ISSUES

SUMMARY

The paper suggests that institutional aanagements for the delivery of ud water SUpplyOad 5aittii(RWSS) services need to be reviewed. The implemention of a nound institutional trat is copicatby the lack of clarity in the definition of issuos such as nural," m nitand de,ian' The paperdiscusses the activities that need to be considered in dotermining institutional iei'for :RWSu -' 'planning, capital finance, outreach, delivey and managemenL It also suggeststat su.ch iniions can bedrawn from the public sector at central and local levels, :fom the private sector, *fom -ov 'Morgumzations (NGOs) and from within communities themselves. It further highlights d,t' sect approaches and the respective roles of ths atos to ensuehe:mustn&bi1y o,R,;: " i. ''.there is no general format for institutional arrangements-ea couty and aich cm .mmty is uniqeaddemands solutions appropriate to its own paticular problem.

The paper argues that in many countries, RWSS is typicaly handled by the or fourAdiffent ministrieswith unclear responsibilities and conflicting policies. This situation is exacerbated by many 'exltiiieirnlpportagencies (ESAs) and NGOs active in the sector and the frequent lack ofooinati ofI. . rolesof central and local govetments are also often mclearly defined.: -

It is emphasized that centnr goverment as both TPromtera and Povider hs faised:*iance the levelof sustainale coverage to the extent expected. The paper advane,s a lore appro pte .ol ... oin that of primarily 'Promoter,' with the Provisionw activities being lft .to moroesui.tble lo a lon "This change of function has important implications for ' the varisinsti6?tutions, ncluin t....themselves, involved in the-RWSS ctor d th a os in .

- - -.-: . - . :. ., .- - .... . - --.-, : . : :.. .: - c - . .~~........ .

he paper leaves us with two ey quetions:':::'.' " . .' .- What are the possible o,, ,...f,, c. nt,al a,d lo.al ,-.,.,,,,,,,,.,,,.,,,,,,,.,., ,, ...r . =t .

NGOs, and tbe coinun,itiesthems elves Wo

* Should greater esponibity be shiftd ci l goveniit t' o bif so, how can loca institutions be.t ....facile ... .... .. imp...u..tou ofdustinable RWSS srvices? '

L INTRODUCTION

The Problm water-related diseases is very high. Furthermor, theper capita costs of service provision are also

After well over two decados of effort in commonly high, much higher for instance than insub-Saharan Africa, chacterized by ambitious most Asian countries. Given the tarets and thet us for RWSS covege nd wsbstntial efforts, why are objectves not being met? Oneivetmet by gvrnments and the donor underlying problem is the genmal lack of a soundommuety. less than 30 percent of the rual institutional strategy for the delivery of RWSS

populatio of the continent has access to safe water sevices: what are the possible roles of the publicsupplieg. wd ny fewer have hygienic sanitation sector, the private sector and the beneficiaries

clitie. Mmay RWSS facilities do not function, so thanselves in the provision and managenent ofto acat population served is fewer still. Tbe sustainable RWSS? This problem is the subject ofincidenra of morbidity and mortality from this paper, which sets out to raise issues for debate.

Background to the Problem rural poor, invariably want more water, closer.

In discussing RWSS, clarity over the use of the These same people pay for water, possibly in cash,term DO~I is necessary. Definitions of rural vary; in certainly in time to collect water, and probably in

some countries settlements of less than 5000 people poor helth from inadequate quantity and quality ofare regarded as rural; in other countries settlements of watero Demon for improved services will emergeany size that do not have some form of municipal from perceptions of costs of the srvice and levels ofauthority are considered rural. Over 70 percent of income, coupled with pereptions of the benefits th

will arise from the servce. In much of Africa, therethe population of Africa live in dispersed settlements is a true mrket for water supIplies and an informalor in nucleated settlements of less than 1000 people. pnv te soctor servies and an infoesAuthorities in many of these settlements do not have private sector providing srvices, often at the simplesta legal mandate or obligation to provide services to level, to meet demand.' The delivery of adequattheir inhabitants. The focus of this paper is on the services implies inremental improvements to thedelivery of services to relatively sall and dispersed quality nd quantity of water, meeting effectivecommunities (normally less than 5000 people rt demand. Adequate' services can only be defined,usually less than 1000 people), whose activity is therefore, in rebtion to demand and the capacity to

usualy les tha 1000peope), wose ctiviy is sustain these services.prirnarily agricultural. Such communities generallyrepresent the poorest segment of society, and have Meeting Dmand: the Need for Institutionslittle political leverage.

A second area where some clarity is necessary is Institutions are needed to deliver goods, servicesin the use of the word community, a term occurring and finance in the construction of RWSS and inthroughout this paper. A community is often Esutining these facilities, once in place. Given theconsidered a geographic unit, bounded by the need to use scarce financial and human resourcesconfines of a village. A community could be better efficiently, institutions are also needed to developdescribed as a viable decision-making unit, whose policies nd plas, to regulate and to train. Suchsize is a function of environmental and sociopolitical institutions can be drawn from the public sector atfactors. These factors affect the cohesion of a central and local levels, from the private sector, fromcommunity, which may at its simplest be a NGOs and from within communities themselves.self-saining family unit composed of a dozen or so Defining the reative roles of these actors ispeople, where conditions are favorable, or a group of fimdament to national economic development, andsettlements and populations exceeding 1000 where specifically in this case, to the sustainability ofthere may be adversity. Difficult access to water can RWSS.be a caue for social cohesion (or for conflict). Afurther point to be made is the similarity of In determining institutional roles for RWSS, thecomn-mity-level institutions (for example, council of foUlowing functions classify the activities that needelden and women's working groups) nd formal local to be undertaken in the RWSS sectorgovennment, where the ltter is elected and trusted,and is earded as local self government. Although a. Reulatorv Functionsthis ppr mainly focuses on water supply, the issues * policies (standards, tariffs, etc.)and moctr approches discussed also are applicable to * legislation (water rights, pollution control,santtin, whore the viable decision-making unit is system ownership, etc.)the bouelold. This the notion of community * enforcementmangement. discssed later in the paper, could b. Planning Functionsimply m_nagemet by an extended family unit, a * national planning and budgetingvilla umocatioo or a representative local * scheme planning and designgoverp ment c. Capital Finance Functions

A did i#e of importance to this debate is that * resource mobilizationA thd isue o imprtane tothisdebae isthat* Intermediation activities (credi mnanagement,of g . Everybody has access to water in some et c d)quaoy and of some quality. Those that have littlewae, ar ve to tmvel far to get it, generally the 'See, for example, 'Willingess to Pay Studies,'

Willington et al.

d. Outreach Functions company. On the other hand, rural areas are* social mobilization characteized by dispersed settlement and lower* demand generation and estimation incomes resulting in higher costs of provision of* health education "urban-type' water supply services and a lower* training ability to pay for these services. Water supply* advisory services service geneally has evolved from being in

e. Delivera Functions individual responsibility, to a community* production and delivery of goods (pipes, responsibility (where community can be defined as a

pumps, etc.) group of users or a local government) and then, only* delivery of services (construction, operation when the economies of scale allow, to a public or

and maintenance) privately managed service. This service is usually af. Management Functions consequence of outreach from an urban center or the

* sustaining services (organization of O&M coalescing of commnunity-owned facilities or theand cost recovery) emergence of a township.

This list of functions illustrates the activities In urban settlements in industrial countries, water

needed for sustainable RWSS; some of these may be supply is thus genally a public service, and, inseen as 'promotion' functions (ie. regulatory and dispersed rural settlement, water supply isoutrenach) whileothersar'provision' functions characteristically an individually-managed oroutreach), while othersrxeehcommunity-managed facility until a public or private(i.e., service delivery). This paper explores th sevc ca eeooial utfe nmatch of actors to activities, and pays particular setvice can be econopucalli justified and

attenton to he imortantdistiction etwee institutionally Lsust ned The public sector still playsattenion to the important distincton nween an important role in the development ofpromotion and provision functions and the need for cmuiymngdfclte,sc si h

communumty-managed facilities, such as in thean overall coordination mechanism, which possiblycould be vested in a central authority/agency. . e pirovision of faining and teorical advice, coninuedchallenge is to ensure coverage of RWSS with service provision of public health and other extensionlevels that people want, can afford and are able to services RWSS must be se as only on part-albeit

sustain. ~ ~ ~ ~ ~ ~ ~ ~ srlesRS ms esena nl n arsblsustain. an important part-of a package of interventions that

n. RWSS INSTITUTIONS charcterize the decline in rural poverty and theconcurrent increas in health and other socialindicators. Box 1 describes the development ofRWSS in the USA, a pOeedent that clearly cannot be

The deveopment of RWSS institutions is one transferred directly to Africa, but nevertheless hasintegral part of and one reflection of the social features of relevance to the thesis of this paper.

developmen of rural people, in trmsofboththe Similar precedents, from which we can learn, occurdevelopment of Nrura people, in terms of both the in- sraadnelidutaizdcnre.evolution of organizational structures among ruralpeople themselves, as well as the naturing of publicand private iastitutions established to provide servicesto rural peopl. This can be illustrated by the RWSS Istitutions in Africahistorical development of rurl water supplies in the Traditional water supplies in Afnca are either

industrial countries, which has followed a very individually managed ('selfprovision') or communitydifferent path to the growth in the provision of urban managed. This reflects the availability of water, withwaer suly svices. The latter are one of the many difficult acces (such as dee wells) oftenenrics that a city needs to provide to its inhabitants. necessitig group action, and easy access (such as

The neatur of a piped water supply (a source, a reliable streamflow or shallow wells) often left toartment plIA and a distribution system) and the individual responsibility. As discussed above, this

sconomies of scale offered by a large number of also reflects the needs for cohesion in rural society,better-off ioninme in a small area lend themiselves itself a function of variables such as security orto service provision by a single institution, which environmental conditions-one of which is access to

y be a public sector utility or a private water waler. Sanitation in much of rral Africa is

perceived as an individual or family conoern, with demand does exist in some areas for idther socil andmothers typically responsible for the disposal of religious reasons or where population density andchildren's excreta. Health concerns seldom generate environmnl factors restrict privacy.a deman4 for improved sanitation facilities, however

ltitutional Ptecednbts in the US for Ru n te Powith RWSS--

The vast majority of RWSS stems in the US are vely snail, with mor t 87 Perins g lessthan 3,300 people per system. RWSS facilities in the US have primaily beenprvie by thcoeinand efforts of the communites themselves. The Federal Governmenthas beei involved Aince 193951 niinlyby providing financial assistance to small, organized coumunitwit grants hnd low-intt'loasadministered by the Farmers Home Lan Adninistration (FMHA), the credit of tho l rof Agriculture. At present, the FmHA is authorid to provide crditi andJ 0r atso instllon, rpir,improvement or expansion of RWSS in municipalities up to 10,000 pl Durin the yea p1977-1987, PmHA provided US$6 billion in loans and US$2.4 billion i gunts to Cove 22,000 RWSSyt.ana

Another key feature of the US system is the strong regulatrole pled by the feral Envrm aProtection Agency (EPA) andthe passage of the SafeDriing rAct in 1975. Itisetimated hat95percent of serious cases of noncompliance with EPA water t in 9 bi. t<3,300 population size. The EPA provides training mat ands r wos t hou countrytoassisthee w smalltems..... .... i..

The private sctr provides nd services to rIuril n or iocrepreetatives), and frequenty helps them in applyn for mA fui Tomiy thuchoos itslevel of service, obtains fundig, tacontuio d tIbi a tasociation). Ofte lcl govenmn beomes invold, usullytsystems may be maind b the , teocal gnmnt, orby a privaesctordility; on toradetermie the optimal m ag ns .heme

The :first State Water Association .. st.. l ished in 1972. tevolvedYfom lbs affiiation of-.--eral smallco~~~~~~~~~~~mmunity= asoiain hoR exh e ida an pvide iwta asistance op tec'nical isse tht afce

their RWSS syste. tin l erA ti w a W 9*CCoordinate the ivites of t s a e WA i f d i o mFmHA and EPA for i a teo ct tie: .'.t m t.. .... WAextension workers,c r t ht stat to la t d p d te in n ialadvice:to commnunity aocain.OhrN s chathNaoal)susttIoWaePrecpoiespecial emphasis outreac6h: prgamsor low'ic' rusadsatrdpouain h r nbetqualify for or are unawa f fiNAit it . I o t a community asocsiation receivig nnclspport from r , and before tng to thewater sit is genery necessary to, hv a wsetr do s a pc sc as e t

'Primary Source: Istitutl raewor of Snsll C nty Wa Supplies i the USA ̀(Drt)UNDPIWorld Bank Wat,iea ntationPr 988.

: :i ii. iE........ .. . . i .. . ......... t ̂:iC .. ,.:- ,----..:

Prior to independence, few countries in Africa governments concernd with a more equitablehad sgnificant nual water supply (RWS) programs; distribution of resourcs and a focus on the provisionwhore thse existed they were frequently a componont of social sevices. Many national govermetsof geological survey activities or agricultural prepred far-reaching development plans andprogrms. With independence came increased ambitious trgets were set in collaboration withemphasis on economic development, newly emerging extenal donors who pledogd the Decessary external

resources. One such example is the 1967 Arusha government. In many countries, four or fiveDeclaration in Tanzania, which was followed by a government agencies are participating in sectorParty Declaration in 1971 that all rural people should development, with unclear responsibilities andhave easy access to safe water before 1991. conflicting policies; in addition, there may be several

donors and NGOs active in the sector, each with theirFew countries had an adequate institutional ow poiisadpoeus.hr iaca n

framework to implement such ambitious RWS plans. own poiscies and procedures. Where financial andPrivae setor o deivergood andservces umnan resources are scarce and thus efficiency

wrvate sector capacity toiportant, there is a particularly compelling argument.was liited, and local govemment institutions were for a central authority, with regulatory and policy

at an early stage of development. Consequently, functions and no executive functions, as a focal pointcentral govemnment line departments grew to fill thegap. This was greatly facilitated by the provision of for sector coordiation and advocacy.technical assistance and equipment by extemal donors Where there is a lead institution, it is commonlydirectly to central govemnment ministries. By the a central public works department, or a single-beginning of the Decade in 1981, large central water purpose water department, which is charged with thedepartments were commonplace, often equipped with responsibility for regulating, planning, designing,a massive capital inventory of diverse equipment such building, operating and maintaining water supply andas drilling rigs and earth-moving equipment. Large, sanitation services in both rural and urban areas (withfreestanding RWSS projects were widespread, the general exception of the larger cities). In theexternally financed and either implemented by the engineering profession, as in industrial countries,line department by force account or by international rewards are linked to large schemes and complexconsultants and contractors. This approach has been, structures, and training programs have a similarin part at least, a cause of the current problems of focus. As a direct consequence, those in centralreplicability. government responsible for RWSS service provision

often have little interest and little to gain. The effectIII. RWSS INSTITUTIONAL ISSUES IN AFRICA of this bias can be unresponsive planning, with an

emphasis on construction and coverage to theStructural Issues detriment of operation and maintenance and with

inappropriate choices of technologies and serviceIn debating the specific issues of RWSS levels. In some developing countries (eg. India) the

institutions in Africa, there are a number of broad coordination and policy functions for RWSS restsstructural problems that need to be considered, due to with a central agency responsible for rualthe constraints that they place on the institutional development, even where implementation may remainoptions available. Many governments in the region with a public works agency. This can facilitate aare highly centralized, both as a result of and broader perspective of the social and financial aspectsresulting in weak and often unrepresentative local of sector development.governments. The public sector is frequentlyoverstaffed benefits are low, and there is fie There is an active market for a wide range ofincentiverstaford geeneits w saf toork and lei simple goods and services and often an informalincentives for government staff to work and live in pvtmetrmeigdsdmn.'efmiremote rural areas. Large central bureaucracies and d T fmweak local institutions lead to a poor understanding prvate sector, commonly in direct competition withof local community theeds and demands, with central line departments, is typically weak andplanning often driven by prescribed and not by felt inadequately supported (for example, with credit,needs. incentives, training, trade associations etc). The

restrictions of external financing, such as tied-aid and

Sectoral Issues tight competitive bidding requirernents, may excludethe indigenous private sector even further. In

The RWSS sector does not readily fit the contrast, the same external financing often supportsmandate of asiglegov i . Wthe intemational private sector in Africa, with

mnandate of a single governmnent institution. Where wtcinbthem is no.r protection by guarantees and encouragement by

there is no water ministry, RWSS in Africa ssnetvs eldilngi iei rvdsatypically handled by ministries of health,driln Nieria provides nagricultr/rural development, public works or local example of part of this situation, as illustrated below

in Box 2.

Local manufacture of goods is seriously locally carries 40 percent import duty, compoundedconstrained in many countries by prohibitive tariffs in the finished product with a further 20 percent salesand barriers that can actually mitigate against import tax. While the risks of monopoly pricing and othersubstitution through local manufacture. For example, market distortions arising out of excess protection ofwater pumps are frequently classified as essential local manufacture must not be ignored, the enhancedrural development materials and thus zero-rated for sustainability resulting from the availability ofimport duty and sales tax. In one East African equipment and spare parts in the market place is ancountry, the raw material to make the same pumps important issue.

Well Drilling in Nigeria

A recent study estimates that more than 95 percent of boreholes now drilled in Nigeria are constructedby private sector companies. Despite large equipment inventories and numerous drilling staff, public sectoragencies have generally not been able to overcome basic operational difficulties, and suffer from constraintsimposed in conforming to civil service conditions.

It is approximated that of a9l drilling rigs less than 12 years old operated by private sector companiesabout 10-20 percent am permanently out of operation, and about 40-50 percent are down at any given time.In the public sector, for rigs less than 12 years old, at least 90 percent are down at any one time.

Virtually all public sector agencies involved in the study stated that their three main operationalproblems are: (I) inability to maintain drilling plant, support vehicles and site trnsport; lack of any fundsfor spare parts, equipment and consumables; and diversion of funds to other activities within the agency; (ii)lack of accountability of management and lack of involvement of the magemenit in the drilling operation;and (iii) inability to motivate drilling. staff becae of the inability to pay bonuses, Overtime or fieldallowances.

Private sector organizdtions, with active mangment, are oen sufficiently flexible tohoverome theseproblems. Most drilling companies curintly list their thre paiol . prole.s, s: (i) lc of ctity ;of profitable iwork and lack of larger imiiulti-borehole, contacts, mha long-temlai ;andreinvestment is difficult and magnt time is lost c for. and operinml pie eal con;(ii) difficulty withllreceiving paa tiforVworck done py with.payments for contras completed for.0state govermnents); and (iii) difficulty in obtn friexchnge fort te purchase of spare prts forcompressors, rigs and vehicles.

The study also shows that cost of using local contractors is currently around 65-70 percent of the costof using international contrctors, based on the official curcy0 exchange rate (this figure reduces to 50-55percent of cost using the autonomous- rate).H -w , Msevera states:continue to award major contractsfinanced by international loans, for as many as 250-300 boreholes, to international bidders, often with nocompetitive bidding.

It has been calculated that, on lrge contracts, 70480 mi four-inch completed boreholes in basement areasare costing the state Agriculture Development Progrms on the average around USS12,000-14,000 (aboutUS$150-200/meter).

Source: Borehole Drilling in Africa: A case study in Nigeria. DRAFT. UNDP/World Bank Water andSanitation Program, 1989.

Extal Support Agencies provide up to 90 percent of total sector investment.ESAs currently play a major role in RWSS There is a serious risk that ESA involvement in the

sector can be a cause of the market distortions thatdevelopment in Africa and in some countries may

jeopardize the sustainability of services. Grant and environment strengthened and sustainability ofloan financing is provided, often supporting the role development enhanced. In the RWSS sector, thisof the public sector as provider of services; meeting range from provision to promotion could bethe cost of hardware (generally imported); providing categorized by looking at three possible approaches,technical assistance (commonly expatriate); and illustrated in Box 3.financing waterpoint construction (often by forceaccount, or by contractors selected through The provision approachinternational competitive bidding, which excludesmany small indigenous contractors). Recently, there The first approach is a consequence of thehas been increasing coordination of ESA assistance to evolution of strong central line departments asgovernments; particularly in the development of providers, characteristic of many African countries insound sector policies and investment plans; in the 1970s, as discussed above. This approach cangrappling with thorny questions such as cost result in very efficient construction of facilities,recovery; in increasing both the quality and the level however, as there is no community involvement,of investment in national programs; in focussing on demand for services is assumed, and service levels arecommunity development and training, the private randomly selected. With this approach, maintenancesector and the role of NGOs; and in ensuring a remains the responsibility of the provider, and islong-term commitment to progressive and sustainable often difficult and costly because of the dispersion ofservice improvements. rurl communities and the corresponding lack of

economies of scale. Typically, all the functionsdescribed above are handled directly by government

IV. THE PROVISION/PROMOTION institutions. The regulatory and outreach functionsSPECTRUM: OPTIONS FOR are generally very limited. Some delivery functions

SUSTAINABILITY may be undertaken by the private sector.

Lessons from the last Decade The provision/promotion approach

As the Decade draws to a close, expectations The second approach illustrates the transition thathave not been realized; targeted coverage levels were has occurred during the Decade and is characteristicnot achieved, costs of service provision remain high of most national RWSS programs in Africa today.and the sustainability of constructed systems Through outreach, community participation and thequestionable. However, during the Decade a formation of village water committees has resulted inperceptible progression has occurred; in particular, a progressive sharing of responsibility for and athere is much greater recognition for the need for heightened local awareness of the management ofcommunity participation in scheme planning, operation and maintenance. Such committees can beconstruction and operation and maintenance. Many the seed for community-based institutions capable ofof the lessons from the Decade parallel a more managing increasingly complex services. However,generalized trend in rual development, with an the approach is still characterized by a project not aincreased focus on decentralization to local bodies, program strategy, and is often dependent on externaland the resulting need to strengthen community financing, equipment and staff. This can jeopardizeorganizations, the private sector and the outreach role sustainability since local capacity building is limitedof NGOs. This general development trend is (including the private sector), demand is notcharacterized by a shift in the role of the central adequately assessed and service levels are prescribed.govemment, from directly providing services, to one Furthermore, replication remains the responsibility ofof creating a supportive environment that would the central agency, as provider, and is dependent onpromote service provision by others. With this shift, continued external support. Examples thatit is expected that markets will become more characterize this approach are described in Box 4.competitive and responsive to demand, the enabling

APPROACH 1: "PROVISION"

CENTRAL BODY(Agency)

. j service delivery

COMMUNITY : : :E ;; :i;0::;;;:;0 :-:(Local Body):

APPROACH 2: "PROVISIONIPROMOTION" '(Shared Responsibility):.....,

service delivery

CENTRAL BODY mobilization, training UCOMMNITY

(Agency) (Local Body)

participation:

APPROACH 3: "PROMOTION".

COMMUNITY 14MANAGEMENT. 7-:~~~~~ :::, 70000E0-;lt;;0outreachi0004:4;: :0:0:i:4ti:i7 deliver I

demand

Outreach GOODS : SERVICES FUNDS

(Local Govt./Private Sector/NGOs/Intermediaries)

CENTRAL| BODIES Promote/Support/Finance/Regulate

"Enhance Capacity to Deliver"

1~,e tComuityl Prip4tiouin Seven RWSS Projects- :. - - ~~~~~~~~at-- bi --: :

-: .: .: .':. --ct A TogoR.Swj'--,' en byi.A 'th'e I- PI:':A eviw of seven ItWS prRcsi oo urkina:Faso And VMal a netknb h NPW:'Water ad Sanitation Progrm in 1988. ii order'to- l lI n from thr tcs. The p ..ect-:ture communi handpumps intaed o'n drilled wells nwe I hosm because theywere co bsuccessful, both in developing oommunity - i Se d in a v a high pereontge of facilities

functioning seeral yar after their isalio.Alpoects followed'Apoc ,a oulnd'in -Box36 og~~~e IM - ..N p-foI-aE:Xm.:..x...above. Critical importance was aitoched to cipati p s T lowuig-comments may be summarized from he: sy results-

mT only manamt decisionm communityt the ptost s rn it ntto participate in the project. Although communities were involved in aterpoint siting, few eommuntieswere given the choice btwem different levels of seovice. :n all projects visited, traditional watersources were still being used, and it was clear that supply was nOt meeting -dmand.-

* No project has succeeded in enabling the community to make rea decisions sy tem nt, rather,in many projects, a standard management system has been designed externallys and imposed- on thecommnity. heimposition of tis pie-defined naeentysm (which mandated the inclusionvofseveral women) did not encourage, ind sometimes even ed, and voluntaryinitiativesby :lealdilg citiens. .: ... .

* Extension services, when properly planned and executed, wore semi to beaus of the ost important and-least expensive factors in-achievingost-effetiveand scesl im emein. However,:few projectsplaned for the contiation- of extenion-ices p the co ction phe a ter s anobvious need for this continued. or.:::-

* Simplifyin the i c y iior its ti hanpump, seli is a iti in he .i of his ytm. sa .stane t c inp 'de 15O......wiUinpm to 1 the These ar Msal bccem

t- y-Xof&'h. areeitablished and trated.- Ho thereWas much, ct loaS vi of sarewhich frequently w nyotaininh aital ifth in-country.

* All projec bad an' upot estent by thecommunity, rangingfrom $167 to $450, Th thrproects which did not sart with suha requiremen migrated in: this direction after it was ilized thathcommunities did not- feel sysm mian was theirresponsibility. However, it was:-

woicealy more difficult to raise money from commiuities who preiously thad beeo served free of

* Finly, the review of the seven projecs showed that communities ae willing and able to assume te_genient of their RWS facilities, as long as the kills, tools and spare parts are readiliy available.

Howvr, project costs need to be reduced to facilitate replication on a national scale (total project costspw drille well equipped with a handpump ranged bewee USS14,000 to US$27,000).

Sour UNDP/World Bank Water and Sanitation Program Documents.

This transitional approach is chrcized by a services. They would also be required to organizesharing of responsibility, largely between the themselves to mage the services, on the essentialprovider nd the beneficiaries, for the functions condition that appropriate service levels andescibed in above. Ie outreach function is now technolgies are employed. Examples of pnvatevery important, although it typically remains a project sector involvement and outreach activities areresponsibility. A decentralized approach to service described in Box 5 and Box 6.delivery is required in order to promote communityparticipation in facility construction and to establish With regard to the functions described above,dialogue between the provider and the community. the implications of adopting the promotion approachIf management of operations and maintenance are considerble and may require a redefinition of theresponsibilities are shifted to the community, a spare roles and responsibilities of institutions at all levels:parts distnbution network must be established and central and local governments, the private sector,artisass and communities trained. Resources must be NGOs, the communities themselves. Such aallocated to support extension services for thse redefinition of primary responsibility for functionscommunity mobilization and training activities, could be conceived as follows, but will vary inCoordination is more complex, as different practice with local conditions:institutions must provide social and technical inputs;ministries of health and community development must a. Cetral Governmentcoordinate their budgets and workplans with * regulatory function: defining and enforcingministries of public works and water development, policies, standards, legislation (waterHowever these additional costs can be offset by the resources, pollution control, water quality)benefits derived from designing and constructing * assessment of investment priorities, nationalfacilities that better suit community needs (for programming and budgetingexample, in terms of location and service level) and * funding and resource mobilization (taxthat will therefore be used and maintained. There is, revenues, capital markets, ESAs)however, evidence that this approach does not fully * some outreach (such as social marketing,respond to effective demand, nor does it result in the support to trainging and private sectornesry capacity building for scaing up. support)

The promotion approach b. LAcal Government

The last approach illustrated in Box 3 is not * plnning and capital finance (possibly anwidespread in Africa, and is characteized by a intermediation role)promotion role for central government. In this * scheme planning and design standards,approach, centrl governments would disentangle enforcement of some national regulationsthemselves from the provision of RWSS, and engage * major outreach function (social marketing,in the promotion of RWSS through the provision of promotion, education)credits (and grants where appropriate) and outreach, * could assme management functions (as anwith long-term extension services to rural extension of community management)communities wishing to improve their own basic * advisory services (technical support andwater supply and sanitation (WSS) services, as wel training)as tbrough the provision of incentives to the pnvatesector to ensure the availability of c. Private Sectorcompetitively-priced goods and services needed for * key delivery function (goods and services)ector development. The success of this approach * outreach (marketing of equipment and

would require that rural communities who perceive a sercices, training, etc.)need for improved WSS (this perception may be * some capital financingbeightene through hygiene education), would be * localized planning, scheme designwilling and able to repay a part (at least) of the * opportunities for franchisingcapital cost and all of the recurrent cost of these * advisory services to communities

.ector, .rkdve t n .,ru a at nv in

Privat| sector involvement gnin uralsanitation: The National Ruril Saiaion g (NRSP) i maximizes privat sector involvemet I finncing -and and in the p ve yearsthis ha 4p : ven to be a vi -l approach. private ntities are involved, incling.:4ocallai

builders (LLB), .credit unions and building m i suppliers. 7The lessons learned. from a,reviw of i

approach are. (i) a longe p lanning horizon aid slo wer ra of increase m coveg cngenery banticipated whm doptuling the privatized, non-subsidized approach to samitation imprvem ; (ii) once fOlly-underway, the program tends to ta"e on a life of its own, and is not entirely depedent ontel or

govenment inputs to continue and to expand; and (iii) a househ that d e invet a lare .sm .i aIatrine likely has asgned a relatively high priority to hygiene min th hoe ( to-

prestige and convenience factors), ind the health impact may therefore beograe tbin could be achieved firma hdexternally-driven prog t n Lesoiho, four tims more VIP l es enow bein

co ntcedby builders ad through contractors a e being built bythe LLBRs that hve ben trined andare monitored by NRSP. This oextenalw private sector aivity can be attributed to the tlation of bod:thdemand and supply by the activities of NRSP and related sectorprograms. Implementation can now proceedat a lower cost to the public sector than in.subsidized progams, although investment in uoutreach" will not

be substantially different.

Private sector involvement in RWS: Tbe Yatenga project staredIm 1981 a indhas served over 330,500people

with an improvedwaer supplyin theprovnce of higo Northw ster Burkina so. The esysm put im place project is t a g xaple of as b i sye t icommunity-manageid, with services provided by theexting local private sector. FErom thle b n the

project idorms the comntthat hey willbe responsble f erThem COMMunie,thogh eleted: waer o s,- io a. to ag -c cotb to aconsftnctioc ms.hr an aramcai oisalterpmsa hsteei raiainhttepm does

in fact belong d ible f i int i thy g mechancs, N amnitiesr . t sa aSold b realer. h pubc sector' tiin a reuo oe i in pig a v t of im tdpats. Proect sIaffpwpose that t com-ntiesImay beve.lesPoec Y pur:aiy

ftrnsportatio thr6ug h etist. transpo6-000rtion ewr.hswudetb acmeca ikbthe mmunitie: anw therl fm the outse.

The LaeJBasin Development Authority (LIDA) statted a Shallow Wels Pilot qect in Ny812aPoin inwes cm nya:=-1981-:M. .)r : -gt" oProvnce n weternKeny in1982 Thestraegy doptd fr hWAn.ug we construction is based on small

lonctrII wu",- t- -- #:, i n- -':- olocal contrctors, whocarry out ell diggin , prodctio of1cuvetfor- well lining, constnuctio of. the~

superstructur and PUMP installation. The contractor ip ill matria and equipmntand usually makes

aangements forDtransportation.-- For sOmnAcontracts, the project asists withe loan of tools. The pectprovides drawings, bill of quantities anid u of c The community provides-lodging and

food to the staff of the contractor. Several contrtSrs havebeen able to build up some worldng capital and

have improved tbeir: management of the works considerably over the project period, which makes it easierfor them to have acces to credit. The system of engaging controus for implementation and tansport means

tht office, workshop and sto requirements for the District offices are kept at a minimuml Transportationhas also been privaized and the project has a totl of only about 10 light vehicles and 40 motorcycles but notucks. All tsport of materials and equipment is contracted to local Utnsporters. The transport rates arevry favorable, currently KSh S per kilometer for pick-ups and aound KSh 9 for trucks. This equals the

runing qost (capital cost excluded) of vehicles in a neighboring project in Western Province which managesan intemal fleet.

Soures UNDP-WB Water and Sanitaton Program Documents.

d. G he pmoion approch risks ignoring one* vanety of role including plannig, financ important lesson of grappling with poverty: that

intermediaion, promotion and training breaking the poverty cycle can rrely just be left to* outreach fimction (pobaibly their eatest maket forces alone and tbat special emphasis

cmptive advantae) progrms, with strong outrch and with limited andtugeted subsidies, can make the difference betwee

e. Commflitie success and failwe. The promotion approach is slow,* involvement in demonsbtating effective possibly costly in its early stages, and rquir the

dend (ervice level), planning, capital stegtheng of a wide range of institutions.finance Important roles in service delivery are played by the

* responsibility for managing opertions and private sector and finc intermediaries.mainnance (including local cost rcovery) Community managemen of opertion and

* sustaining investment and planning for mainteance is a cnestone of the approach, andpossible system upgrade. mages into local governmet management of services

as local institutions become moe representative andresponsive to community needs.

I ff: -f.- --S' 0-j f'S 0.- .-'-.'.-"--' ".-''-.-" S 't ..... f ' '' ~~~~~~~~~~~~~~~~~~~~~~~~~~~~. ... ... ..Outreach: =IWSS ExteiOWOn ' eriMesAlarge RWSS poetIn the Savnqes`an Plateauxk reinWfToowsipentdbwen90

and 1987 and seweas ab'I0,00pol with ipedwtrspls(rledWlseupedwhhandpumps). tota f 2 extenio agns(A)atce oteMnsr fPbi elh oiAffarsaNd Women's ConditionA 'Wer rftpOnsbl for cmmiyognzto n rinn o hIQet h oof project activitie ,on wgovornment Aancomnt wopnt mitesasnimoanfatrof prqoect design. - isting e iceswer ghen and E er give ple ring ad.ens of 0 o . .s t o ts ex yt is hh te t

on the existing extensi 0on tor anddid 'o raenwognzain risiuin. oee,ps-rjcactivities have dranmtiicai eresd u to alc frsuesfrudraigtann ciiistransportation and ..ro.idin. in.t.e....,.... sd orcevn alwnesi ddto t hi

, .7 ::iS .: --i- -i ..i-i-:E -i: -i --.. -... - ..:---iE:..-.. :-E.

regular salar for orMook ............

7he prxjIect didI ,xtgetysfe rmpronlaUs jrl eas tivle vr10E,ad

extension service, have: ....oles.ih....ig rasere in t. mIddeo asgmn.Aextansion system:basdo h ovrmn evce n ntttin led n lc s nprnil,bt

sustainabl and rep.iabe I u rvso ops-osrcinpot hog h iaca upr fa es

a skeletal extensioneic is s isThe Kwale project in Kenya,which started in 19U as theSout, Coas Handpumps Proe

executed by teMnsy fatrevomet(WDrogidn1983 tha hadware alone wa notsuffic in achievingntheob of sinbr t sply provision, and local community paticipationand _oopimce also needed to b consided.- The eya W for Hailth Organizition (KWAHO), anindigmous NGO, was therefore broht in" to prvide logical inputs in: community participation,training. nmtaial developntii und 6bnitoring and ea*luafion. Although the KWAHO senior staff arerectsod nationally, the EMi a- recruitd locally6 and community leadersparticipate in their selection.KWAHO train these community%EM-with e-job experi and periodic in-house training workshopsdit b on participatoy training methdologies Upon project completion, these extension agents willreams within the local communities which will aontinue to benefit from their lnowledge. Ihe core KWAHOstff - ten bring thr knowledge to a now project elswher in Kenya.

Soaw UNDP-World Bank Water and Sanitation Pogranm Documents.

V. COMMUNrrY MANAGEMENT: Howover, comi mty managemnt of RWSS isA VIABLE SOLUTIONM geally risky and inefficient and requres goods and

vsevices to be available in the local market; singleAn interim step purpose institutions should generally be better

equipped to mage infrasucture services of thisCommunity participation in RWSS has almost nature, particularly where legislation (for example

become an ideological issue; it has even been regarding water quality stndards) creates specialdescribed as the 'myth of the Decadew. Community requirements. People living in small ruralmanagement goes beyond participation to encompass communities in Africa are already busy dealing withownership of nd responsibility for RWSS services; survival; managing a water supply is an extra burdenit entails decision making, not necessarily trench that villages may prefer to delegate to others.digging (see Box 7). Experience is demonstrating However, manging that water supply can contributethat community management is a viable solution in to the intgrity of community institutions, thussituations where tee are inadequate incentives for hstening development and raising the awareness ofpublic or private enterprise to provide rloiable the needs for representative local authorities, whoseservices; in these cirumstnces community role will include taking the responsibility for servingmanagement works where nothing else will. its electorate.

Paridpaition in~*Mngmn.. . : - :- ,, j : ,-- i ;--: : :-~~~~~~~~~~~~~~~~~~~~~~~.. .. ..

ommunitY narticivation- refers to the olm oftis E a es E iRWSScotext s may includet ctibuti insh okindni, RWSS committee f t d t n,hygiene andser , d ref d m n ani e.

ty~~~~~rfr to* the- caaiiisan ilnns of comnte to take hAr andetormin the ature of dl t aeti thei i teI of- commi es b for-decision aking and s novert u i on. C of;RWSS ca e a h cmuiyas mn. th epnibl uhrty, n cnrl vr prtinoand/or '-Improvemens i nc it-s eitngtcli

. to MAnagementsJitVIPWrdfakadUAt/AH?biain 90- -Bx mmm-it

Community management of RWSS services may Outleahbe an intm step in the development of localinstitutions. At one end of the institutional spectrmm Outreach support is a prerequisite for sustainingcommunity management could mean an extended community-managed RWSS services. This support,family caring for a sping or village water committee which could best be described as an extensionmanaging the maintenance of a handpump; further service, assists both in problem solving on demandalong the spectrum it can mean a voluntary board of and in the progressive building of technical, financialdirectors employing staff to manage a lrge piped and mnmagerial skills. A special target for outreachwater supply scheme providing only house is women, as the task of water collection for theconnections. However, these differences are only family almost always falls on women. Provision ofones of scale, cost and complexity; the basic model RWSS thus brings substantial benefits to women;remains the same. At the other end of the spectm furthenore, enhancing the role of women in thecommunity management merges into formal public management of RWSS can raise the benefits arisingwctor management, as local instiutions shoulder the from the investment, through sustainubility. Whenresposibility through a public works agency, a RWSS schemes are being planned and constructed,parastatal, or even a private sector management or thre is a short-term need for a major extension effortleas contract to the communities; after the schemes are operational,

there rmains an indefinite need for a lower level of b. The Decentralization and Communityextension activity, which may include training, Mangemt Issuesmonitong and assistace with technical and/orfinancia issues. Questions include the nature of such * Should greater responsibility for prmosionextenijon services-whether public sector, private be shifted from central government to localsector or NGO and the financing of these services, bodies, an, if so, how can local institutionsWhile extension services in other sectors (e.g., be strengthened to facilitate theagriculture, health) are generlly public sector, there implementation of susainble RWSSae successful experiences in Africa of NGOs services? What roles would communitiesundertaking this task (see Box 6, the example of have?KWAHO). Single-purpose outeach NGOs could befunded through both community association Some subsidiary topics for discussion are:memberhip dues and government subsidy. SuchNGO 'associations of associations' can also play a c. How should goverments provide for effctiwvemajor role in representing commnity intrests at a coordination between the multiplicity ofregional or national level. Ensing effective govemment departments at both central and localoutreach should minimize the risks of community levels, and other agencies involved in RWSS?mangemet.

d. Which institutions can most effectively carry outVI. CONCLUSIONS AND ISSUES both short- and long-term extension services?

How can tmining be most effectively provided?The institutional issues constaining the provision

of RWSS in Africa vwiIl require making difficult e. To what extent does technology choice affectpolicy choices, often with short-term stbacks to institutional arrangements for service deliveryachieve long-term sustainability; their resolution will and short- and long-term operation andhave major implications for governments nd ESAs maintenance?financig sector investments. The policy implicationsof decentralization and community management are f. Wben is community anagement most effective,also substantial for effective local governmt. In what is needed to enhance it, and when does itraising the institutional issues of providing RWSS merge into fornml public sector management?services in Afnca, this paer presents two main topicsfor debate: g. How can governments encourage and support

great private sector involvement in the locala. The RWSS Provision/Promotion Issue manufatue of appropriate equipment and in the

provision of goods, services and capital financing* Should goverments change their emphasis to the sectoe

from provision to that of primarilypromotion? What are the implications forthe other institutions operating in the sector?

POSITION PAPER 5

FINANCIAL RESOURCE MOBILIZATION

Prepared by

Pauline Boerma and Harvey A. Gamnwith contributions from

Rita CesttiThe World Bank

FINANCIAL RESOURCE MOBILIZATION

SUMMARY

The lack of financial resources, and the difficulties encountered in the allocation and 'magement ofthese resources in the rural water and sanitation sector (RWSS) have acted as constraints on the achievementof coverage targets in countries of Sub-Saharan Africa (SSA). The decline in .the overall macroecoomic.situation in the region together with rising costs of srvice provision have served to compond thesedifficulties. Present financial strategies of high subsidies relative to user cost-rocovery, coupled withexcessive reliance on external funding from ESAs do not appear to be achieving eitherthe objectiv'e of equity.or effective use of resources. Increasing the level of resources available to the sector by mobili'zing funds .....from central and extemal support agency (ESA) funding sources alone is likely,tio-exacerba the currentinefficiencies in the sector and may ultimately result in greater inequities to socie hol,.:

On tbe other hand, increasing the proportion of resources that are mobilized from users directly through'user charges can help ensure a more effective allocation and utilization of aresources nd. ultimately: have a:more favorable impact on the distribution of water and sanitation svr.ices to, the runal poor.Howevet, inorder for cost-recovery policies to work it is essential that proper ttention paid to effective deanad,1thatappropriate financial and institutional mechanisms are put into place and that a-suitable regulitory fraomwrk"exists for the sector. Since full or extensive cost recovery from users is'not'yet feai ble in most countres ofAfrica, subsidies will still have to play a major role in financing the sector. '.n order to 'increase theeffectiveness with which these funds are utilized, Governments will have to pay spocial attentkon to impro"vngthe manner in which these funds are allocated and made available, and particularly.to the:. itio alit placedon funding provided by ESAs_-.:-

-.-.-..: ..-.-. : --- --. --:- ..: .. . . -.. ... ................... ..:.

The two key questions that need to be considered in this -context are

* What conditions and mechanism are recomm m recoveryip .......ofeasible and.able to benefit alsections of the population'

. ,. . - .... :-: .. -: - - . ... - , : - - h: , -,~~~~~~~~~~~~... ..... .... .... .... .... ... ...- -- .. -.-. ..... -.. ....................... -- ---.-, .............. -*... -. . .. .......- .-..

* - For what purpose cam govenment grants and tnsfer asdwol a A fu, ,be .. : ............effectivey utilized, ai what r smeasre and polic ht be r d dto"'ensu

that these funds can di y nefit the poor on a sustainable bas.s? .. ..... ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. . . :.--. . . ,- --. . -,,:. .:.:-:.;..:.:-.

L INTRODUCTION

This paper will discuss issues in financial In the current situation, there is great concernresource mobilization for RWSS in Africa. The within the sector that these objectives are not beingpaper is intended to provide a basis for working achieved at levels and at a pace which is desirable.group discussions on potential sources of finance, Sustuinability of services has been a problem. Inmechanisms for mobilizing financial resources and many countries as much as 30 to 40 percent of watertheir implications for achieving national and sectora supply and sanitation (WSS) facilities in rural areasobjectives. The primary sectoral objectives with fall into disue or disrepair within a few years ofwhich we are concerned are sustainability of seavics, their construction. Even though many more peopleservice coverage, and the distribution of srvices ar now being served than before, the rate ofamong eceuers. expansion of services has fallen short of most

contries stated coverage objectives and the vast ustainability, and limited cdange in incentives tomajority of rural people remain unserved. Moreover, reduce costs or to improve the management andconcerns persist that services are distributed in such operational effectiveness of service delivery. Thea way that some sections of the population are other two options for mobilizing financial resourcesreceiving high levels of service, whilst others, usually are: (i) to attempt to increase the overall level ofthe poorest, continue to receive low levels or no resources from sources other than users withoutservice at all. change in user charges (i.e., to increase the level and

share of subsidy for the sector); and (ii) to increaseThe mnajor financial questions posed by the the share of costs borne by users thrugh user charges

current situation are whether the level of available while maintaining the contribution fromn non-users.finance for RWSS is adequate and whether the Each of thse options can imply different mechanismsavailable finance is being most effectively used to and will influence both the level of funds availableachieve sectoral objectives. If the answer to the first nd the probable effectiveness with which they willquestion is no, it is essential to explore where be used. Tbese options and their implications areadditional financial resources can be raised and the discussed more completely in subsequent sections andimplications of raising them from different sources re suggested as a means of organizing the Workingfor achieving sector objectives. If the answer to the Group sessions.second question is also no, consideration needs to begiven to what changes are needed in allocation of Financing mechanisms and sources should befinances, service levels and costs, and operational and assessed, of course, in terms of theirfeasibility andfinancial management to increase the effectiveness of their potential for geneaing finandal resowrc.funds which are available. However, one of the important lessons of the Decade

has been that financial mecianisms and mobilizationThree features of the current finacial picture for sttegies have important implications beyond their

the provision of RWSS in Africa stand out in bold direct role in generating finances. Two such effectsrelief First, over 75 percent of the countries in SSA are sufficiently important that they ae recommendedexperienced a decline in national income per capita as criteria for the Working Groups to use in singfrom 1980 to 1987-in other words there are less different financing mehaisms and mobilizationoverall resources to go around. Second, of the efforts. First, the use of alternative financial sourcesfinancid resources available for investment in both affects who pays and who benefits and this hasurban and rural sector services almost all of it comes important repercussions on resl distribution offrom the central government and ESA's, with the income. For example, finance through grants orlatter source accounting for over 70 percent of the transfers from central government tax revenues aretotal and, in many countries, as much as 80 to paid for by those who pay the taxes used whether or90 percent of the total. Third, existing user charges not they directly benefit from improved WSSare generaly insufficient to meet even the recurring seices. Similaly, finance through cross-subsidiescosts of operation and maintenance, particularly in implies that payment for improving services for somerura areas, with the result that to sstain almost all re paid for by charges to others. The point of usingnew services requires additional subsidies from this criterion is not to say that governments shouldsomewhere are required. not consider such altrnatives; but rather to suggest

that it is important to consider also the majorThere are many financial issues aising from this disrfibutional effects of approaches used.

situation which could be discussed. In order to focusthe discussion we have chosen to organize the paper Second, alternative financing sources andaround three kinds of financing options and their mechanim have effects on the cffecstiveness of fundimplications. One conceivable option is to continue allocations among places and service levels and on thewithout substantial change in current financial effeaiwness with which allocated funds are used.mobilization strategies; for example continuing to Financial aurangements have profound effects on therely beavily on ESA financing of investment and incentives for performance of those receiving andmaintaning the existing high levels of subsidy and using the funds and sucb effects should be taken intomunimal user charges. Experience suggests that this acount. Conditionality for use of ESA and centralwould imply difficulty in reaching coverage targets, government grnts and transfers can have strongespecially in rul areas, continuing difficulties with effects on locational priorities and choice of

technologies, for example. Similarly, user finance however, based on recent public investment andthrough user charges has a tendency to increase expenditure reviews conducted by the World Bankpressure to avoid unnecessary costs and to be more (WB). This research shows that total publicresponsive to the perceived benefits of the services to investment increased in Africa, on average, fromusers. 8.3 percent of GDP in 1985 to 10.3 percent in 1989.

Over this same period, investment in WSS heldThe criteria suggested will enable the Working virtually constant at about 0.9 percent of GDP or

Groups to focus attention on critical aspects of about 9 percent of public investment (see figuresdifferent approaches to financial resource mobilization I - 3). Although these latter figures would appearand can help structure the discussions. Of course, positive, they are overshadowed by other negativethey are not intended to prevent Working Groups implications for future coverage. These levels offrom utilizing additional criteria if they choose to do investment are insufficient to provide services toso. cover incremental population growth at current per

capita costs even without any increase in coverage forI. MACROECONOMIC SITUATION those currently unserved. Moreover, the financial

problems of local institutions, to be discussed below,The decade of the 1980s has been an extremely create grave doubts that all of those currently served

difficult one for both external and domestic resource will be provided with reliable and sustainablemobilization and expenditure. Extensive external services.borrowing in previous decades has resulted in largeoutflows to meet debt obligations. In 1988, heavily While national incomes are declining currentindebted countries paid out about 4.7 percent of the costs of service provision are rising. The Worldgross domestic product (GDP) for this purpose. Health Organization (WHO) mid-decade report showsFrom 1986 to 1988, the net outflow from these also that per capita costs in Africa tend to becountries was over $100 billion. The countries of considerably higher than in other countries withSSA have been particularly hard hit. These comparable levels of national income. A survey ofcountries, while not as heavily indebted in total, bave 25 African countries revealed a mean cost of US$ 40a much larger debt to export ratio and debt to gross per capita for the construction of rural water suppliesnational product (GNP) ratio than the most heavily as compared to USS 14.50 for South-East Asia, theindebted countries in other regions of the world. only other region with comparable GNP levels.

However, even though considerable progress has beenIn part because of the heavy burden placed on made in introducing low-cost technologies to rural

economies by external obligations, many countries in areas of Africa, thes gains have been more thanAfrica have experienced a reduction in per capita offset by increasing real costs throughout the sectorincome during the 1980s. In almost 60 percent of as a whole. Such increases are largely the result ofthe countries of SSA the decline was more than inconsistent sector policies and poorly organized1.5 percent per year. Many countries have reduced centralized nmnagement and delivery systems that areor eliminated spending that does not have a direct unable to achieve economies of scale or ensurepositive impact on macroeconomic growth. To date efficient utilization of available financial resources.the sector has generally not been able to make a Despite advances in low-cost technology, coststrong case for additio4sl allocations based on increases have also been incurred in part by ESAsmacroeconomic impact. The major unresolved sometimes insisting on the use of technologiesquestion is the effect of the overall financial situation imported from the funding source, most of which areon investment in the WSS sector. usually more costly to operate and maintain than

indigenous technology. Meanwhile, it is expectedComprehensive data on the effect of this financial that the quantity and quality of water resources

situation on public investment and more specifically available at resonable cost will become anon the share of that investment allocated to WSS is increasingly serious constraint in many countries ofnot available. We have attempted an estimate, the Region.

m. POLICY OPTIONS reached, and those most likely to remain witboutAND THEIR DFFERENT IMPLICATIONS access to clean water or adequate sanitation are

usually the poorest and most vulnerable communitiesA. Current Financial Mobilization Strategies of the rural areas. Indeed in many countries, it is

only the relatively better off people who benefit fromIn this section we will look at present financial subsidized services since they are often more

mobilization strategies and assess if there is a case to accessible to service institutions than the truly poor.continue without substantial change. In particular we For the latter such notions as 'free' water bear littlewill look at the implications of high subsidy levels, relation to their actual situation since they continue toas a proportion of total funding available to the pay a high price for water in terms of time andsector, in terms of their impact on the objective of energy lost in obtaining sources of drinking water;expanded coverage to the rural poor. and for some severely affected areas in terms of

money required to buy water from private vendorsIn the nmjority of African countries, investment during water scace seasons of the year.

in the RWSS sector as well as operation andmaintenance costs of services continues to be funded Why has it been so difficult to increase coveragelargely through government subsidies generated from under present fuiacing strategies? One of thea variety of sources such as income tax revenues, reasons can be found in the manner in which fundsearmarked funds, intersectoral transfers, and external have been allocated and utilized in the sector. Thegrant and credit assistance. Cost recovery from users mechanisms available for this purpose are variableconstitutes a relatively small proportion of total and cannot all be covered by this paper. Mostrevenues while the private sector has had a very commonly, however, funds are channeled throughlimited role up to now in providing either finance or direct centrl government investment andservice. construction, or alternatively made available through

formally structured or discretionary grants andThe general assumption behind the policy of high transfers to local organizations and administrations.

subsidies has been that rural populations are too poor Increasingly widespread is the creation of specialto pay for the full cost of WSS services. Thus funds using earmarked funds to provide support forgovernments must intervene to ensure that at least a tbe development of WSS projects.basic supply of water and a minimum provision ofsaitation facilities are made available for health The main problem with all of these mechanismsneeds. Furthermore, in some countries potable water is that they encourage a top-down approach tois viewed as a basic social right which the decision-making which does not always take thegovernment is obliged to provide freely to users ultimate beneficiaries into consideration. Resourcesirrespective of ability to pay. Another reason why usually end up being provided without proper concernpolicyrnakers have advocated high levels of subsidy for user perceptions of the value of the improvement,to the RWSS sector is that they believe that subsidies for recurrent cost implications and for selection ofhave a potential distributional effect on real income, service levels for which usen are willing to pay,and will result in benefits to rural societies as a whole since there are limited criteria used for selection ofin terms of improved health and productivity and thus beneficiaries other than need. This can lead to theto over all economic growth. In this connection it is choice of inappropriate service levels and investmentalso believed that subsidies are needed to actively which is supply driven rather than demand induced.promote better health practices which would not Thel result may be the construction of facilities whichotherwise result if a price were charged. are underutilized by the intended beneficiaries. These

implications are particularly serious whenHowever, experience has shown that increased communities are expected to cover operation and

coveage and poverty alleviation have not been well maintenance costs of new investments, since if theserved by the current practice of high levels of communrities do not value the service provided theysubsidy. Becas of limited resources, it has will not pay for its upkeep.generally been impossible for entire populations to be

In addition, weak planning and budgeting countries which must make provision for spare patscapacity as well as competing claims on restricted and other accessories from abroad. It may alsocentral resources often means that govemment and undermine local capacity to find less costly long-termexternal funding can be both limited and erratic and financial and institutional solutions to constraints onservice agencies cannot depend with any certainty on the development of WSS services. An additionala regular flow of resources for their operations. factor is that funding from ESAs tends to be ratherResultant cash flow restrictions mnake it difficult for unpredictable and dependent on the priorities andsuch institutions to provide adequate and reliable availability of funds from individual donors. Thisservices to communities. Moreover, this situation is has consequences in terms of the ability of recipientoften made worse since agencies' revenues are not countries to plan and implement programs with anynecessarily related to the quality of service they degree- of certainty particularly when in soreprovide but to the case that each agency can make to countries as much as 90 percent of all investment inthe central authorities for more funds to cover costs. the sector is ESA financed. In some instances thisPoor performance is thus often rewarded by has led recipients to direct their energies towardsadditional funds. As a result, financial discipline of constructing new facilities on a fairly random basis,the govermment department, public utility or local rather than focussing on building up the capacity toorganization concerned can be undermined by sustain existing facilities.elimninating its incentive to control costs, raiserevenues or improve its financial performance. This On balance, present funding strategies of highfurther exacerbates the institution's capacity to meet levels of subsidy relative to user payment andthe needs of rural comrnunities. excessive reliance on extermal funding from ESAs do

not therefore appear to be achieving either theAnother important issue which arises in objective of equity or of effective use of resources.

connection with effective allocation and use of central A change in the impact of these strategies on thefunds is that a high proportion of subsidized support development of the sector would require a majorto the sector is provided by ESAs. The reason why adjustment in the criteria used for allocatingthis is significant is that external funds, if not resources, in the performance of institutions currentlyproperly directed, can have an unintentionally responsible for WSS services, and in the regulatorydisruptive effect on the long-term sustainability of the frmeworlk in which the sector operates.sector.

B. Incasing the Level and ShareWhile undoubtedly playing an important role in of Subsidies to the Sector

relieving immediate demnands on national budgets andfreeing domestic funds for other possibly more Because the financial constraints in the sector areproductive functions, ESA funding has sometimes commonly perceived as a lack of funds rather than anproved to be a double-edged sword. Grant and credit inefficient allocation or utilization of existingassistance is frequently provided with insufficient resources, the most frequent response to theseattention paid to the long term financial burdens that problems is to request yet more funds from ESAs andsuch assistance incurs not only in terms of debt governments to support the sector. If obtained, theservicing for credit but also in terms of the need to result is not only to increase the absolute level ofmake adequate long-term financial provision for subsidies available to the sector but also the relativerecurrent costs and for the eventual replacement of share of subsidies compared to user payments.depreciated items. While ESAs are generallyprepared to finance capital costs, recurrent costs are The implications of such a strategy are several.expected to be the responsibility of recipient First of all it is important to bear in mind thatcountries. Thus in some instances ESA funding can subsidizing the cost of services to users does notend up by placing unforeseen burdens on national reduce the overall financial burden of provision ofbudgets or local communities which countries are ill- services. Someone must bear these costs; whether itequipped to sustain. is the govermnent or other internal financial sourms,

or external financial sources. For instanoe, if theMoreover, extemal aid is frequently tied and can additional funding is to be provided by ESAs, it is

impose long-term foreign exchange obligations on effectively the taxpayers of donor countries who bear

the cost of the services consequently provided. While funds for another purpose, then there will be anthis may appear a cost that is justifiable onL overall loss of benefit to society. The poor can bedistributional grounds, there is no assuance that particularly affected if the funds are being redirectedthose footing the bill will be disposed to continue from some other program intended to target the poordoing so indefinitely, particularly when no direct such as public health programs or literacy campaigns.benefits accrue to those paying. Furthermore, ESAfunding is finite and thus there will be opportunity Not infrequently govermmentsattempttoincressecosts incunred in terms of the alternative uses to subsidies to the RWSS sector by transferring surpluswhich the funds could be put. This may be important revenues generated by urban WSS schemes to thefor donors assessing their continued support to the rural sector. This practice of cross-subsidizationRWSS sector. If ESA assistance is provided not as means that it is the urban population who musta grant but as a loan the cost will be borne by the ultimately bear the cost of WSS provision to the runlsource from which the government will raise funds to sector. The effect of this policy is therefore toservice the debt incurred. redistribute real income away from the urban to the

ural sector. At the same time, however, it alsoIf the funds for increased subsidies or for debt effectively penalizes the urban sector for efficient

servicing are to be provided through central performance and may act as a disincentive to expandgovernent grants the most common way to finance coverage and improve services to urban residents,this is through additional taxation. The effect is to many of whom are also poor.transfer the direct cost of provision of WSS servicesto those who must pay the taxes but who do not Whether the costs that are likely to be incurrednecessarily benefit from the services provided. In by increased subsidies are justified or not will dependmost developing countries the largest source of in large part on the relative benefits that can begovernment revenue is tax on international trade, expected to accrue from the allocation of thesewhile domestic taxes such as sales, excise and value- subsidies. This is extremely difficult to esmate asadded tax are also increasingly important. The effect benefits from improved WSS facilities are not easy toof an increase in these taxes can be to discourge quantify. Equally important is to assess thetrade, act as a disincentive to productivity, lower likelihood that the funds allocated will be usedincome and ultimately hamper further growth. The effectively or at least more effectively than if theyeconomic cost of taxation will increase when the tax were used for some other pupose. On the evidencebase is narrow but may also have a regressive effect of past experience, it would appear that increasedon incomne distribution if the taxes are also expected sbsidies will at best perpetuate the types of problemsto be paid by the poor. If funds for the sector are described in section A above. Unless significantraised in such a manner as to contribute to a fiscal progress is made in the efficiency and effectiveness ofdeficit in the country concerned then the public spending in the RWSS sector through, forrepercussions can be expected to be seen in the form example, better planning, budgeting, implementationof high interest rates, falling private investment and and monitoring, and unless a policy environment isrising inflation. All of these are likely to incur created that provides incentives for sound publiceconomic costs which will be borne across the board investment and good performance, it is unlikely thatby both rich and poor alike; but which tend to be incresing the share of wbsidies to finance RWSSbome disproportionately by the poor. will significantly contribute to overall poverty

alleviation.When additional support to the WSS sector is

financed through transfer of resources from othersectors then the cost of this allocation needs to be C. Incrausing the Share of Costs Borne by Usersseen in terms of the loss of benefits foregone in thesector from which the funds have been diverted. In Because of difficulties in mnobilizing andthis cae the effectiveness with which the funds will mging centrally administered funds to financebe utilized in the RWSS sector is of importance since investment in and operation and maintenance of WSSif the rturns to society as a whole on the investment services, many countries are beginning to introducermulting from this diversion of funds is less than or extend the practice of recovering costs from userswould have otherwise been obtained by using the directly.

The argumets in favor of increased cost as a heavy burden on people who already haverecovery from users are several. Firstly, it is limited income for their daily needs. However, acommonly argued that because of limited central explained in section A above, the policy of notrevenues there is little choice but to recover costs charging users has hardly benefitted the very poor forfrom users since if they do not pay no one else is whom the real cost of obtaining water can often belikely to. More significantly, however, there are high in social nd economic terms. Cost recoveryimportant implications of user cost-recovery in terms policies if properly implemented may ultimately seveof improving the way in which resources are utilized. to bring water to poor communities at a lower costBecause revenues are dependent on user payment, than they would otherwise pay under a system ofuser cost-recovery will ensure greater responsiveness subsidies.to user preferences. There will therefore be a greaterchance that investments will be more closely oriented A number of attempts at user cost recovery into consumer demand and that the level of service Africa have had remarkable results and have set anchosen will be utilized by the communities example of self reliance and sustainability. Malawiconcerned. This in turn will increase the likeliood is a particularly good case in point (see Box 1).of long-term financial sustainability. Cost recovery However, many cost-recovery policies in Africa havefrom users can also be more effective in ensuring a rnm into difficulties and have failed to yield thebetter provision of operation and maintenance volume of revenues anticipated. This has particularlyservices than centrally provided subsidies since there been the case for schemes implemented directlyis a closer 'match' between service provided and through government agencies or public utilities.revenues generated. Those at the community level have sometimes worked

well but, particularly when set up with extemalFrom the point of view of equity, it has often assistance, have occasionally precipitated local

been argued that user charges are inherently disputes or have collapsed once left to operate ondisadvantageous to the poor since they are perceived their own.

U,.. Cost Re.overy n ...--

Since independence, the of Mawi 'has s t hgly e ropoition that itshouldprovide heavily subsidized services to rual people. Over time, this position was reinforced beca-seMalawi attracted relatively little aid from countries with a strong tradition of state subsidization ofservices. Instead, the govemment policy was that rral communitiestwould4develop primarily throuighself-help activities, supplemented where necessary, by- teciical and training support from government andby materials from donors.

Starting in just one community of 2000 people 'in 1968, the Dqpaitmet of Community D Gevelopmtgradually developed a highly sucessful pocedure for involving the community in plnning, constructionand operation and maintenance 'of tosesystems.' As expeiene was acquired, tbe scope of the programwas gradualy expanded, to a point where currently nearly 'l million people have high-qualityi reliable,and convenient water through schemes that are owned,-built, and maintained (with critical but limitedgovernment support) by the communities they seve.

Initially, the program was concentrated in areas appropriate for gravity-fed piped systems, which arelabor-intensive and thus ideally suited to self-help. The lessons of this experience are now being adaptedto the different circumstances faced by those rural people who must be served through groundwatersupplies and for groups of users on the fringes of small urban centers.

Adapted frm: Waterfor Rural Communitic - Heloing People Help hemselvas, J. Briscoe &D. de Ferranti, 1988.

The reasons for this are chiefly that the Determining Wiflingues to Payinstitutional arrangements and financial mechanismsavailable have not been conducive to sound cost It is often sugested that user cost-recovery isnotrecovery policies and that insufficient attention has viable in most countries of Africa becaue people dobeen paid to effective demand. In other words, if not have the resources to pay for WSS services.user cost recovery is to be a viable financial option, However, recent WB studies (see Box 2) suggest thatit must be assured that the appropriate mechanisms willingness to pay of people in rural areas in Africa,and conditions are in place to make this possible. In is considerably higher than is commonly assumed. Itthis section we will examine the various factors that is noted that cash income from non-agriculturaldetermine the ability of supply institutions and activities sometimes makes up a substantial proportioncommunity organizations to mobilize resources from of total income and many communities already spendusers and the mechanisms that are necessary to ensure significant amounts of money on consmer items.that the resources available are effectively utilized. Furthermore, in some water scarce areas, a highIn particular we will review the role of willingness to proportion of income is used to buy water from waterpay and assess the implications and feasibility of vendors during dry seasons of the year. Even indifferent institutional arrangements, levels of user areas where cash income is low, very poorcost-recovery, and mechanisms for generating households are sometimes able to contributeresources to enable users to cover capital costs. non-monetary resources such as labor and materials.

:Wilfingness to Pay

Willingness to pay studies for RWSS have beeo extensively cd in: rcnt.years inAfrica bWB.The approach has been developed and refinbd over tme in an effort to provide. reliables;timate on the actual-amoun that people will be willing to payfra ice. Wllingnes topay ca'n be inferin part frm dirt-observation of people's bvior, for example the amount of money tha poope .- pay ig to ter.vendors in water scarce areas, or the amount of time that t send collectinwterIeahay..

E i .. i: .. - - -: . : i -: - i ~~~~~~..... .-EE E ... .. i...: . ii Xi Ei

In addition surveyors mayalonquir as of h Lds aof war, tation faclit icel currenty big' iliz ind 1n f the sociological, cultural and eonoicatos that may nflunce p i, o n s ae.Anothe approach is for surve to aso ity members ete amout o .they would be willing to pay for differenttypes levels of service and then to draw conclusions about howmany housholds would chooe diffet ti sof ie at t prices.

Expecenc in carrying out willin ' a stude has e0eal o0io it i eanswen may be misleading,eitherbeu i hypoh etical u odoes not e fficiently sroconsideration, or because there o:are peivadgesto giving falsenwes.orsi Major theoretical andmethodological advances have been mlade hodtiver, inding the biesinsuch studies that havehelped to narrow the possibility of inferring misleading conclusions from srveys Carried out. It is nowwidely recognized that willingness to pay studies are a usefui means of estimatingnot oly'likely responseto iqpoved srvices, but what conditions might be neesary to make any cost recovery policy work.

Though thdse indications are encouraging, service provided, and the problems encountered inestimation of demand levels has somedimes been the biUing and collection of funds has made itoverly optimistic, basically becaus there has been extremly difficult for such institutions to implementinfficient appreciation of what determines demand. viable user cost-recovery programs. As a resultWhile price and income are important influences, countries are increasingly promoting decentralizationperceived bonefits by the users themselves also play of financial responsibility for operation anda crucial role in determining the level of willingness maintenance, and in some cases for investment in newto pay of users. This has often been given inadequate facilities, to the level of individual communities.attention by sector plnners and donors who too oftenassume that the benefits which they perceive from From the point of view of cost recovery andnew and improved facilities will be the same as those effective use of resources, decentraliation can poseperceived by the recipients themselves. In rural areas a number of tangible advantages. Communities whosuch considerations as distance, convenience, are direcly responsible for managing local systemsreliability nd quality can be as significant an may have greater flexibility to devise paymentinfluence on willingness to pay for water as idther sysems that suit the socioeconomic situation of themoney price or income. If new facilities constucted community. Furthermore, the fact that thedo not offer improvements in these aspects it is ommunity has direct control over the utilization ofunlikely that communities will be willing to pay for the funds generated helps to create a stronger positivethem. In the case of sanitation, perceived benefits are link between costs and benefits and avoids thetypically low, partidculay in sparsely populated areas problem of communities perceiving tariffs as anwhere the link between poor sanitation and poor arbitrary sum of money that is periodically extractedhealth is often not made. Even with sufficient for the purpose of financing a service they do notincome many communities are likely to accord a necessarily value. If people feel that their money ishigher priority to other needs such as health and being used directly for the purpose they intend, theyeducation facilities rather than to snitaton. will be better disposed to cover costs.

All of the above point to the importance of However, community management has in someensuring that investments in new facilities will yield instances run into a number of problems. Onethe kind of benefits which matter to local important factor is that community capacity tocommunities so that demand can be assred nd orgnize and manage financial resources has oftencost-recovery from users becomes more feasible. It been weak and the institutional environment in whichalso strongly supports efforts to develop ad more communities operte have not always been conducivebroadly disseminate benefit information and suggests to effectivo management of resources. In particular,that explicit marketing of services may be a cost the larger the amount of funds to be recovered, theeffective mechanism for tevenue generation. geater the problems tend to be in terms of the

institutional and organization capabilities of theInstitutional Armngunents communities concerned. Retaining relatively large

mounts of money at the village level can inviteThe willingness of people to pay will be strongly embezzlement and misuse of funds. Moreover if the

influenced by the quality of service which they funds are not immediately required there is pressurereceive in exchange for payments made. Because of to use such funds for other projects which may belimited and inefficiently utilized resources, as well as considered a higher priority by the communitythe geographical dispersion of ral communities and concerned. An additional problem that has notthe limited possibility of achieving any kind of always been given sufficient attention is the lack ofeconomies of scale, agencies and utilities responsible accounting skills or familiarity with proper financialfor providing drinking water and sanitation services management practices. An example of the type ofto mral communities have usually not been able to problems typically encountered can be seen from themeet the needs of the mral population. The poor experiences of communities in Tanzania (see Box 3).

BOX 3, X 00: ;jl i:59ly,So i2:;A2s 0Ci^t's523 8 2 2^2 :" i->:<: 2 ........... es~~~~~~~~~~~~~~~ ........

a t : : - , -~~~~.. .... .... X.. - -C -n~ui- itAy Mage -nm~n -n hnytaga an -oogr ReinTnaThe f -dirsii,iit large-scl nzra wae m . . iy rog , in Tarii w- sle -n 197 in Shnag region,

-whil--ge operation and niaint-iance costs warn named by the Tanzania g: -enatnont. While investment was;:successfuly coplted, fanig; of reuret cst becm ncesngydfficul ove tmnE i9S

cts ... .hin.. r. .TA. 1million, whle de a hd ..a..oliy TA 300,00. At th naionallel,octions foreurn cotswndonrm an eival. o

7 TM 60 illo (1986s value in1978/79 to TM 20 illio in 1986187. --

:; : In 1987, afer naionlsei n RWS, the Mine of Wtranucdi h ainlAsmltha pole wud fro no on me th ot n ble repnible fo th nnig and mant-ac of wate'R'"Supply projects In. 1988 he rt on R m l " on """ o s u ........... w...e... , , R,,,

Initial xeecei thewot -egionsshows thtin geealthere has been sfficin wifli11 es to pafor operation and imaintenanceX costs -of wate systemns, despte largldy abistence incomes. Villagers'.'fihermore s:eed eger to take acotion to help themselves. fHowever, in mpractice major :problems began to0:''loccur not because of 'lackli'of flid bu0.t aresut of diffiulie inth paning: an executsion -0of the.''Smanagement system, particularlyfinacial maagmnt. Regnal revews showe the 'following icommon.--

.~~~ ~ ~ ~ .. .. -. -I .y . d.i- E i i-- . :i - - .

* long pe;riods elapsing btwe initial -malucto ingbeadw ad cllection of thbe-:---t----:----;0-2-totalsu foro: --rer 0

* village mecbanics eme attendants not -- regulary . .* no separate ad2inistration account kept for wateR ". .. " '.'-.'...R

. . . . . .: . .-, ' : -: - R . . ...i . -'': : ' E. 'S 0 : : . . . .': . . .. . ..": 5 ' ' ' ' ' ' i :

! ) ' .' "' " ' " 'z' R ,,, , ,, ,. R~~~~~~~~~~~~~, ""- "..

* p l ckofuld cuiintiia:oobityd:controi ciitatimb:niespoofsmrunnIA .. d/o ... tr us

Appon has nw ben taN a torm ihes r shrouh spa v -smiPrran in financialt managemnt incbluing settoing tariffs, :ollcCtionj mthd,; bookee ing andadinistation. In 1aditio, flnacifndfinancil maaemn tcoursesbave boeen devlped for government-employed Comnt DevelopmenetAsistat lwho in twrn are exetd to provide moewidesra onl-the -job tranng. As the measues haeoly recently beninitiated,- it -is inot yet ;possible Xto assess the impact t;of th prgram. - --- t> -? ;it;- ;0

::::;:if:: T- : ':--'l l.- ....... :ft:. .- i. 4 . .- ::A: Vf t:.: .... ..... : : . - ;... :0;0iE': :. ;. ;.

Abritdpd frwn: IRC Care Sudy, 1989.t - :;::a ::: : ;::ii: ::::::E0 ;;0:

: ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ . .. .. . ....... .. . ... .. . .. . .. .. . . .. . . .. .. .

Prb of financial management at the acc to bankcs while lackc of fmiliarnty with thfo oey lvol can be compounded by the absence concept of bOnking can create a certain eement of

o y viabe financial intedediaries with which to unease amongst pople who are reluctant to entrstdeoitir ndot beMany communities do not ave ea sy the safiteeping of their funds to an unknown

institution. In addition when usrcost recovery is

being supplemented by extenal funding from a intel cross-subsidization to enable lowest incomecentral source, govermment agencies or public utilities groups to have access to clen water and improvedmust sometimes act as financial intermediaries in this sanitation facilities.process. Their capacity to manage and allocate thesefunds is often weak and they fail to coordinate Detemining the Levd of Cost Recovery fromneffectively with communities' efforts to organize Userinvestment or maintenance

The proportion of costs recovered from users,In order for decentralization to provide a viable and hence the level of tariffs imposed, will have

mechanism for the mobilization and effective use of inportant implications on the performance of theresources, it is therefore essential that the measures sector. In terms of effectiveness, achieving fullbe undertaken to provide an enabling environment for cost-recovery for both capital and recurrent costs bycommunities, particularly by strengthening the role of setting tariffs equal to long run marginal costs, wouldfinancial intermediaries (including government help to ensure the least waste of resources andinstitutions if they assume this role), ensuring rational provide the greatest potential for long-termand consistent pricing policies for revenue collection, susainability. In most countries in Africa, however,and fully involving the local population in every step full cost recovery is not feasible at present, largelyof the decision-making process for any future because people's willingness to pay is not yetinvestments. In addition, technical advice and adequate for this purpose. Instead, manytraining need to be provided to strengthen local governments have started by trying to ensure that atcapabilities to manage and account for funds minimum, operation and maintenance costs aregenerated. covered as an interim solution and that the remaining

costs of the facilities continue to be subsidized (seeTariff Strctures Box 4 for details on actual costs entailed). While this

improves the probability of being able to sustainAppropriate tariff systems and structures are systems in the longer-rn, it can also present certain

important for ensuring that the desired level of disadvantages.cost-recovery from users can be obtained. This papercannot go into detail on the different types of tariff To begin with, operation and maintenance costsstructures that can be employed in ruml areas. typically constitute as little as 10 percent of totalHowever, the important point here is to recognize costs of water provision in rual areas and less thanthat for any cost-recovery program to work, tariffs 5 percent for sanitation. This leaves a major part ofmust be pemeived by users themselves to be the sector open to the continuing vaganes ofappropriate to their economic situation, as well as government and donor funding. In addition makingequitable. Given the diversity of community an arbitrary policy to recover only operation andsituations and the fact that water facilities in maintenance costs from communities does not takeparticular are often communally owned, this is more into account people's actual willingness to pay whicheasily said than done. For instance, it is difficult to may be higher than anticipated. Thus the possibilityfind an appropriate charging system that does not of tapping additional resources from communitiespenalize low users and benefit high users or which themselves is effectively eliminated.adequately distinguishes between people who aremore or less able to pay and, therefore, ensure equity There are additional implications to chargingin the charge system. Particularly when tariffs are only for operation and maintenance. For instance, ifestablished by a central government agency or utility, the capital costs are being funded from an externalequity may have to be compromised for the sake of source, there may be a tendency to try and find thesimplicity as it is important to avoid administrative cheapest system so as to save money for theproblems in billing and collection of revenues. In the investors, but for which the operation andcase of community managed water points, it will be maintenance costs may, as a consequence, be high.up to communities themselves to devise charging In addition, there is sometimes inadequateystems that are appropriate to the community consultation with recipient communities not only on

situation and can take account of such factors as the type and level of service they want, but also onvariations and seasonality of income. Communities the amount of operation and maintenance costs theymay be in a better position than central agencies to are prepared to cover. For this reason it isinstitute rates that allow for a certain amount of preferable, from the point of view of effective use of

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funds, to attempt to recover costs not oly on Foancng Capital Costsopertion and maintenance but also on at least pat ofinitial investment costs. For example, obaining a To arrange for cost recovery from users forcommitment of users in the form of either a financial operation and maintenance is much more straightor non-monetary contribution will go a long way forward than recovering costs for capital expenditure,towards ensuring both that the investment is demand particularly if the community is expected to cover alldriven by the community itself, and that the or nearly all of the capital costs. If the investment iscommunity will have a vested interest in not allowing initially financed by a central agency with fundstheir initial outlay of funds go to waste. Thus the borrowed commercially or from the government,chances of recovering costs to sustain the investment then the way to accomplish cost recovery is to buildwill be improved. a capital cost-recovery component into the tariff

structure together with an element for debt financing,In some seriously poverty stricken areas, if this is required. However, given that financial

communities are genuinely unable and unwilling to respon6ibility is increasingly being delegated topay towards anything but a relatively small share of communities, alternative means are required to raiseoperation and maintenance costs though some might funds for investment. Problems arise in this casebe able to offer contributions in kind, such as labor, deriving from the lumpiness of investment costs.for initial investments. In such instanoes it is clear Usually the per capita costs involved are well beyondthat the level of cost recovery from users will be too the reach of most individuals, and thus funds must below to ensure long-term sustainability. Humanitarian either borrowed or saved and paid up front. A fewconsiderations would dictate the necessity for high of the most common approaches for mobilizinglevels of subsidy to prevent communities from resources in rural areas are outlined below.suffering undue hardship. Such instances place hardchoices before governments who must weigh the * Borrowing fiwn Financial Inte7nediariesrelative costs and benefits of providing WSS servicesto such communities vis-a-vis other priorities which Mobilizing funds through financial institutionsalso need support, particularly if the capacity to make particularly to cover capital costs is an option thatfull and effective use of these resoures is curtailed holds considerable attractions in terms of economicby poor institutional capability. In the end there is efficiency, sad also in the sense that providing creditalways the risk of creating a vicious circle of poverty, which must be repaid by communities will increasesubsidies, dependency and yet more subsidies which their BMW of ownrship of the system beingdrains government resources but does nothing to constucted. This is crucial if the community is tofurther the overall development of the population. provide financial support to sustain the originalThis is particularly the case where inability to pay investment in the long-run. However, although astems from inordinately high costs of providing variety of private and public financial intermediarieswater. such as commercl banks, credit unions and

cooperatives exist in Africa, few if any have hadWhateve the level of cost-recovery from users, much experience with financing rnul water and

it is importt th t the government ensurs overall sanitation services. Moreover, credit is not easilyconsisteocy of cost-recovery policies. For instance, accorded to rual communities for water andthe widely differnt conditionality on the granting of sanitation schemes as tbese are not generallyresou from ESAs to local institutions or perceived by financial institutions as constitutingcomnmunities can sometimes undermine efforts to productive investments. In any case financialmobilia reources from communities. If in one area institutions in the rural areas are generally ratherESA grat assistance is provided for construction and weak with the working capital tending to be low andopertion of a facility, communities of neighboring the rate of default high. Credit if granted at all, isareas could be resentful of paying for a different ESA uuwally provided on a short term basis and at veryor govermet funded scheme which might require high interest rates which rural people may not wish tocost reovery from users for operation and accept. Women may be excluded altogether throughmainteone. Equally important is to ensure that lack of collateral. Thus in practice commercialpeople underAnd why cost-recovery from users is borrowing for investment in RWSS is largely notnecesy io the first place. This is particularly feasible at present. Before finacial intermediariesimponwnt in aeas where services have previously can become a significant sourcoe of finance for theboen provide free of charge. sector attention will need to be paid to strengthening

the apprisal and loan managem t capacity of these encountered. Thus if revolving fiuds are to be tmlyinstitutions and to ensuring that the approiate effective, special attention would be needed to ensurelegisation is in place to encourage a more extensive that an appropate institution to manage the funds isuse of financial intermediaries by nual communities. selected and that adequate govenment support is

provided to strengthen the administrative andCommunity Fund-Raising financial management capacities of the institution if

-y.Rather than borrowing commercially,

communities will often opt to save first then pay up * Gaeralfront for capital costs This is understandable in manysocieties where living conditions can be unpredictable As has been demonstrted, increasing the shareand control over ones outlay of funds becomes of of cost recovery from users offers considerablemajor practical and psychological importance. A potential for ensug both greater equity from thevariety of fund-raising methods can be used such as point of view of better access to water nd sanitationa flat rate tax, or a per capita contribution based on services particularly by the poor, as well as moreproperty and other assets. At times alternative effective utilization of scarce resources. However, itinnovative methods to raise funds are attempted, such is not realistic to expect that full or even extensiveas generting proceeds from communal farming plots cost recovery can be realized in Africa in the nearor nmning lotteries. Most commonly communities future. Thus in many instances subsidies will have tomay draw on informal or taditional fund raising play a major role in financing the sector. If so, it ismechanisms such as the practice of su-su or tontines essential that the capacity of financial intermediariesm West Africa, or by appealing for funds from to manage and allocate these funds effectively isrelatives in urban areas or abrod. Non-monetary strengthened. In addition a great deal of institutionalcontributions such as labor and materials can also support as well as improvements in the overall policyconstitute a significant contribution towards such environment will be required to ensure thatcosts. Such community based methods of rising community financing mechanisms and cost recoveryfunds are often well suited to the local situation and policies in general will be effective.ucceed in large part because of peer pressure.

Howcver the drawback of this approach is that it is m. CONCLUSIONSsomeim difficult to generate the volume of funds AND ISSUES FOR DISCUSSIONrequird for major investments over a short timeperiod. Funhennore such medtods can pose all the The present financial strategies of most countriessam problems of safekeeiing, mangement and of Africa have not been effective in achievingaccounting already mentioned above, only that the sufficiently expanded coverage, particularly for theproblem re exacbated by the laer volume of poorest sections of the rural population. Thesefunds involved. strategies have been characterized by high levels of

subsidies composed in large par by funds provided* RswslWitgJiudSP by ESAs with corresponding low levels of user cost

recovery. Although financial resourcesavailablehaveA aptio that has been attempted by a number generdly been insufficient to achieve coverage

of combne is the establishment of revolving funds at objectives, increasing the level of central and ESAthe lokd or nain level. Such funds are in funding alone for this purpose may not result inprinciph a effective ens of ensuing an efficient major long-run distributional effects in favor of theelloa of resous and have the advantage of poor.ecri ll _consmer participation. However, adiaadvaw of this type of fund is its special stas. The failure of financial strategies to achieveFuding Nily comes from special earmarked coverage targets has as much to do with the manneruourd ohmuder a central ministry such as the in which funding sources have been mobilized,Minitry o Financo or of Local Government. In a allocated and utilized as it has with the absolute levelbudgpt rucl such funds are more often than not of resources available. The alternative financingdivent l othor uses. Furthermore, the mechaisms used in this process have had anadmi etiw and institutional capacities of those important impact on the performance of the sector.

Fasail for overeeing the funds is often weak In particular the nearly exclusive use of ESA andod uonw finacial mmaement problems are central Government gmnts and transfers has tended

to encouage ineffective use of scace rources, poor the potential to play a useful role in helping to

investment choices and insufficient attention to improve the prospects for higher cost recovery from

ensuring long-term susainability. This in turn has users. Given the cental role currently played byundemin the capacity of institutions to serve a ESAs in the financing of the sector it is crucial thatlarge proportion of the rural populaion. User donors collaborate with govemments in pursuingcharges, in contrast, incraseo presre on supply these objectives.institutions to be more responsive to the perceivedbenefits of the services by the users and to avoid In the light of the above conclusions a number of

unnecesay wastage of resources. By mobilizing key issues arise which lend themselves to discussion

resources from users themselves, more communities by the Working Groups. These are as follows:

can benefit from and ensure the ssainability ofimproved coverage than might otherwise be the case w The main premise of this paper is that it is

if they were to continue to rely as heavily on a desirable to increase the proportion of financid

central institution to make the necessry funds sour that re mobilized from users directlyavailable. In this respect financing staegies that because it not only ensures a more effectiveattempt to increase the proportion of funds generatd utilization of reses, but will ultimately havefrom users themselves may ultimately be more a more favorable impact on the distribution ofeffective than subsidies in relieving inequities in the water and sanitation services to the rural poor. In

provision of adequate water and sanitation services to this context, what conditions and mechanisms arethe nurl population, as well as improving recommended to make cost recovery policiesperformance. feasible and able to benefit all sections of the

ural population? More specifically, what shouldBecuse of difficulties in ensuring full cost be the recommenided course of action for setting

recovery from users, subsidies will nevertheless tariff levels and structures, establishingcontinue to play an important role in financing the appropriate institutional arrangements, and settingsetor. In order to increase the effectiveness with up a favorable policy and regulatory framework

which these funds are utilized, more attention will to make this work?need to be paid to improving the manner in whichfunds are allocated and made available, and * Assuming that full cost recover from users may

paticularly to the conditionality placed on funding not be possible in the short term, for whatprovided by ESAs. At the same time attention needs pupose can government grants and transfers asto be paid to rngthening the mechasm available well as ESA funding be most effectively utilizedfor facilitating user cost-recovery particubrly the to promote the development of RWSS? What

capability of supply institutions to ensure that funds measures and policies might be recommended,generated by users ret in the form of direct particuarly in the allocation of ESA resources,benefits to the users. In this context there is a good to ensure that these funds can directly benefit thecase to be made for using a combination of user cost- poor on a sustainable basis? What criteria should

recovery mn es and subsidies in a mutually be used i allocating these funds to communities?

reinorcing oe

By helpaig to make investment more demnnd What measures can be taken to improve the

oriented md ensuring finawial sustainability and financial performance of government agencies,

roper utilao of facilities constructed, user cost public utilities or local organizations responsiblereovery, mm if only partial, can demonstrate higher for the provision of water and sanitation servicesrtns for de sctor and possibly induce more funds to the rural areas, specifically as regards ensuring

So the seckwr a rult, since it can help to avoid the that funds recovered from users return in theuqussiou St all irmment in the sector will only form of direct benefits to payees?

crete a botomes hole into which increasingsubsidies sd to be poured. Subsidies, in tum, if * What measures can be taken to streogthen the

uilizad to iqrove the institutional environment and performance of financial intermediaries both as

repultory aework in which cost-recovery schemes potential sources of credit for rural communitiesoperate, lo promote the potential benefits of improved and as a means of channelling centrally generated%ver id unittion facilities, and to providd financial resources to the commuoity level?

_chig iml to help users cover capital costs, have

POSMON PAPER 6

RETHINKING SECTOR MANAGEMENT

Prepared by

Lars RasmussonThe World Bank

RETHINKING SECTOR MANAGEMENT

SUMMARY

There is an increasing awareness of the potential and opportunities that exist fromachievements that have been made in the sector during the last Decade and the stage hasnow been reached when these can start to be translated into larger scale applications.However, this would require policy issues to be addressed an:d planning tools to be refinedfor the formulation and implementation of a framework for overall sector development. Inother words, fresh initiatives are needed in the establishment of a process for what can bestated as sector strategy planning, which also includes all aspects related to policydevelopment.

Requirements on how to improve and manage the Rural Water Supply and Sanitation(RWSS) sector vary from country to country depending on specific sector characteristics andstatus of development. Sector strategy planning provides a logical sequence of eventsleading to a coordinated and structured approach to overall sector.development within whichall sector investments and external support agencies' (ESAs') interventions are to take place.Sector strategy planning as a process or tool cannot be formulated as a blueprint'or modelbut has to be applied and tailor-made to each country situation.

Sector strategy planning is the responsibility of the government but in order to achievea consensus and a common understanding of the needs for sector: development, theinvolvement and assistance of non-governmental-organizations..(NGOs) -and ESAs-:areessential. That would.also generate commitment and -possibly longterim ,assurance oncontinued financing contributions. The implementationPof activities identified under'sectorstrategy planning wlll also suit.a sectorlending or program approach:withESA .financingof time-slices of an investment plan.-

Furthermore, an adaptive approach is 'more appr priate tian a traditiWo-a approachto provide flexibility in the.system with adjustments.being made asmoreowlege isgained. The adaptive approach also assumes that .regular evaluations, 'say annually, willtake place. These would not be limited to a specific: -ESA program' but would encompassthe overal activities of the sector.:

The overriding emphasis during-this Workshop is to provide a-basis for subsequentactivities to take place at the country level. In this context the two main issues to be.discussed and elaborated upon would refer to::::.

* problems with present sector management approaches

* why a more structured approach to sector management and sectorstrategy planning is needed and how such an approach at the countrylevel should be initiated

INTRODUCTION NEED FOR RETINKING IN SECTORMANAGEMENT AND STRATEGY PLANNING

The International Drinking Water and Sanitation During preceding sessions, the functioning of theDecade (IDWSSD) has focused attention on RWSS sector has been discussed in various contexts.unsatisfactory water supply and sanitation (WSS)services in less developed countries and identified Conuon shortcomings referring to sectorvarious methods to improve existing conditions. In management and strategy planning aspects have beenthis context specific issues have been discussed in observed to be:preceding plenary and group sessions which brieflyrefer to: * sector polices and procedures are not well

formulated and do not serve intended* the formulation and delivery of RWSS purposes

programs (including hygiene education)aiming at an optimization of benefits related * a fragmented sector structure complicatesto improved health and increased planning which is further aggravated throughproductivity inadequate coordination

* the marketing of appropriate technology as * lack of realistic objectives on servicedeveloped that would enable community coverage and of selection and priority criterialevel operation and maintenance and provide in investment planningaffordable costs

* erratic and cumberome flow of funds which* the emergence of institutional approaches complicates short term planning and makes

sufficiently advanced for application in larger long term planning virtually impossiblescale implementation of RWSS programs

Although in many countries sector master plans* the development of a local capacity in the and a variety of related studies have been prepared,

promotion of community mobilizadon thdir application or follow-up has, if taken place atall, been carried out in a very ad hoc manner. Even

* the recognition of the principles of cost if policy isues have been identified andrecovery and effective demand and of the mm ons made for policy changes, these haveneed for the development of systems and seldom been endorsed or approved by theprocedures for their application goverment, which also has prevented the preparation

of meaningf sector strategies. In this situationThere is an increasing awareness of the potential various ESAs and also NGOs active in the sector

and the opportunities that exist from achievements have often been left to execute their programs orthat have been made in the sector during the Decade, projects in an isolated and uncoordinated fashion.and the stage has now been reached when these can Cases have been reported where the sector authoritiesstart to be translated into larger scale applications. have not even been aware of the activities of ESAsHowever, this would require policy issues to be and NGOs.addressed and planning tools to be refined for theformulation and implementation of a framework for The RWSS sector is evolving with changes inoverall sector development. This could be achieved circumstances, attitudes and approaches that havethrough the introduction of a more structured taken place during the last Decade. These wouldapproach to country sector management and strategy mainly refer to or have implications on:planning including policy development which is dealtwith in this position paper.

APPROACHES TO* the gradual changing role of the government SECTOR STRATEGY PLANNING

from having been a pure provider to beingless of a provider and more of a promotor Based on efforts already made and experience

gained at the country level in the initiation,* the recognition of the need for a preparation and implementation of sector strategy

decentralization of the sector structure with planning, suggested guidelines have been preparedbasic responsibilities to be delegated to local for 'The Development of Sector Strategy and Actionlevels Plan' under the World Bank/United Nations

Development Programme (WB1UNDP) Decade* the need for changes to take place in staffing ProgramL These guidelines are proposed to be

and skill compositions which will require published and may provide some ideas toincreased emphasis on human resources governments in related aspects. Also as a suggestiondevelopment for sector strategy planning, 'objectives,' "policies*

and 'Wstrategies' have been listed in an annex to this* the need for mnoving from a control-oriented paper.

to an adaptive approach in programpreparation and implementation Within a framework of sector strategy planning,

the following major steps could be identified:* the introduction of the concept of effective (i) preparation of a position paper; (ii) preparation of

demand in investment prioritization and a sector strategy and action plan; anddetermination of service level and standard (iii) implementation of the action plan. These stepa

are further elaborated upon below.* the need for increased allocation of ESA

financing and also for increased efficiency The position paper should project a picture ofin funds utilization (individual schemes are present sector situation with identification of strengthsalso expected to be more expensive with an and weaknesses. It should review sector policies andaggravating water scarcity situation) legislation; the institutional structure and

intersectorial relationships; and organizational- the need to relate objectives in service franmworks and staffing compositions. It should also

extensions to the institutional and community review financid matters, investment planning andabsorptive capacity and to establish a procedures, approaches in project preparation andmehnism for progress monitoring implementation and operational and maintenanco

practices. The position paper should be sufficientlyThis should conclude that for the RWSS sector comPrehensive to enable a thorough analysis of the

the goveanments would not only have to take sctor tWing into account its future requirements.measures to correct the sector's present deficienciesbut also to adjust to the needs of the future. For that What can be called a sector strategy paper wouldpurpose, objectives will have to be st and policy thon outline a strategy for the development of theissues idetified and addressed and specific steps will sector. This could refer to:have to be taken for their implementation, which willhave to be regarded as a long-term perspective. For * a consolidation and a phased decentralizationthis to take place a more structured and adaptive of sector functionsapprc soctr managernent and strategy planning * policy decisions to be made on financial,than b wMmoaly boen used in the past would be institutional and staffing issuesrequire * requirements on legislative amendments

* investment prioritization

The strategy paper should be analytical and inputs. This implies that any sector planning cannotshould closely examine the issues linked to sector be undertaken as a centrally directed exercise, as ispolicy; it should enable the govemment to decide on often the case, but will have to consider initiativesthe direction for future sector development. The and inputs from local levels. This is a part of astrategy paper could be concluded by the action plan, decentralization approach. In order to achieve awhich summarizes the activities required for to consensus or a common understanding of the needsimplement the sector strategy. for sector development, it is also essential to involve

ESAs/NGOs and to get their assistance in the overallThe implementation of the action plan should be sector strategy plnning process. This would also

envisioned in a long-term perspective, and activities generate commitment and possibly long-termcovered could refer to: assurance on continued financing assistance. Any

sector development will have to be looked at in a* implementation of institutional changes long-tm perspective and any sustainable success can

only be assured if commitments are maintained and if* development and implementation of the implementation of established objectives is

organizational and managerial proposals consistently pursued and adequate funds are madeavailable. In this context it might be advisable,

* human resource development, taking into where they have not been retained, to reestablish theaccount future requirements for skills and National Action Committees that were constituted inspecializations many countries at the beginning of the Decade with

the major objective to monitor, coordinate and* improvement of systems and procedures in facilitate sector development.

accounting and financial management,investment planning, project preparation and The implementation of activities identified underimplementation, and in operation and sector strategy planning will suit a sector lending ormaintenance program approach with ESA financing of time-slices

of an investment plan. Any such program could then* preparation of demonstration or pilot projects be composed of a blend of technical assistance,

consultant services, training and extension or* preparation of program and project packages rehabilitation of RWSS facilities. Although a wealth

for ESAINGO financing of sector knowledge is available, the RWSS sectoroffers a wide range of disparities and will remain in

Tbe sector strategy planning thus provides a an evolutionary stage for years to come. This doeslogical sequence of events leading to a coordinated not make it feasible to follow a traditional' approachand structured approach to overall sector development in program preparation and implementation whenwithin which all sector investments and ESA/NGO expected events can readily be defined and predicted.interventions are to take place. This process would Instead the adaptive approach, as explained in Box 1,also solve a long-standing problem that has been would be more applicable-flexibility will be builtconfronted in aid or ESA/NGO coordination. It into the system with adjustments to be made as moreshould also be emphasized that an approach to sector knowledge is gained. This would also imply that thestrategy planning can hardly be developed as a pace of investments would be directly linked to theblueprint or a model but its to be regarded as a sector's absorptive capacity at the national, local andprocess to be adapted and tailor-made to each community levels.country's situation.

The adaptive approach also assumes that regularIMLEMENTATION OF progress evaluations will have to take place. These

SECTOR STRATEGY PLANNING would not be limited to a specific 'ESA program'but would encompass the overall implementation of

Sector stegy planning in any country is the activities identified under sector strategy planning.reponsibility of the govemrnment and the goverment These activities are interrelated and as such wouldalooe to implement as a 'building-up' process, taking also be executed concurrently or sequentially. Toino acout both 'top-down' and 'bottom-up' discuss and disseminate progress made, workshops

that take place on an annual basis could be used as a conclusion reached that benefits achieved were not atforum with participation of all those involved in the all in proportion to the costs. It is widely recognizedsector. This could also serve as a feasible tool for that there have been and still are serious problems ingovemments and ESAs alike for a rationalization of the proper utilization and deployment of technicala supervision process. Based on conclusions reached assistants. The reasons for this are many, but wouldduring such workshops, adjustments could then be mainly refer to the lack of integration of technicalmade in sector strategies and in ESA programs and assistance programs within an overall framework foragreements could be reached on specific remedial organizational and human resource development. Itmeasures to be undertaken. could also be concluded that technical assistance will

remain in demand. But through a sector strategyIn this context some viewpoints on technical planning process, the form of delivery mechanism

assistance should also be expressed. An evaluation could be better structured to match identifiedwas recently made of the impact of technical requirements.assistance in three African countries with the

THE ADAPTIVE VERSUS THIE CONTROL-ORIENTED APPROACH(Extract from Waterine White Elenbants by Ole Therkildsen)

No doubt the appeal of control-oriented approach is caused by its clear division of planning andimplementation activities into stages and its strong emphasis on detailed specification of future activities.If the plans are clear, surely the implementation must comply and the development activities can be controlled.

In contrast to the control-oriented approach, the adaptive one appears to be an argument for murkygenemlities. This is a misconception. Contrary to the control-oriented approach, the adaptive approachemphasizes:

* the formulation of long-term policies and strategies rather than long-term targets

* continuous planning linked to implementation, rather tha detailed pre-implementation planning

* the regular monitoring and formative evaluation, rather than periodic.evaluation, and

j continuous dialogue with intended beneficiaries to -adju.st activities to their needs, knowledge andcommitments, rather than provision of services

However, the adaptive approach to planning and implementation does not imply that detailed planningis not needed or that only small project/programs will do. The important point is that as projects andprograms grow in size, detailed planning and progr will increasingly take place. The crucial aspectis that the initial period calls for an adaptive approach, stating with small-scale activities which are thengradually expanded.

A good deal of optimism is required to initiate the changes proposed above and to carry them through.The results are strongly dependent on the political, etonomic and social context in which they are introduced.

The dilemma that must be confronted in such attempts is this: a faster immediate improvement of theRWSS situation may result if donors continue to use the control-oriented approach to planning andimplementation. But the village-level improvements resulting from this approach are not sustainable in thelong run. Much slower improvements might result at village level if the adaptive approach were used bydonors. But these improvements may be more sustainable in the long run because they are also the result oflocal commitments and capacity to plan and implement. The challenge is to find a trade-off between bucketsflWl of aid money and buckets fill of water.

It should also be mentioned that because of the immediate larger-scale program implementation. Thiscomplexity of the RWSS sector, if the basic would also infer that any program execution wouldprinciples of sustainability and replicability are to be have to commence on a minor scale-which couldadhered to there would be limited scope for any even be considered as a demonstration phase-and

only gradually gain momentum in pace with actual * The CMte d'Ivoire case is more dirctlysector strengthening. This may very well imply that conn with the plnning required for thea temporary stagnation in physical works output will transfer of responsibilities for handpumphave to be accepted in order to gain longer-tenn water supplies from SODECI to the Ivorianbenefits relating to the achievement of sustainable Water Directorate.operation and maintenance of facilities being built.

The following comments refer to the Uganda andEXPERIENCE FROM Tanznia cases only:

SECTOR STRATEGY PLANNINGThe concept of and the need for a

Actual cases illustrating different approaches and comprehensive approach to sector strategyexperiences in sector strategy planning are shown in planning were readily accepted by theBoxes 2 to 6, which refer to Uganda, Tanzania, govenument and the ESAs.Rwanda, Swaziland and CMte d'lvoire. The maincomments can be sumnmarized as follows: * A firm leadership is required from the

govemment to manage the sector straegy* The Uganda and Tanzania cases, compared planning process and to coordinate the

to the others of a more recent date, have involvement and contribution of variousmore or less followed the approach outlined ESAs.in this paper, but have been concerned withboth urban and rural areas. * The problems to be expected in achieving a

consensus among all those involved should* The Rwanda and Swaziland cases, whicb are not be undeestimated: this is a prerequisite

confined to rural water supply (RWS), for any sector development to take place.describe a more evolutionary developmentwhich has taken place over a longer time * So far no Specific experience seems to existperiod. in the implementation of an action pln'

using the adaptive approch.

UGANDA: -AP OACHTOQSETOR DE O .. :-:::

Although it si evoving t Uga a it. .:t p-a cud.-:possibly be rpicaed in other cowirioL In Ugad, the or anirztiou is a n withe .uloflthe sector activities undatak yt M't of Mias ri tits NationlWater and Sewera ooai (NWSt ) and -{theate Devel tment ---.:.SC r sbl fo tseve or Uran aeas: i snible f r a a- as.: At the miiteril level, iinit has been sished o conati the ector ,:-

involved' atwnearly tage ~i upotgthMMWD: Wnprprig

* - pow :-on paper.* a ectorstratey and aon pla.:* a sanitato eCtior -:strate paper

an assessme_t of borehole driig capacityin: the c xt of rura wae sw ly:-: --

* organizational and mapwrdevilopetsuy fr D* -: -terms of re'ference f jr son

ecainfor urban fringe areas mad frrrlS9Wh~tr:; . -. f ~~> -t ~~ * --¢ -: :-..: :.......... A i

k U@. ......> Sswith the em oft g it coe al :i T thi t a

wash apisedt in tu 1~vn ber18 ovein hesve qo toa -whi.ean rba proec- wthe app'of....

w adaiscompo nent,iachedial aprislin y

colpobents as identifor ied.ha ieorid f-or the stigtha9in of i.s a lso evib the

etniosupplein tauyiuunli bo reprotidedbyoR: herESA,s.h hoavr, iould notbe esabised tol coordthatetheiwpemsttioes of the IAprojraewts anual bwo shopld to fae:a- majorins o assess thges made

ithe oeallction p~ th inA scotor u don pmshoul -lm be -:sdreupe tr phs for susqu- -- onge-r-Iter involvemustht M fcor urban.i i8JUStalitt proges wib evaluaed.c aisused durbg wotia.p

with ESsubeu alicotoistulng-stcrhm n b to onyin prOgrlms and iprovects RWSS eich mles thel reappain euiof

willrbe: apoitd fiom NV fotgi of etrdvlpetcodntinnti loevsgdtaits overall e-forts in sector devel- . . .

Ithfis o uhtsc lnigutaniiilpaeadlshr ommmnt byo

and Asalik toitslng-u.ter mlmnain n rors nipoe WSsrvcswl eaneui

Inuce abtrcedfr...douenato

133~~~~~~~~~~.

TANZANIA: APPROACI TO TOS O.ME..

In Tanzna ESAI,NGO 'suxpport to theuban and rural 'W5SS sectorha eizb0en onstaningSigificun..-.;invesmshaebr mad -in WSS facilities fbut toddpm to a dqatdptti:on and maintencff g ,, _ 4, , [w~~~~~~~~~~~~~~sanin. I ca

UndervtheDecadepr.m.nd.UNDPfinancing, t.icalsitan.wasa e (f May 198 to the Ministry of Water (MOW) fo athe yar Vperiod to assist in the overal codinton of WSS secctor ;development. dSpec-ific fnt wer idetife as:

* preparation ;o fapost.on pap outl.ning present sector .i. .t ..tio.

~~~~~~~~~~~~~~~~~~~~~~~~~~~., ...... .... . . .. ............ ., X - :-x

*d' preputo" fasetrsrtg and action plan :SAwasintegrting th ~":wAlshaittt. racometions?ob ae suinto a wde in2sector iedevelopntsraneo

' im m a of vitii6 ud th aciolan:

bev fornt rimcans wem wren t wf h 00.wii .: 10

reoclhe difetage A h approachebs.meying.cohi:tb ypaorciciptoi md :hebav oe. PXse!t e:

For tbe imple men atfon pof theo ction pana OI.isaoti n to te evious

cnutnseveaadwtaiing. h proric omplet atovte be ing.or< to bei unetae unde o--ther:::;- ; ;-f::::0

Sourc: abstrced from WB documenaion : 1. 3

f (Saw~~~13

RWANDA: SECTORMDEVELOAENT PAING

-ectroga' a arastata _agency respon`bIe": f urbanwatersuppy w f -rmly sorespRWS but its activities in rural areas were inpractice very limited. Many of 292 existing RWIS. syliefwms,wme -

built by seveal NGOs and operation was entrusted to oe of ,he Association' neao a.e ,doD6veloppement Rural (AIMR). Funds were alliocaed by the Govenmeit to AIDR for opertion with- no

financial participation from the ral populdaion. Over the yea, funds allocated were not incread despite

an increas in the number of failities entrs to them withte tesult that AIDR eventually weintbankpt.

In 1981, under the initiative of IDWSSD, io Water Supply ad Sanitaion Co (CNEA

was crastd whose role was to advise tbe Gorent on almatters rling to wate:'ad'mitati,

particularly on the organization of the sector and"t' planningi and oof: ector activities. tS achievemet has been to inform the Governent- of iecto needs ai t and -to- diff

altematives for the reorgaization of the sector.-i 1984, a*uera Directorte Of Water (GDWwas cd

within what is now called Ministry of Public Works, E*ergy and Water, with tesponibility or. RWS. nowA

committee called the Interministerial Coordination Committee (CIC) was also esablished in 1984 to determine.sector policies and to oversee their implementatibon. At about the same time, an .IDA-financed institutional

study was launched. The CIC reviewed the institutonal study and approved its recommendations.-:

Until the creation of GDW, the lack of RWS. institUtions -and he abnce of fi resour

prevented the upgrading of RWS facilities and resulted in poor operation and maintenanc and deterioration'

of the facilities. The role of GDW was :to takte ver the-sector and to jimpIment:the: new instittional,

legislative and cost recvey policies ecommended by the_institutional study. Te ns deso were

taken by Government Council in November 198S.' Te pe w set or - a ne stor

development strategy. It was decided,inacc with the'recom dons-of the in l study, to

give the communes fu t esonsl r tI RWS item i, of

associations. Beneficiaries od cover the full cosit of opeaton and mintenance andrenew of filities.

Financing for investmts would btaind from a OR to baspeciaof the existing Communal Deel opmet Fund. "Ecou'ragedby the proposed institutionallegislat'ive and cost

recovery reforms for the sctor, a RWS': projec wa's, and: s ' ow b e d wth th ''i

financing of several ESAs to exted .and particul to implement

ctr reforms. .... .. .....: - - -:-..-- : - - -: : - . .: : - . . .. . . -..:.

To date, the folowing has been ---e ......

* The National Fund or' RWS was ta e s a Communal :Development Fund, and the .rules fo ~eaio ad mangment of thi find were adote n

~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.. . -. -. - :--::-:. --. -.--:--::..1988.

* A Decree was.passed in 1987fr te r in of rhe lirectorate of Water, enabling it to

better respond to its r oobiliti,ricuta ibe strengthening of its tecnical staff

through recruitment andintensive tra.'

* A Decree was also passed in 1987 for the creation of intercormunal associations.

* A draft model contract bas recently been prepa"ed which would define the obligations of the

users and ensure their participation in cost recovery measues.

* NGOs are being invited to assist the rual population and the communes, thus involving the

population in the finacial and technical manuagemt of their water supply systems.

* A study is being caried out for the ehabilitation of existing RWS systems.

Th1an to the sector planming process initially established and the subsequent adjustments made to it,

Rwn's RWS sector has been able to lay a solid foundation for its future development.

Sow= abstacted from WB documentation

t i C:: ; .tt 0 f : s t: :l ::: n :: l i: : 0:: .: .:~~~~~~~~~~~~~~~~~~~~~~~~~~. . .. .. .. .. .. .. . .. ..

;: :~JLND SETO :STRTG AN :CIN~A

proec.- m.n th 170..Th taTblioshment of the urlWt Spply Bosr kSB) in 1975 bean p-e-ofS nsttialdelpettthponwheth WDstfe tilybt Raned Swati, "F.ner

pmoethe cosrcino rneo tm

...X0 offst f~~~~~. . ... ...0

From. -.- eale fou - poetlang, -.- iuias -eeomn -a enbe th:: i-'0 E:00fof.i00...w;w.'~~~~~~~~~~~~~~~~~~~~~~~~~~~..............'-... j:

stratey fo Noeda analysis of med. and: caa ityb mal okn rus novn tf rmtef:angof interesed publicUbodiesj andhcsultatiwit pr i d r ntav r

meein suted :0ina:naioa seia whc : ue two ke dcments, icunga staemntof naional:-.Of ieA d "fiod, ,m 1986. to 1939'

Sectr sratgie de inedin h em n docmets thcu'AM

S 0::f-;-0it000~~~~~~~~~~. .0...-.....'..-..-''" . .:.'.''.:'.". .''- both.d hea.*a8 commit8 d0c== =..

besr co Co mmunit and sur m pte i :on,tro Wtero e s a nd antioConauniies, offi owncers:hip,hboa

Sore Adbc ict roW .established design :: a . 0eimutk st:a-: da:r: d by al; imp

. 4:i. -, :.::E :;t iLE -S....... .................... .:X' .- 0 :0: :;:............. :' :

Th. ke.la.n. c...a..useunly..nmiedb teladn.the de Aildato lnhsbe opee o h eid18 o19.Sbeunty h oema

Sture abstrated4efro B oumnato

bn revisedits *I of,k.,Po 136

., ',,,~~.r S'bI' ' "M''''i' C6tedlv,Oi6 mt of:' whc OWereo ... .MA ,ec.s ,o ,n.. ,pera,.on: maintenance

-We a ":PRO RWS, " :.w'., nX.

.~~~b.:..a : e A" a-:.Aifficutt6ve gie j&jj f wg -b

. wr'> ~. .'...%,,Pe V'9''it..''.' ''s"o 'pmlo t.,

-VTOOM Wu OW~anpu an

-*m i'tnion.of- l and in i *eavo the .W D~~~~~~~~ais ti6m v t :o;f*,::: Opp .8 . ...................... .....

R-while diectoib- 111e1wic bad :of pro tovyoh ewaterl-ipl Oerations-...

. of ^- RWi* ~' '08 'UIE eved1holmdo '

~~~~~~~~~~~~~~~~~~~~~~~~~~~4. o- ' po . 'w.

-np* 1n in acar reducingte o b nrustingte wili.yt th, vilg;ad(i u

in usata mrvmn OD t~~he moat vuneabehadpip ars

diffict cet iv tfuf VA ot i '......the full involvemntd of the villagers. The -pro .:ss was slow a:d .o.. confusion wa: reated whethe ian. :::.-:

. ^ '" :'of :--g--'*~~~t .................. -'.-............... ...-.--- -...-.;

Waterirectorateried th assstaceof ., .o ......... operatonal many h p ...a..possible.

whiethbe resosbilihtyd for mainteaceo rra6al'' wien oit c ^Qaus stl ofciyentrusted to y S pEip Tedeto

gof150anpupl sJ Eoamere throuaghou odto otler diocires to iaersin.iL gshaoDmow Cofie t ofs-at thevaidit o f oothe d ine etod that bad baeen apple .nte~uTi~o prto

wlbei wenut oftegnal-rose i beydteplo roet intial foutse4,000t090 Govperin ,0 ilae- 0prent ~ hreof ndtioypns ofaRW ec6tr tdyIvoirried houtb tho-~ prioec wteamareed wlto bloa tho tOWr1 ainsfer8of ad ua water points.t villaetSis compnt wifflWbl rostooidnte JS iallo Pocr USS2 por 17, L9tan.

The general{h -fruf ReWa srinco#sd will bnue achieveSd in191.Te fOlOing8 fore* waoe bend i

* a ftcinzatios od .11 v"tyillaevtoatheo tbo itransfe lopdeation,rnsteialzof throug factilitis, whc ad

dwateroint cnd. childr.n tolmbscl ato shallow wtell cn spditil wlesd. adcngtvoECII

* identi fcatonin triingr of tbo 1 ,jflo wiheof: the pooplest repairs

* identifaoadtnn f (flmcnscrnyale rarga.mo3sIDaZOIDiIE tc)(or,te~utem i)adurp. n rvso ft them of appropriate

pirokn trug radum epi

* rhabiritatio'n of SM,O0iadup(faoa 01,0) ctully aprxmtely 3,500 handpumps willMo be tehabilitated forvrosraon:i et vilg, URN. dpumps war replaced by piped water

supplyssenism vi'llages Moved to othrloaios certain villagers have no motivation to maintaiunthe pumps at their Own cost;, disppearance of, the ground wate table

The resut of the general tranfer will be theat bout 4,000,000 people in 8,000 villages-or 40 percentof the populton of M6e d'lvoire--will have acces to safe water and will be aLble to secure the maintenanceof nural wate points. 'This project component WHil Ost appozmatey US$8 million or US$2 per inhabitant~

Moreover, the restoration of RWS services Owil induce substantial time savings for women and girlsin feching wate and Will greatly alleviate their burden. The deterioration of ewisting facilities, which hascompelle women and children to turn back to sudace wate and traditional welb, has had a negative social,health and onomic impact, particuary in the Northemrnrgions, which are the poorest in C8me d'lvoim.

CONCLUSIONS to take place at the country level. In this context,the two mn issues to be discussed and claborated

It could be concluded that: upon refer to:

* Tee is a need for a fresh initiatives in sector * problems with present setor managementmanagement and strateg planning and for the approachesestablishment of a procems for regular evaluationof chievements made. * why a more stuctured approach to sector

management and sector strategy planning is* Sector strategy planning is a govermnent needed and how such an approch can be

responsibility but it is essential that it is initiated t the coumtry levelundertaken as ajoint effort among those involvedin the sector. Some more specific 'sb-issues' could be formulated

as follows:* All ESA/NGO interventions in the sector should

form a part of a sector statogy planning process. What actions should be taken by theGovanment for iniiating, managing and

* For sector development planning to remain monitoring a sector strategy planningsusined, long-term commtments are required prooe?from governments and ESAs/NGOs.

- What particular assistance can be provided- The adaptive approach should be applied in by ESAs/NGOs (including RWSGs) in sector

program fomulation and implementation, strategy planning?enabling adjustments to be made according tochanging situations. * What are the approaches in the preparation

of adaptive programs' for ESA financig* Country sector strategy planning would also for sector development and investments?

enable ESAsINGOs to formulate their ownstratgies for potential long-tern contributions In this context and as a conclusion, reference isto the sector. also made to the statement published during the

Collabotive Council meeting in Sophia Antipolis,The overriding emphasis during this Workshop Fmnce (November 28-Docember 1, 1989) as shown

should be to provide a basis for subsequent activities in Box 7.

--COLN-Y LEVEL: C E IN WATER SUPWY ANS

- -egaes from 1S developing cntreand 5 SA attedin a tStIg -of the -S olbrtvCoumcil in Sophia Antipolis, Frace,. from November 28tODecember .1,: 1989, gaveahigh prioityt..oseding this tatement on the tcome of their deliberations to devlo*ping coutry gove and l

'1 . 'Revitalied ampagns to expand the povision. o?f susanabb ,W 'WS seces t6o i need. -.should be a myor component of strategies to protect and enhance the:eavironmo and iove the.:

he hath and we--being of all the word's popuation in th.e ,ooming Dea.-.- ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.. :--- -: ... -: .. -.....i

2. The pairlel goals of reversing environmental degadation.and combaning growing heilth hes areM-firmly linked with pgress in providing.-safe watertad adequt sanitation. The vital integratedaproach to all development calls for innovative collaborative stnctues amwg developing. countryagencies, and WSS agencies are tking the lead in promoting such collaboration at the country-level.The exteal support community is committed to support these iitiatives by helpmigwith the neainstitutional development, providing long-term technical and financia assistance, and adoptiig commonstategic approaches to opimize the use of evailable r .

3. Country-leve cooperation among t natioaaiiand loca organizations sand ESs is essetial,to maximize the us of limited financial, huan -and latural rources, to avoid duplication* of"effontsand to achieve prjc .ustainai .ity.

4. We stres the importance of n aIn d op. a adcoonrdintings .6iti wi thoifamwr fs Each frmwotk needs to- iclude& o :policies, prioities and plan,ad shd dclearly di the roles.of g n , mes. ESAs

and NOOs.pans Mar

5. ESA are prepare- 'o'assist g''emnwin d a pg 'ramwo, ifr . should.e:nsur that pojects thyst pr"gram r o by them

6. ESAs must. cooperate among t the mselves i ingo yinitiatives and shou.li.d.ent,iways ofachieVing thisin ec'h deve ' o c'' tr.

. : - -- -;-, W .10. . -. ,0- ; : : i - .. - . .. . . . .......... . .

7. We emphasize.the:importa.n of iformna .e xchaei, monitoring, ada managemant :tining, in

8. Country-level cooperation may be diffict m-consuming and costly to achieve in the short term,but is essential for long-term sustainability.

9. Country-level cooperation will require flexibility and pragmatism on a country-by-country basis.

10. We are convinced that the goal of achieving sustainable WSS services for the needy will be greatlya_sted by tedoubled efforts in cntry-ev coetion.

ANNEX: Sector Stratqgy Planning, Suggested List of Objectives, Polides and Strategies

The objectives are defined as: * Cost Rcoveoy which would provide initiulyfrom users' fees as a minimum fimds sufficient

*R l Development. RWSS must, either as part for operaion and maintenance and a portion ofof an integrated or as a separte project, constuction cost, in ind or cash, commensatetcontribute to increased well-being of the ral

population and to mproved environm . witht the economsc studs of fthe wmmunity withpopulations. and to improved the long term goal of full recovery.condtibons.

o Improvement of Human Productivity. RWSS * Resowce Allocation from government andcan reduce tirm required to obtain water. The external sources which reflects in amount andtime saved can be productively used if the right credit conditions the communities' financialopportunities are created concurrently. capcity and the government's development

objectives. Justification and amount of grantsH ealth Improventent. RWSS combixked with wW eidctdhealth education contributes to general health wold be idicatedimprovement and can eliminate specific health Isituional and Human Resource Developmnthazards, such as guinea worm infestation. providing for adequate autonomy, continuity,

* Long Taun Sustaiability. Whatever the financial and human resources to support targetbenefits to be derived from RWSS investments, communities.they must be sustanable for the long term.

* tCoordination of efforts at the national(interministerial) and regionalldistrict levels, and

* provision of basic services to the greatest with the private sector and ESAs.number of people prior to improving servicestandards to the few * Privatization of RWSS activities to increase

= provision of waterfor limited garnig and effectiveness and reduce costs, if necessary byan"imal husbandry providing incentives.

- increasing efficiency of RWSS investments Specific stategies to be followed will depend on

encouragement of pirivate involvement in t objectives to be achieved, but could in general be:

sector * Initial Investments in progrm and project

The policies to be followed would provide for development should be for health education,communications and demonstration facilities to

* Commnunity Management of RWSS to assure long stnfledemand/verifyneed-amarketingeffort.term susinability. The community through an .Whimgnes and Ability to Pay. Project priorityappropriate mechanism (committees, should be based on demand (need) and oncooperatives, associations), would asumeodo ebao ndrad ne)adoresponsibilit for selsction, implementation n willignes and ability to pay. Once prospectiveoperation of facilities, useds understand benefits, they are usually

willing to pay and able to finance at least a* Support Sruure to assist community with tasks portion of the costs themselves.

it cannot handle alone. The policy wouldprovide for deconcentration of existing * A Support Sructure to serve the user withcentalized structures and provide a role for the technical assistance, credit and spare parts duringprivate sector including NOos. The policy and after project implementation should be inwould also define the participation of ESAs. existence or established as part of project

* Program and Project Justification on the basis prepation activities.of specific measuble improvements of * Credit and Costs Recovery. Mechanisms needproductivity and health consistent with overall to be established to provide the user aninveastment priorities of rural development opportunity to borTow and repay funds.programs. Willingness to pay reflects not only

understanding and income but also the ability to

borrow and the convenience of repaying (e.g., * Legal Framework. Although the community ispatterned to reflect income fluctuation; charging usually legally responsible to providerural cooperatives to collect payments prior to infrastructure services, it often does not have theprofit distribution). Means such as revolving legal authority to contract for outside assistance.funds should be considered to provide Natiotnl authorities need to pass necessaryconventional credit and repayment facilities. regulations as appropriate.National, regional or community revolving funds * 7aining of local, district and national staff-could be financed with ESA and government should be mnaged as part of a national WSS(central, provincial, regional) contribution and should a na t ofnational WSSrnanaged by banks, coopemtivesand/or progrm. A community by community approachmanaged~~~ ~ bybns,coeaivsado would not be efficient, and technical assistancecommunities. The Funds would extend credit to wull have to be provided by the sector in anyand collect repayment from users. Repaynents eventwould be used to provide credit to additional event.users (community or individuals). Progress in * Coordination. The WSS Sector in manyextension of service would be proportional to the countries is fragmented, with many independenteffectiveness of cost recovery. Lenders could or semi-indepeideint authorities. Frequently,make future assistance proportional to the RWSS responsibility is assigned to a ministryeffectiveness of cost recovery and the period of different from the one responsible for UWSS.credit. Appropriate procedures for financing and Whether separated or joint, procedures must bemanagement of these funds would have to be established to facilitate the provision of technicaldeveloped. The funds would receive loans, assistance from UWSS to RWSS because the staffcredits, grants and cross-subsidies for onlending resources and expertise usually reside in theto users. Service fees could be established to former. Specific tasks, such as technical trainingreflect administrative costs, user economic status for the entire sector, could therefore be assignedand government development objective. to UWSS and urban authorities could provide

tcnical support to mral comnmunties in their* Privatization. To encourage private a uppor tual com i intr

.. .. > :~~regons, under mutually satisfactory contracts.entrepreneurs to enter the field, credits for agencies may also be able to provide TfA

equipment purchas (or leasing by govemment) t urban authorities, for example, in communityor other incentives and training opportunities participation activities in urban fringe areas,would have to be provided. A mechanic- ground water hydrology and abstraction, etc.contractor could provide major maintenanced Other activities need to be coordnated with otherrepair services to a village caretaker under a ministries (H*lth, Agriulture, Public Works,contractual arrangement (possibly guaranteed by de.) and other ageies. Coordinaton is alsogovernment) more effectively than a government with ministries of finance, economicdistrict office (proximity, no overhead, etc.).Manufacturers should be encouraged with plming oganizations and ESAs. A nationaltramining, credit and marketing assistance to enter coorinatig body is often the most effectivethe RWSS equipment market. Shop-keepers mshould be encouraged to stock spaer part * Technolo8y Choice has a major impact on costthrough elimination of govemment monopoly and thus on cost recovery effectiveness. Theand purchase credits. closer the technology matches the users ability

* Community Managenent should be implemented to pay, the quicker the repayment, the fasterusing agents skilled in training and supporting expansion of services. To ensure that theusing aommenits fro appropriate govemnment greatest number of users benefit from at least

agencies or NOOs or a combination of the two. basic services, credit assistance should be limitedFor example, government could provide general to basic needs service facilities. Costs associatedguidance with NgOv providing trining and with increased convenience should be funded byimplementation services under contract with the the user himself without outside assistance.local community.

DISCUSSION OF WORKING GROUP REPORTS

The final plenary session of the Workshop was other sectors. He held the view that fincingheld on the afternoon of the third day, when the main agencies actually chase developing countries andbusiness was to receive reports from the five Working direct them towards certain sectors while they mayGroups. Each of the rspporteurs highlighted the key have difficulties in other sectors. He believed thatpoints of their respective group's report. These the government should take the responsibility ofcomments are not repeated here, but the reports of the deciding what is the priority and then the finncingfive Working Groups are printed in Annex A.1-6. agency should appraise the project and find out

whether the available studies are adequate or not. IfFollowing the group presentations, one of the projects are not adequate then the Kuwait Fund may

group chairmen drew attention to an item highlighted provide technical assistance to carry out a feasibilityby his group. He indicated that there is a tendency to study.define levels and call it decentralization to the locallevels, when actually one is talking about govemnment He also statod that it has been mentioned thatstructures-civil servants-acting at the local level as perhaps if too much is left up to the government, itif it were the community. He noted that through the may tend to choose projects which are prestigious.presentations of the other groups it is clear that if you There have been cases where some governments havewant things to happen, it has to be at the grassroots preferred prestigious projects, but if this is the ca,level. The grassroots level can be the people the Kuwait Fund feels that a feasibility study willthemselves or it can be layers of government, of expose it. The Fund had several incidences where itconceptions of civil servants in different layers of the did have requests from high officials for certainhierarchy. He added that in his group there was projects, and then at a later stage it discovered thatsome criticism of donor agencies who begin by the projects actually had no great value. In thoseinitiating some demand, saying this or that needs to instances, the Kuwait Fund advised the governmentbe supported. He claimned that when there is a concerned to change its request and develop morechange of emphasis in the international community viable prqoects. He believed that the Fund's role iseverybody goes to it. When the international much more one of acting as confidant for thecommunity changes and says that it is now looking country than of taking an active part into emphasizing the decade on water and sanitation, directing their policies.the countries find that instead of continuing theprograms which were started on the previous global Mr. S. Rotival, UNDP/WHO Decadetopic, external support agencies (ESAs) start shifting Coordinator and Chairman of the ESA Collaborativeand say 'we cannot continue funding such programs Council rsponded to a question posed by one of thewhich were based on the other slogan; now we are group chairmen. He thought that it is fair to say thatfocussing our attention on another.' the water and sanitation sector, together with one or

two other development sectors-including tropicalIn response to this comment, one ESA forestry, agriculture research, and perhaps one or two

representative stated that in the Kuwait Fund for others (and this is an extremely positive factor)-isArabic Economic Development budgets are not among the few development sectors where there hasallocated for certain sectors. They leave it up to the been a strong and visible consultation by the ESAsgovernments concerned to choose the projects they supporting the development of the sector. Clearlywish the Fund to participate in financing. This showing their support for the developing countries'practice resulted in some rather peculiar situations. management of the sector, ESAs have met on four orWhile everybody was talking about raising money five occasions-initially in 1984, the developmentfor the water sctor, the Kuwait Fund discovered that assistance committee of the OECD in 1985,they were getting a lot of requests for roads; when Interlacken in 1987, in The Hague in the Netherlandseverybody was talking about promoting the in 1988 and most recently at Sophia Antipolis inparticipation of women, they got requests to fund France in 1989-expressly to try to determine how

(referring to other issues which were raised that purpose of subsequent meetings, including the oneafternoon) ESAs can harmonize their approach in that is currently taking place in Caracas for the Ltin

support of the developing countries. American and the Caribbean countries under thesponsorship of the United Nations Economic

He preferred to use the word harmonization or Commission for Latin America and the Caribbean-cooperation between ESAs rather than coordination, is for ESAs to work with developing countries, undercoordination being the prerogative of governments in country leadership, to define an accelerated strategydeveloping countries. He stated that it is important that can be implemented in the '90s. In the finalto have a harmonized approach (including a further analysis-as the last discussant said-it is clearly up tointegration of the sector towards primary health care, the developing countries' governments to determinehygiene, environmental considerations and water within their rules of development strategies, whatresource management with respect to sanitation), but their priorities are from a sector point of view. Heeven greater significance to his friends and colleagues assured the delegates that when it comes to ESAs, theis the issue of how support to developing countries support is in place for an accelerated program of fullcan be accelerated in the 1990s. He stated that there service coverage through the year 2000.is a very strong backing from ESAs with respect tomoving forward on an accelerated basis with support In response to the question of what happens next,to the developing countries in the '90s through the Mr. Doyen of the World Bank stated that beforeyear 2000. leaving the participants would receive typed copies of

the five Working Group reports plus the consolidatedThe very fact that African countries and ESAs synthesis of those five reports as an input to the

were meeting that day was a very clear indication of Conference Statement for New Delhi (the Workingboth the interest of the African countries in the sector Group Summary Report is reproduced on pages -and the interest of ESAs. The fact that in three of this volume). Secondly, he said that it wasmnonths time a similar meeting would be taking place intended to prepare a summary of proceedings whichin Manila under the sponsorship of the Asian will include the presentations which have been made,Development Bank was also a reflection of this. The the background papers and the background of thefact that in September of this year in New Delhi there group reports. The idea would be to give participantswould be a Global Consultation of all the developing a reference document which would be the record ofcountries from all the developing regions to define a the meeting for any further reference. He hoped thatstrategy for the '90s is yet another sign of support. this official record of the Workshop would beThe objective of the present meeting is for Africa to dissminated within the participants' own services andcarry a message to New Delhi-based upon the to training institutions or any agency which wouldparticipants' perception of the issues and based upon have use of the report, including ESAs. The thirdtheir priorities from a regional point of view-which step will be to complete the preparation of the sectorwill make a clear statement to govenmets and strategy brief which had been initiated and come toESAs. The ESAs also hope that this meeting would the point where the interaction of this Workshop wasresult in a very strong statement from Africa which really necessary. This document should be ready bycould be carried to the Global Consultation, 'Safe the end of the year and will be disseminated veryWater 2000,' which will be held in New Dehi in broadly through the service of the World Bank andSeptember of this year. The purpose of all these UNDP to each individual participant.events-thc purpose of the discussions of the pastthree days and during the next two days, and the The Chairman then called upon Mr. Doyen to

make his closing remarks, which follow.

CLOSING REMARKS

Mr. Jean DoyenChief, Infrastructure DivisionAfrica Technical Deprtment

The World Bank

The value and impact of our work will ultimately One of the central questions is how to establishhave to be measured in terms of advancement in the bridges between the informal and the formal sectors;availability and quality of water for rural populations for example, how to deal with mutual credit and withas well as in their improved health and hygiene. Our the legal staus of local communities. As originaltask was to establish a common ground for renewed appraches to these questions emerge, they should beefforts to support effective and sustainable water disseminated. This in i6self is one of the majorsupply and sanitation services to rual populations. raisons d'etre for regional cooperation in the sector.

I believe that this objective has been largely One of the surprises of the Workshop is the attentionachieved, thanks to your hard and serious work. You that is being paid to rural and pen-urban sanitation.have risen to the challenge; we at the World Bank, This is, of course, even more relevant for urbanand eventually the broad constituency of technicians, areas. Policymakers and planners will have to giveplanners and community leaders who hold sanitation and waste management its rightful place on

planer an comnt ledr wh hol Africa's environmental agena. It is the poor thatresponsibilities for rural water supply and amtation bear the brut of enviagnental degrtistion.(RWSS) will be enriched by your experience andyour advice. The Workshop has once again shown These ae only a few of the questions for whichthe value of well-structured cross-country exchanges. strengthened regional cooperation can mwak a

One aspect where further sharing of experience difference. I hope that the Conference planned forwill be extremely useful is the development and the next two days wili provide us with oppounitiesimplementation of appropriate technologies. The to reflect on the direction and organiztion of futureeffective dissemination of technology advances will regional cooperation, focusing on ways to srengthenbe an importnt determinant of the future rate of the role of African policynakers and pnctitioners inprogress of the sector. One aspect which might not stting the orientation of such coopration.have been stressed enough is the role smallentrepreneurs and mechanics specialized in RWSS Our Workshop has come to fruitful conclusions.would play in the promotion of the sector. We must thank the experts and the staff that labored

The. second aspect whee future, comparative for its prePaation. They will understand if I single

policy analysis and country exchanges would be out Mr. Alexander Rotival, who lent his faith to theimportant is in the planning and mangemnt of erting rad has since worked mdefotigably tosector reform and institutional changes. Te gater the resources tat made ths meetig possible.

from institutiona stru e bd oOur thanksc also go to each of you, the participants,from institutional structures based on centra plnnig for answerng the call and workcing hard. Speialand control to ones driven by response to local g g

thans are due to the chairmen and rapporteurs of theinitiatives will imply far-reaching changes. It will working groups. t am c nd mth rsp withe

nuw fr cenM govmment and arge xtenWworking grops. I am confident that I speak withraise for central governmlents and large external support agencies the issue of intemediation, . your voice in expressing our gratitude for our

bow to dtuctychairman and moderator, Mr. Chaufourmier, as wellow to dwstribute centrally provlded cesources runus, as Dr. Obeng, our attentive co-chairperson. My finalec hcl services, etc.) to local commuelties. and words of thanks go of course to the Government of

is another point on which further reflections and Cote t'Ivoire for its welcome, its support and itscro-country exchanges would be of high value. ptrfici f witon.The issue ases in other sectors; the underlyingquestion is the organization of local governments.

PART II

WATER SUPPLY AND SANITATION

SECTOR CONFERENCE

May 10-11, 1990

WATER SUPPLY AND SANrrATION SECTOR

CONFERENCE PROGRAM'

Thusday, May 10, 1990

Timo session Topic Speke*(s)

8:30 am 1 Opening Ceremony

* Welcome Address Mr. G. Avika, Vice President, ADB* Keynote Address Mr. F. Hoque, ECA Representative* Opening Speech Mr. Bamba Vamoussa, Minister of Public

Works, Transportation, Construction andUrbanism, C6te d'Ivoire

10:00 am 2 Experiencs and ApproahesAfnican Development Bank Mr. B. Hadjadj

* Collaborative Council Mr. A. Rotival* Kuwait Fund for Arab Mr. T.A. Dabbagh

Economic Development* Lesotho Mr. L. Pelepele* Union of African Water Suppliers Mr. M.F. Djerrari* Madagascar Mr. P. Rabenananbola* UNDP/World Bank Mr. David Grey* Gbana Mr. K.E. Dovlo* Morocco Mr. A. 1AhlouO Zair6 Mr. Tsbiongo

12:30 pm Lunch

2:00 pm 3a Introduction to Mr. A. Mengesha,Strategis for the 1990s Deputy Director, WISI, ADB

2:30 pm 3b Sectorwide Group Discussions:Strategy for the 1990s

4:00 pm Sectovwide Group Discussions:Strategy for the 1990s

8:00 pm Dinner/Reception (ADB)

'M. A. Meigeha, ADB, served as Chairman for the plenary sessions of the Conference.

Friday, May 10, 1990

Time Session Topic Speaker(s)

Grop Rapportm9:00 am 3c Pruseataon of FIndings 1 Mr. Lalou, Morocco

by the Working Groups 2 Mr. Abouki, CongoMr. Mangnoimgou, Congo

3 Mrs. Kabamba Bilonda, Zaire4 Mr. Balisi Khupe, Botswana5 Mr. Peter Sackey, Ghana

11:00 am 3c Discussions

12:30 pm Lunch

2:30 pm 4 Chairman's Assesmuent of Mr. A. Mengesha,Strtegis for the 199s Deputy Director, WISI, ADB

Prtathion ad Adoptionof Conference Statements

4:30 pm Clwo Cernmy Mr. T. Gedamu,Vice President, ADB

FROM THIOUGHT TO ACTION

Mr. G. Avika

Vice President, Region IAfrican Development Bank

Mr. President, Delegates, Ladies and Gentlemen: ones; some did not implement their plans orimplemented them too late; and too few understood

In the name of the President of the African the importnce of putting in place mechanisms forDevelopment Bank (ADB) Group, I have the pleasure coordinating the efforts of the Decade.of welcoming you for the second part of this regionalconsultation. The representatives of regional member The 1990s have begun in a recessionary climatestates, of non-govermmental organizations, and of bi- and mesu of economic readjustment are the orderand multi-lateral support agencies in the water supply of the day in many countries. It is easy to foreseeand sanitation (WSS) sector have worked together that the means at the disposal of the governments-over the last three days and have issued some nd donor agencies-to provide water and sanitationrecommendations on the development of the sector in at subsidized rates will be considerably diminished.rural areas. However, this should not be a reason for pesmism.

As your debate these last few days has shown, theDuring the two days of the Conference that experence accumulated during the Decade has

begins today, we propose to enlarge the dialogue provided rich lessons. Thus we note:somewhat. First of all, we wish to expand the realmof our considerations to include the sector as a whole, * appropriate technologies are emergingbecause as you inow, rany of the problems found inrural and urban areas are shared or linked. Thus, * various institutional models have beenbeyond the rurl world, we must look at the sector in successfully implemented in certain countriesits entirety and include in it pei-urmn and urbanareas, whether these be large cities or smaller urban * the notion of cost recovery is slowlycenters. indeed, aIthough the cities have benefited in replacing that of free servicethe past from a disproportionate attention vis-a-vis therral areas, we must acknwledge that with the * partners, wheher nthin each country or atContinent's population growth ad urban explosion, the level of international cooperation, haveWSS problems in urban areas will continue to acknowledged the mutual advantages of andomina Secondly, we want to express our hope improved coordination of their effortsthat by the close of the debate which begins today,and by drawing on the main lessons of the Decade In this vein, I would like to note that it is in thejust ended, we will be able to agree on the major interest of the institutions and sector professionals toaspects of a strategy for attaining sector objectives. assemble themselves in national associations and

associations at the level of the Continent in order toLet m acknowledge without indulgences that exchange expenences and communicate suggestions

despite the considerable efforts nmde by all the to the authorities. We are pleased to have among uspum iovolved in the development of the sector, the Union of African Water Suppliers, and I wouldthe goals of the Decade were not attained. Even if like to make an appeal for its reinforcement and itsocconlly reult were spectacular, we must admit expansion to the entire Continent.that sapply sarvices cannot generally be qualified aslstig or equitable. Demography, the rural exodus It is on this acute awareness of all the aspects ofnd dw oomoic crisis-sometimes amplified by the problem that we must focus in order to devise a

droupS-cblmy contributed to reducing the desired strategy to guide our actions during the next decade.icream in the rate of coverage-and these are factors The objectives of our efforts remain the same: to

tht we aboluty could not control. On the other supply appropriate and durable services to the greatestand, we ould have exercised more influence on number of people at the lowest possible cost. Each

contoable factor numeroUs countries did not country's goals and implementation schedule must bedevelop plm for the Decade or developed inadequate ristically established, and, more than previously,

the criteria of durability must receive tho greatest Without wanting to preempt the discussion whichattention. will begin this afternoon, allow me to emhasize one

point. Amog the actors involved-external supportAs is the cam with other donor agencies, ADB agencies nd nationl institutions-it is clearly the

intends to continue in its efforts in contributing to responsibility of each country to both map out thethe dvelopmt of WSS services, which are framework of and determine th national priorities forrecognzed as being basc human needs. Th needs the development of the ector. Thus each countryof the sctor will continue to grow and the allocation must designate a leader among its sector institutionsof resources to any given projects or progrms must and must give it the authority necessary for initiatingtherefore be subjected to precise criteria, defined in the coordination of sector development-within thelight of the lessons learned from past experiences. Administration as well as with donor agencies.To this end, ADB has developed a Sctor PolicyDocwmet on WSS which will be presented to you. In the course of discussions you will see that theThis Document reflects the aspects that ADB ideas which form the basis for our initiative are notconsiders paramount in the implementation of action in themselves new, for they are increasingly acceptedplas which should enable the sector objectives to be and are derived from experience. What is proposedfulfilled in a lasting way. is a process for implementing a concerted action by

the govermet for mobilizing all of the availableWe neod a strategy in order to implement this resources and all of the passive energies in order to

sectoral policy, and ADB submits its Strmtegy attain the,sector objectives.Doewnet for your consideration. We believe thatthe Strategy we ae proposing follows the lines of It is with these words that I wish you muchyour discussions of the last three days. success in the Conference.

OPENING REMARKS

Professor Adebayo Adedeji

United Nations Under-Secretary Genealand

Executive Secrety of Economic Commission for Africa(delivered on his behalf by Mr. F. Hoque)

Honorable Minister, Your Excellencies, Ladies andGentlemen: Nevertheless, the overall situation is far from

satisfactory when we look at the current statistics-atIt gives me much pleasure to sed you the end of the Decade-compared to what they were

compliments on the occasion of this important at its beginning. This is especially true for the ruralconference on African water supply and sanitation sector. For example, the percentage of rural(WSS). population provided with safe and adequate drinking

water in Africa has increased from 22 percent in 1981WSS services provide two of the most basic to only 26 percent in 1988, and it is expected to

needs of any society. Next only to the air we reach up to only 27 percent by the end of 1990. Inbreathe, water is perhaps the most important ndural the case of suitable sanitation facilities for the ruralelement for human survival on this planet. Yet this population in AfErica, the situation has actually gottenindispensable natural element can sometimes be worse. The percentage of rural population in Africanmankind's worst enemy. Too little or too much of developing countries with suitable sanitation facilitiesit can cause disasters for many communities in many has decreased from 20 percent in 1981 to 17 percentplaces. Contaminated water and water-borne diseass at the end of 1988, and it is likely to decreaseare known to have caused epidemics kiing hundreds further-to 16 percent-by the end of 1990.and thousands of people in many countries throughouthistory. Those statistics reveal that much remains to be

doae in these sectors, especially in the rural areas.In Africa, the water situation has always been They also testify to the importance and timeliness of

crucial. By and large, almost all African countries your conference which, I believe, will put particularhave problems providing safe and adequate drinking emphasis on the rural situation in setting- sectoral

water to 100 percent of their population. The policies and strategies for the 1990s.problem is more acute in the rural areas, where thepopulation is sattered over relatively large areas.In the case of suitable sanitation facilities, the Your Excellencies, Ladies and Gentlemen:situation is even more dismal, especially in the rualareas. The United Nations Economic Commission for

Africa (ECA) has been involved in assisting memberIt is true that during the International Drinking states in implementing their national activities within

Water Supply and Sanitation Decade (IDWSSD), the the framework of IDWSSD.African countries made some progress in this sector,espcially in the urban water supply sector. Betwoen * As early as August 1980, preparatory to the1981 and 1988, 40 million additional people in the beginning of the Decade activities, theurban areas of the member states have been provided Commission organized a regional meeting of thewith safe drinking water. During the same period, member states in order to identify problems and52 million additional urban dwellers wore provided to assess the sectoral needs. The member stateswith good sanitation facilities. In the rural areas, 87 participating at this meeting also providedmillion additional people have been provided with information on their national targets for theafe and adequate drinking water. However, the Decade in terms of WSS coverage, manpowernumber of additional people in the ural aes and training needs, investment and institutionalprovided with suitable sanitation facilities is much requirements.

* Then, in 1981 and 1982, the Commission fielded Your Excellencies, Ladies and Gentlemen:official missions to the Sudan, Tannia and theNiger and prepared case studies on the These are but some of the activities of ECAapproaches to the problems of rural water supply within the framework of IDWSSD, and I have takenin these countries, the liberty of noting them here only to indicate the

Commission's involvement in assisting member states* In 1984, the Commission undertook a study to in the implementation of Decade activities.

determine the rte of implementation of activitiesin various member states which would be I would like to inform this conference,required for them to achieve the targets they bad particularly the representatives of the member statesset for themselves previously. This study also present here, that the Commission remains committedpinpointed the vaious problems that the and stands ready to assist member countrycountries were facing during the early part of the governments in providing all of their population withDecade in implementing their national sectoral good quality water and uitable sanitation services, soactivities, basic and essential for decent hu-man survival.

* In 1986, ECA in collaboration with the UnitedNations Educatonal, Scientific and Cultural Ladies and Gentlemen:Organization (UNESCO), organized yet anotherregional meeting on socioeconomic and policy This conference, where experts from regionalaspects of water resources management in Africa, and non-regional countries, as well as those fromin which the training and research for water international organizations have gathered together,supply development in Africa was highlighted, has a very noble objective: to chart policies and

strategies for providing African populations-* In 1987, the Commission prepared a review on especially those in rural areas-with basic services

the progress in the implementation of the Mar that people in most developed countries take fordel Plata Acrion Plan, which emphasizd issues granted.like accelertion of WSS programs andcoordination of extemrl support in the sector. It is my sincere hope that the conference can

provide some practical and realistic recommendations,* In 1989, towards the end of the Decade, the which when implemented will make significant

Commission again prepared a detailed study on ovent in this sector in the coming decade andthe economic aspects of WSS in Africa, with beyond. I wish you all success in your conferenceparticula refereoce to rual aes. In the same deliberations. Thank you.year, the Commission also prepared acomprehensive report on the general watersituation in Africa, in which the Decade activitiesnd other relevant aspects were critically

snalyzed.

WELCOMING STATEMENT

His Excellency Bumba Vamoussa

Minister of Public Works, Transportation,Construction and Urbanism

C6te d'Ivoire

Your Excellencies Mr. Ambassadors, Mr. Vice By 1985, almost 112 cities and 71 large villagesPresident of the African Development Bank, Mr. had hydraulic installations for the production andRepresentative of the Economic Commission for distribution of drinking water, as weil as more thanAfrica, Honorable Representatives of International 9,000 wells and boreholes equipped with man-Institutions, Delegates, ladies and Gentlemen: powered pumps. This cornsponds to a coverage of

approximately 50 percent of the population.We have followed with great interest the

unfolding of the first phase of your high-level Finally, in 1990, at the end of the Intelaionalmeeting, during which you have caried out a Drinking Water Supply and Sanitation Decadethorough, deailed diagnosis of the results of the (IDWSSD), our country has 240 centers for thewater Decade decreed by the United Nations for the production of potable water, which supply 400 urbanperiod 1980 to 1990. and rural areas. To this figure we must add the

13,420 wells and boreholes which serve 8,200The strengths and waknesses you hve revealed villages. Approximately 95 million cubic mters of

clearly constitute a valuable base-a stting point for water is produced for 225,000 subscribers. In 1990,future actions-because they will help better identify the overall coverage has risen to neary 85 perent.the orientations best adapted to the needs of The ambition of Cote d'lvoirm is to further improvepopulations in nual Afica. However, as the Vice upon these results nd upon the quality of services inPresident mentioned, we must now enlare the drinking waer swpply so that by the end of thediscussion to include the urban areas as well. 1990s, drinking water wil be accessible to each

Ivoidien.By and large, the countries of our Continent have

laid out numerus projects both in urban and rural However, progress was less obvious inwater supply, intended to improve the well-being of saunttion, both in urban and rural areas. It isthose populations whose arms renmun the greatest estimated that only 50 percent of the population isresource for our countries where agriculture continues connected to a sewrage system in a city liketo be the driving force in the process of social and Abidjan. Only 25 to 30 percent of the urbaneconomic development, population in the rmainder of the country has access

to satisfactory sanitation.In this conjunction, C;te d'Ivoire has modesty

tried to implement nms aumed at achieving theobjectives defined by the United Nations Conference These reuts, encouraging in total, have benheld in Mar del Plata. possible thanks to the structure implemented in the

middle of the 1970s. Since this time, the approachAs early as 1973 to 1975, the Ivoirien followed in the water supply and sanitation (WSS)

Govemment established the first national program of sector was based on the principle of a financial self-man-powered water supply. At that time, there were equilibrium. According to this principle, the sectoronly 38 urban and semi-urban centers served with must finance itself, with the least possibledrinking water in the entire country, which, in intervention of the State budget in its investmnts.addition to the approximately 1,000 weUs in rual Another characteristic of the policy of theareas, accounted for an overall coverage of 25 percent Government of C6te d'lvoire is the deliberate choiceof the population. of an evening-out of the sale price for each of the

backe of water consumption. This involvs JsUtl@Sstblihng a unique price per cubic meter of water

mold throughout the country, repnleas of the In order to control the diversity of investmentproduction costs in the vanous production and sourcs and actions by extenal support agencies, itdistibution centers. would be advntageous to favor the creton of

management isutitutions for external credit and forOn the institutional level, two nationl funds cost recovery by clients.

wore created: a Nationl Fund for Hydraulics (NFMH)and a Nationl Fund for Saniation (NFS). They This ngoment would more efficientdywere merged in 1988 to become the National Fund stimulte the geneal economy of WSS sector.for Water (NFW), and are responsible for collcting Furthermore, the creation of an inter-ministelfinancial rsou from taxes on drinkdng water committee responsible for the technical and financialdistributed and a tax on drainage based on property as_nuurt of sector development programs would betax. NFW is also rsponsible for the debt servioe on an asset for a better adapted modulation of effortsloans for investments in man-powered hydraulics, between ral and urban zones.sanittion and dr pge.

MechanismsDetails of our country's new water policy will be

presented to you during the program of the Based on the experience of our country in villageConference. Devloped countries and external water supply, we noticed that it is highly desirable tofinancial institubns have contributed in a substantive adbere to a project implementation which can beway, sometimes even in a decisive manner, to all the broken down in the following stages:progress recorded for African countries. And, wetoke this opportunity to express to them our profound * the sensitization of populations on thegtitude and our enc gement. Regarding components and objectives of projectsIDWSSD, the record shows that the results arevaried. Despite the flattering results of our country * the designation by village communities ofwhich I have just stated, it seems to us basic that pOesons in charge of the project, responsiblenotable changes will contribute to make WSS sector to follow up On its implementation and toin Africa more dynamic. understand its mechanisms

This is why I would now like to shae with you * the implementation of the projectssome ideas which coultd help consolidate ourexperiences and correct the current weeknesses of our * training for maintenancevarious systems.

* maintenance and operation of the projectsGeneal Pblicy by the villagers themselves with their own

financingIt is important to keep populations in their

regions of origin by trying to improve On their living We believe that in this way project beneficiariesconditions, in which WSS serivces constitute a non- will feel more comnmitted to taking care of thenegligible vector on equal terms with housing and property placed at their disposal. We must teach ourbealth. To this end, the richest regions within each populations "how to fish, that is, how to becountry could support those less rich by a system of responsible for themselves.nationally averaged tariffs.

Technical Solutions * Sanitation by septic tanks or by coeupools is athird option.

In village water supply, even though pumps arean unavoidable step in the first phase of * Sanitation by sewer is the most comprehensiveimplementition, very soon thereafter (depending on system but requires rather heavy investments.the size of the population), it is more economical toput in place an intermediary water supply system withfountains supplied from a water tower. It goes without saying that given the current

means at the disposal of African countries,The concept of better-adapted pumping systemns investments in sanitation will be governed by a

with simplified maintenance represents a challenge concern for an imnproved standard of living at thewhich our technicians and experts will try to meet. least possible cost.

Regarding sanitation, four techniques deserve to Thus, in nual areas, priority must be givenbe used according to the needs of the population and firstly to hygiene, by activities of snsitization suchthe available means of investment: as the collection of household waste, and secondly to

the construction of improved latrines under the* For individual sanitation, improved latrines in guidance and supervision of Government technicians.

which the nuisances of traditional latrines areeliminated are appropriate.

And so this Conference, which brings together* Sanitation by oxidation ponds is suitable for high-level technicians, is asked to respond to this

smal communities (schools, hospitals, and hotel, very delicate question: 'How can water be efficientlyhousing and industrial complexes, etc.). I nmaged in its entire cycle, both in the city and inbelieve that this sanitation system could be the the country?' The Document submitted by ADB forsystem of the future, because the basic your consideration is a very valuable contribution toinvestnent and operation costs are in many the debate.respects lower than those of other systens. Thisimplies a redefinition of the organiation of theinfrastructure in order to chieve a more In wishing you much ucess in your work, Iharmonious integration in the urban fabric, both doclar open the Conference on the stratogy innow and in the future. African WSS for the 1990s.

ADB's WATER SECTOR POLICY DOCUMENTMr. Bachir Hadjadji

Division Chief, CEPRAfrican Development Bank

Delegates, Ladies and Gentlemen: Without wishing to discuss this document indetail, I would like to present some of its basic

During the last 10 years, the African characteristics. As far as ADB is concerned, theDevelopment Bank (ADB) made 77 loans for an WSS sector contributes to economic and socialamount of approximately US$980 million which development by improving living standards andrepresents 7 percent of the ADB portfolio. The total public heath and by promoting communitycost of the financed projects is US$1.66 billion; thus, organization. For ADB, the sector includes water,on the average, ADB contributed 56 percent of the sanitation, sewerage, solid waste removal as well astotal cost of these projects. rainwater drainage. All of these are linked in as

much as whenever running water is introduced, oneA detailed examination of loan operations has to take care of its evacuation.

indicates that ADB has favored urban areas to agreater extent than rural areas, for the latter received The document acknowledges the diversity ofonly 11 percent of the total amount of the loans. In situations in various zones-rural and peri-urban,urban areas, investments for water supply have been tropical and sahelian, and those with ground waterfavored more than those for sanitation, with the latter or surface water sources. It also acknowledges thatreceiving only 15 percent of the total amount of the there exist diversified technologies. The documentloans. While ADB financed both water supply favors low-cost technologies which provide a betterprojects and sewerage projects, it rarely mixed them. means to attain the objective of providing service to

the maximum of people.ADB intervened equally in capital cities and in

secondary cities. This was probably due to the The document encourages the setting of realisticpressure exerted by the urbanization trend and the goals regarding the provision of new services. Itlack of investments in secondary cities. During the presents two possible approaches: (i) to invest inlast 20 years of activities in the water supply and order to increase the availability of water, and (ii) tosanitation (WSS) sector, ADB has acquired an manage demand in such a way as to satisfy the mostexpertise from discussing sector issues with regional urgent needs. Th poorest segments of the populationmembers. It has also acquired experience in cannot afford the costs resulting from providing watercollaborating with other multi- and bi-lateral sector supply services, and rather than imposing on them ainstitutions. costly solution (which is not appropriate given their

lack of financial resources), it would be wise toIn 1987 and 1988, ADB developed a document create the necessary framework to enable the

on WSS sector policy which it intends to promote. communities themselves to decide what they want.After two years of internal discussion, this document Their decisions will therefore be based on what theywas been endorsed by the Bank's executive board. can afford according to the level, the quantity and theThe policy document identifies three objectives. comfort of technology they desire--whether for waterFirst, in order to facilitate' the decision-making or sanitation-all the while respecting theirprocess within ADB, it requests that a framework to sociocultural environment.sudy programs and projects be submitted to ADBfor financing. Next, it proposes to offer a platform In per-urban and urban areas, the role of womento establish a dialogue with member states on the is of primary concem; the ADB policy documentdesired composition of the projects ADB would like recommends that education, hygiene and communityto finance. Finally, it strives to coordinate the organization programs be an integral part of WSSactivities of ADB with other financial support projects in urban and peri-urban areas. Becauseagencies working in the sector. needs are vitally important and resources are limited,

criteria for selection must be defined and priorities ADB gives priority to investments formust be established. ADB is convinced that without rehabilitation over investments for new projects. Ita sector strategy, progrums will only consist of a list also requires from the recipients of loans forof unlinked projects which lack the estimates of the rehabilitation an analysis of the reasons for thenecessary human, financial and institutional degrdation of the installation or the downfall of theresources. Without such a strategy, resource institution in order to assure that the necessarymobilization-whether internal or external-is changes are made.uncertain. ADB believes that member states mustformulate their own development sector strategy andestablish long-term priorities based on an evaluation ADB feels that all possible interventions in theof their needs at the national level. ADB sector by private enterprises have not yet been tested,recommends that linkages be established between the and that these interventions may be as wide rangingWSS sector and other sectors such as education and as the variety of problems in the sector. As ishealth. Once member states have prepared detailed wibtessed in many countries, the lifting ofstrategies, ADB is ready to assist them financially to constaint-which weigh heavily on the privateelaborate these development plans. sector-and the judicious use of services are part of

an efficient approach aimed at increasing theAnother important aspect needs to be considered: performance of the sector.

the present condition of public enterprises. Thesphere of activity within these institutions varies from Ten years after the declaration of theone country to the next. Sometimes these public International Drinking Water Supply and Sanitationenterprises are called upon to provide water to all Dcade, a g sgment of the African populationurban centers in the country and other times they remains without potable water and sanitationservice only one urban center. The situation of may facilities. Investments in rual areas are still low.of these enterprises is worrisome, partly because of Urban sydsm are in need of rehabilitation,their financial and managerial autonomy, and partly institutional strengthening and expanion tobecause of the unwillingnes of the contralized high rates of urbanization andgovemment agency to raise the tariffs on which thoy poputiondepend.

ADB is convinced that its policy document forA study conducted internally by ADB shows that WSS sector intervention offers an appropriate

more than 90 percent of the loans made by ADB franmwrk for sector deveopment in its memberincluded financial contingencies either for tariff statos. One of the positive elements of the Decadeincreaseb or for the reimbursement of arrs by thoe h been the growing awarss by the internationaladminisation. This study also demonstras that community of the need for a better coordinationthese conditions were only patially or minimally among ad insitutions and for increased support tofollowed. Futhernmore, ADB feels that the status of define sector policy and sector priorities, which mustthese enterprises, which ar dependent on the ultimately remain the peogative of the countriesgovernmnt's budget, is incompatible with the nature tnselves. In this respect and cognizant of thoseof their activities and is not conducive to attating needs, ADB would like to play a more active rolecompeten high-level staff wifling to ero the than it has in the past and it would like to do so withanterprin ADB believes that the long-term viability the collaboration of other institutions.of these aterprises is more important than thetransfer of rources or the loans they receive. Finally, while ESAs and donor agencies haveIndod. exteral resources represent only marginal often had the opportuniy to meet and consult eachcontribbos compared to the overall efforts countries other, this bas not always been the case amongmust make to finance increasing sector investments decision makers from member states. Therefore,ADB asks that countnes adopt a rational cost ADB suggests that this problem be eliminated duringfecovey policy, and tariffs which will allow the the next decade through some mode of regional orpoore populaons to obtain a minimum amount of sub-regional meetings, the content and the frequencyservio ou a ow cost while other consumers (from the of which remain to be determined. Thank you foradrminutra and the private ector) pay the full your attention.pnce kf the ervice.

PRESENTATION OF MR. ALEXANDER ROTIVALChairman

Collaborative Council

Distinguished Delegates, Ladies and Gentlemen: perspctive on how well or poorly the ESAcommunity has in fact supported your efforts and

I submit that it is time we think in terms of what is required in the future.establishing a framework for global cooperationbeyond the Decade. The framework should have two The Collaborative Council has recognized that

partners: the developing countries and the external discussion without the participation of developingsupport agencies (ESAs), where the senior patners countries is an absurtity. At our last meeting in

would be the developing countries. Mr. Brown, Sophia Antipolis, France, in late November-early

Chaiman of the Council of Economic Advisers, December 1989, four out of five of the principal

Chairman and Governor of the Central Bank of theme papers were prepared by and discussions were

Jamaica, previously my boss, the Associate lead by senior colleagues from developing countries,

Administrator of the United Nations Development several of whom are here. I assure you this is really

Programme (UNDP), and still Chairman of the a chemical reaction in terms of a partnership, a true

Agency Sting Committee for the IDWSSD, at a parnership in terms of trying to define issues for the

recent meeting lae last year, expanded I think some 90s between senior sector colleagues from the

extremely interesting points on how we collectively- developing countries and from the ESAs. Whateverthe interestd partners-could organize ounrlves in happens in the future, I feel that it is necesay to

the 90s. He submitted that you needed three form: strengthen the participation of the sector specialists

(i) a forum for ESAs to reflect not only coordination from developing countries in the deliberations of a

but our mutual cooperation, paticulady on the council or whatever it may be. When I say

harmonization of the support to the developing strengthen, I mean that there must be a critical mass,

countries (the United Nations (UN) system-I think a dialogue between the developing countries'

we all realize with some humility-needs to coordinate specialists in the one hand and the ESAs in the other.

itself better on an internal basis); (ii) the UN system I believe that a prestigious organization, a sistershould continue in some form the inter-agency orgzation like UAWS, should participate in the

committee on water and nittion that was deliberation wherever this body may be.

constituted at the beginnin of the Decade in 1981;and (iii) most important of aU, that the developing Interactions between developing countries and

countries themselves, the most interested actors in ESAs should not be limited to periodic gatberings, no

this joint-venture should have a forum on their own- natter how important they may be on a global level,

which is submitted among other options-to be a on a regional level or on a sub-regional level. I have

rejuvenated natural resources committee of UN. a good piece of news in that context. Last week theInternational Development Research Center of Canada

I believe the important point is that we need a (IDRC) communicated to me their agreement to

framework to maximize the meager rsources that are become global coordinator for a network on applied

available from both the nations' goverments and research. This network-or networks because there

from the ESA community. As you lnow, the wil be a series of networks-on important issues for

Collaborative Council is in the process of the 90s would be constituted principally by

self-evaluation. Two distinguished consultants whom developing countries research institutions with the

many of you have met, Mr. Frih and Mr. Cosgrove, support of institutions in the industrialized countries.

are reviewing the impact or lack of impact of the I think that this is a positive development and an

ESA collaboration among themselves in terms of the indication of the importance that was attached by the

future. And, if they are here today, it is because the ESA community to give you the leadership role. Itmogt important part of the evaluation is to get your- is felt that there should be global consultation,

you membens of the developing countries-your perhaps every five years-one as you know in 1990,

anoder in 1995 and also in the year 2000. UNDP Finally, as I look at the room and I see ADB,is sponoing a Global Consultation in Now Ddhi- Wotld Bank (WB) and UNDP, ESAs and you theSafe Water and Sanitation for the Year 2000-and I deegat, I submit that it is time to trnslate thethink it is important-and it was raised in the fawork in somedhing operational. I would like todiscuson of this Workhop-that the delegations am this meeting lead into a commitment for afrom dewloping coutries should consist not only of concerted prgrm of cooperation. I think it isenior sector specialists but also of policymakers from extraodinaily positive that we have ADB and WB,

insitutions, from ministies which hold the purse as well as UNDP, working hand-in-hand to supportstring-Treury, Finance, etc.-to clealy get the you in terms of the realization of your objectives withmesage a to those who re in position to make respct to the sector. I would attach an enormouspolicy decisions in the allocation of resources importace to a messge of this kind in a form thatvis-a-vis the sector. It is hoped that at the Global you fee would be appropriate because of the finalConsultation ESAs will also be epresented not just statent.by their senior sector pecialists but by those whomake the decisions in terms of the allocation of I regt the fact that the Third Africa Meeting onresources and support. You have received a Guinea Worm in Yamoussoukro did not receive adocument on the Global Consultation. I would like hearing today. There were some very importantto make just one quick point on the issue of Africa statements made-and it has been circulated. Guineatransmitting its message: a clear consensus on the Worm disease is the one formal indicators of theproblems, priorities and stategies for the 90s is success of the Decade. I would hope that you wouldessential. This is one of the objectives of this feel that you, the country delegates, particularly thoseConference. As was suggested by the Executive who reprent the 17 endemic countries in Africa,Scretry for the Global Conultation, I hope that it would make a plea in the final statemnent of thiswill be possible to appoint a spokespes to deliver meeting and that priority be given to villages whichsuch message at New Delhi in September 1990. have bean affected by Guinea Worm.

I agree with the remar that have been made by It would be impossible for me not to conclude bymy colleague from the Afican Deveopment Dank personlly thanking you the delegates and WB, but(ADB) that in the 90s it is necessary to organaz also particulrly those ESAs who have participatedregional consulttions for the critical mass, but for actively in the financing of your participation at thisthem to be smfciendy small so that common meeting. I mention in particular of theexperiences can be disused. One of them which is Commonwealth Council, DANIDA, NORAD, Theunder discussion and which the Collaborative Council Swiss Development Corporation, the Kuwait Fund,is hoping to organiz due to the specificity of the FINNIDA, France, GTZ, the Netherlands, SIDAproblems reates to the Magreb. Hopefully in 1991 Sweden, USAID, UNICEF, WHO, and UNDP.such a consultation will take place. Thank you Mr. Chairman.

PRESENTATION OF MR. M.F. DJERRARIPresident, Union of African Water Suppliers

Mr. Chirman, Your Excellency, Ladies and Finally, UAWS is ready to offer its support for

Gentlemen: reflecting on issues of general interest and for anystudy or research program in the drinking water

The Union of African Water Suppliers (UAWS), supply and sanitation fields. UAWS has not been

in whose name I have the honor of addresing you, is invited to meetings held in the context of IDWSSD,

a nonpfit and non-political organiztion. Its however some of its members have contributed

objective is to promote various means of exchange regularly to international gatherings in the sector.

among companies and services in the fields of water This is why some of us have participated in the

distribution and production as well as sanitation discussions of the external support agencies' (ESAs)

services in Africa. Collaborative Council, particularly in the one held inSophia Antipolis in December 1989.

UAWS is comprised of 22 African companies orgroups of companies as well as some 20 associate In view of the present meeting in Abidjan and themembers with diverse activities in the water and forthcoming meeting in New Delhi next September,

sanitation sector. Our association was created in the 5th Congress of the UAWS, held last February in

1980. Its headquarters and its administrative Abidjan, decided to hold a meeting of all executivesecrtriat ae in Abidjan at SODECI, and its directors of companies for water distribution and

scientific and technical counl is arbitrated by the sanitation in order to assess our role during the

Sod ri National d'Erploitation deaEaur du Senegal IDWSSD and our perspectives for the future. This

in Dakar. UAWS has held 5 international meeting was held in Lom6 on March 20-22, 1990,

conferences which have provided a regular forum for thanks to the financial assistance of the Government

some 300 to 500 participants from 40 countries. of France and the collaboration of some international

During the conferences, the participants study institutions such as the World Bank, the Caisse

technical and economic issues pertinent to the sector. Centrale de Cooperation Economique, and UAWS

These international conferc also provide an associate members such as CEEH, Cefigre, etc.opportunity to present mterial and tecbnologies usedin Africa. I will now share with you the main

recommendations which came out of the Lom6UAWS was created at the sart of the meeting. These recommendations, which are part of

International Drinkdng Water Supply and Sanitation report written during the meeting, concern the

Decade (IDWSSD) in 1980; it is thus natural to following three ares: (i) the management of public

evaluate its role during this past Decade. First of all, services-up to now we have biked very much about

we need to emphasie that in our view-and in the projects and perhaps less about management; (ii)

view of previous orator in the Conference-the investments and the financing of investments; and

objectives of IDWSSD were undoubtedly too (iii) objectives and strategies.ambitious. Given the economic crisis on theContinent during the Decade, they have not been In the area of management of public services,

fulfilled. At the end of IDWSSD, UAWS proposes UAWS members who met in Lom6 identified the

to join in this new water supply and sanitation (WSS) following factors for improving the management of

decade in order to begin the 21st century under better the sector:conditioos

* An adequate institutional framework, clearlyOur mociation could be an African center for defining the autonomy of the management of the

expertie and exchange of experiences among its sector, the respective roles of the water entities

menmben s wel as between its mnembers and and the government agencies on which theyintenial orpnizations in the WSS sector. As depend, all the while assuming the necessary

mch, it could facilitate the exchange of information, coordination at the national level.

of cxperue and of expertise as well as the exchangeof expemt between African companies. * A tariff structure allowing the most suitable cost

recovery and ensuring the financial autonomy ofthe WSS sector while observing a certain

ngorousness in the techical, financial md population, health and standard of living issuescommxcil m_naget of water entities. Nevertheless, the objecives for the next docade mustUAWS promotes the sysematc involvement of be focssed on providing WSS services to the greatestAfrican water entities and conulting firms in the number of people while taking into consideration theformulation and definition of development heslth and productivity of the population and theprojects. This allows these projects not only to quality of the envimnt.be better suited in terms of size and choice oftechnologies, but to mobilize huann resources To formulate these objectives, nationalcommitted to meet the manage t objectives of goveenment ahorities wvil have to make thethe projects. necessary insitutional arrangements: cost recovery

and the dissemination of technologies better suited toA promotion of industries to enhance African local conditions whether these be natual, human orraw mateials in order to ensue the priority of financial. Similary, an improvement in the tehnicala loca supply system for the sector. _ t of the services, in the planning and

supavision of projcts and in the level of communityCocenifngfinancing and tm ents, the serch participation-and particularly of women for water

for technical solutios adapted to the specificities of supply projec e indispensable. A regionalthe African environment is of parmotunt importnce. cooperation musd be sought among countries inIt must be encouragod through careful thinking, similar situations. Additionally, an intenationalsudies and experiments with the collaboration of coopertion must be promoted to improve both theexternal support agencies (ESAs) and the results must exchange of informai (on experiences andbe disseminated through local profi a technologies) and the coordination andassociations and North-Souith coopeation chamels. sensibiliuation of all African countries.

A more rtional urban spce allocation may play Finally, I wish to emphasize that during the nextan important role in limiting costs, thus a decade we will face new and greater challenges,coordination for urban planing and infraruct among which e a demogaphic explosion in Africandevelopment is necmsy. A first priority on cities, he rapdly growming squater areas and informalexpenditure for maintenance and rehabilitation of housing setlements inperi-urban areas, the inceasingequipment should allow a savings onnew investments technical and economic difficulties which areto be realized. A stringent approwah to saisfy rea polution rated or which result from an inufficientcredit-worthy demand with the ability to pay by the mastering of rain and waste water, and an increasingusers is a must to impove p rmance. lack of water resowces. All of these challenges will

have to be met with limited financial resources. AtFinally, an inrase in sector financing must our Lomd meting, we deemed it necessry to make

come from several sources including the following some omments, to give an opinion and to makeprimary categories: (i) new subscribers through their some recommendations which could enrich presentcontributions as individuals, as first establishments, thinking.etc.; (ii) managers of water companies throughself-financing from tariffs; (iii) public or private We also believ that UAWS has an obligation tonational financing; (iv) international financing contribute to the development of the WSS sector inthrough giving a grester priority to the WSS sector Africa. UAWS hopes to obtain the understandingfor the amount lent nd for the conditions; and and accepance of non-African putners, whosefinally, (v) while the UAWS members re aware that innovative ideas on the sector would benefit from angoverments' financial resources will be limited for snalysis by our organization in the are of training.the next decade, they ask however that governments UAWS will reach its objective if the Abidjan regionalgat the sector preferential fiscal tretment and consultation accepts the knowledge and advice givenappropriae import duties in view of the socia in our document and puts it in practice in the interestcharacter of the activity. of the African countrios.

Given the expotiences of IDWSSD, UAWS I would like to send the same call that I sent inmeiversacknowledgethat the experences ofDw o AWSS Febmary 1990, inviting all WSS companies in Africamembers akowledge that the approach of the WSS toinf wtUASsoemawrkoghr

ncto, inter of bjetiveandsbuwy, ust eal to join furcos with UAWS, so wve may work togethersector, in terms of objectve iad strategy, must deal for the establishment of this sector in Africa. Thankwithin a wider context, integratng onvironmental, yofryuratni.

you for your ttenion.

THE UNDP-WORLD BANK WATER SUPPLY AND SANrrATION PROGRAM: AN UPDATEMr. David Grey

Acting Program Manager,UNDP/WB Water and Sanitation Program

Distinguished Delegates, Ladies and Gentlemen: in establishing a training network center, which willtrain national professionals in low-cost WSS. The

It is a privilege for me to have the opportunity to Program is working with the private sector,speak to you today. I have just a few minutes and I particularly in the production of pumps and sanitaryam going to talc about the United Nations hardware. We are undertaking research of variousDevelopment Programme (UNDP)/World Bank (WB) kinds-in particular some innovative work onWater and Sanitation Program; its objectives and willingness to pay for sanitation. All this work isorganization; the issues that we see facing Africa done in collaboration with a wide range of ESAs.today; and the role we believe we can play in The long-term goal of all these activities is to lead toassisting the govermments of the continent to meet the large-scale investment in water and sanitation forneeds for water supply and sanitation in the 1990s. Ghana's urban and mral poor.

The joint UNDP/WB Water and Sanitation The Program has global-, regional- andProgram is a worldwide effort of developing country-level structures. There is a small group incountries and external support agencies (ESAs) to Washington which manages the Program and here intackle the problems of water and sanitation for poor Africa there are two regional teams. These teams arepeople. The Program is active in 40 countries, 21 of caUed Regional Water and Sanitation Groupswhich are in Sub-Saharan Africa. The over (RWSGs or GREAs in French). Many of you wiUobjective of the Program is to assist countries to build lnow staff from the teams. In Africa, there is a Westthe capacity to deliver sustainable water supply and African Regional Group located in Abidjan, and ansanitation (WSS) services to low-income people, East African Regional Group inNuarobi. Staff comeprimarily using low-cost and community-based from WB, from bilateal organizations, from otherapproaches. There are no blueprints for stuanability UN Agencies such as UNICEF, WHO, and theand there are no easy answers. Dealing with povert PROWWESS project. The two RWSG managers,in all corners of the world h s proven to be extremely Mr. Abin Locussol from the Abidjan Office and Mr.difficult. However, in over ten yeas of work in John Blaxall from the Nairobi Office, are attendingdifferent parts of the world, the Progamm has this meeting.developed a strategy with a toolbox of activities toassist governments in their efforts. In addition, the Program has supported the

establishment of three international training networkIn describing this strategy, let me take the (rrN) centers in Africa. There is one ITN center in

example of Ghan, a country well represented by Ouagadougou. Mr. S. Toure, the director of thedistiguished delegates at this meeting. We have a center, is also here at the meeting. The center isstrong team in Ghana-of Ghanaian national staff. called CREPA and is a part of CIEH. The secondWe have two national project managers, and they and ITN center is at the African Medical Researchtheir teams are undertaking a wide range of work in Foundation in Nairobi, Kenya, and the third ITNcollabortion with the Govemrnent. The Program is center is at the University of Zimbabwe, in Harare.assisting in sector policy and planning work, both in All three TN centers have regional and sub-regionalthe nurl WSS ector and in the urban sanitation responsibilities for training in low-cost WSS. Thiseoctor. We are working with the Government in network of regional teams of RWSGs and ITNdemonsrating community management of rural WSS centers is in place and is actually worldng with manysad detemnnining solutions for dealing with urban of you. The network is multi-disciplinary, multi-sitatioo for the poor. We are also working with national and multi-agency financed. It is antde University of Science and Technology in Kumnasi instrunent for country-level collabomtion and action.

Let us take a quick look at the issues that have both a major constraint on growth and a source ofarisen. Over recent years, the Program has focussed conflict. Essentially there are two basic problems.its efforts in Africa on supporting governments Scarcity is increasing the costs of expanding supply,dealing with the problems of rural WSS-the subject and inadequate or inappropriate water resourcesof the workshop earlier this week. It will continue management policies are also leading to increases inits efforts in the 90s, putting a strong focus on rural cost.poverty and on community-level capacity building.There are, however, dramatic emerging problems Finally, we have a couple of initiatives that wewhich Africa will face in the future, and is already are trying to get underway in the next few months.facing today. For example, over the next 15 years, For many years the Program has worked closely withthe urban population of Sub-Saharan Africa will countries in Africa, and many of our staff come fromdouble and in another 15 years it will double again. the Region. We want to strengthen this partnersupThere will be 500 million people living in cities-four further and broaden the ownership of the Ptogram.times the present figure. Over the same period, the We propose to establish an advisory council ofrural population will increase by 50 percent. This leading policymakers from the Region for each of thehas dramatic implications. In the major cities of Asia RWSGs, to advise on directions and strategies and toand America, the problems of the urban environment review plans in progress. We believe that inare overwhelming, and we will do well to learn from strengthening this ownership, the Program cantheir experience and prepare to face the time-bomb of become more relevant and more effective.urbanization in Africa.

The second initiative is to strengthn humlanWe see two main challenges that we in the WSS resources development activities. There are activities

sector must face. First, the problem of urban already in hand-such as the three ITN centers I haveenvironmental sanitation. Rapid urban growth is described. One of the initiatives that we arecreating a time-bomb: the rapid accumulation of proposing to launch is a greatly enhanced effort inwaste and polluted water form major health hazards. technical coopration between developing countriesWhat can be done with these mountains of waste? (TCDC), interchanging mid-level and lower-levelMuch of this urban waste will be in informal staff between countries and projects. For example, ifsettlements, not in the formal settlements in the center a country in East Africa wants to launch a solarof the city, but on the margins of the city. So it is pumping program, what better way than to learn firomthe poor who suffer most from the disposal of human Mali, a country where considerable experience haswaste directly, as well as from the lack of disposl of ben guaned over the last ten years, and what bettersolid waste, which piles up in the streets of slum way than to learn from Malian technicians?areas. We must identify ways to deal with this Similarly, if a country in West Africa wants to launchgarbage mountain, such as emphasizing recycling, or extend a sanitation program, what better way thanboth recycling of solid waste and waste water -use to learn from our colleagues from Zimbabwe, whosefor irrigation on the margins of cities. We must also Program was so eloquently deswibed on Monday byunderstand better the demand for sanitation, and the delegate from the Zimbabwean Government?develop ways in which we can-in an adaptive way- There is a wealth of experience within Africa and thematch sanitation technologies (including on-site Program is planning to launch a substantive effort tofacilities and intermediate and conventioal sewerage) assist in the exchange of that experience. Your viewsto affordability. on this issue would be greatly appreciated, either to

myslf or to my two colleagues in Abidjan andA second emerging problem on the African Nairobi.

Continent-which is expanding fast in many countrieswhich do not yet see it-is the problem of water The challenges of the 90s are with us and we inresources. Over the next 25 years, many countries the Program look forward to workcing with you inwill see absolute scarcity, and the experience of the grappling with these challenges in the coming years.Middle East has shown that water resource scarcity is Thank you very much.

Presentations were then made by preoselected countries and ESAs as follows:

Ghana - Mr. E.K.Y. DovloLesotho - Mr. L. PelepeleMadagascar - Mr. F. RabemananbolaMorocco - Mr. A. IahlouZaire - Mr. Tshiongo,

Mr. T. WatumbaKuwait Fund - Mr. T.A. Dabbagh

Their full statements ame set out in Volume II of this Proceedings.

INTRODUCTION TO GUIDELINES FOR TRE DEVELOPMENT OFCOUNTRY STRATEGIES FOR THE 1990s

Mr. A. MengeshaDeputy Director, WISI

Ladies and Gentlemen: I should explain that we in the AfricanDevelopment Bank (ADB) put a lot of effort in the

You have worked hard for three days in the final years of the Decade into ensuring tat our ownRural Water Supply Workshop, and have developed policy for sector investment reflected, as closely asa comprehensive array of conclusions and possible, the approaches which have proven to berecommendations for bnnging sustainable water successful. We have been continualy leaming, andsupply and sanitation (WSS) services to the rural believe it is necessry that any policy-and strategiespopulations of Africa. One of the major for implementing it-be flexible enough to respondaccomplishments of the Intemational Drinking Water to changing circumstances. We believe our policy isSupply and Sanitation Decade (IDWSSD) has been fulUy consistent with the present thinking. Thisthe way that governments and external support should mean that ADB is well equipped both toagencies (ESAs) have worked together and developed structure its investments in the sector in a way whicha consensus to the approaches needed to achieve will help countries undertake the many supportsustainable services. In the Workshop, you have activities we believe to be necessary, as well as todemonstrated a determination and an ability to tuMn provide support for the installation of new WSSthese agreements into policies and activities which facilities.will help all African countries combat the formidableconstraints they continue to face. The Strategy Document has been prepaed for

you to discuss and to advise us on how it can beNow, at this time, we ask you to broaden the strengthened and modified to represent a consistent

horizon of your discussions. For the next two days, approach for all of Africa. There are two parallelwe seek your help in providing Africa with a Strategy purposes:for the 1990s in WSS for al areas-urban and semi-urban as well as rural. We have already noted in the * When we finish our discussions, we shall haveWorkshop that urbanization and the problems of peri- the basis of a document which say Africanurban areas present governments with formidable country can adapt to its own specialchallenges, on top of the rural challenges you have circumstances, confident that the sectoralready been addressing. approaches, the institutional changes and the

basic sector objectives are the most appropriateThe document which will form the basis of your and will be supported by the donor community.

discussions from now on seeks to provide thecountries of Africa with the means to devise their * At the same time-and this is very important-weown sector development strategies, within a have a splendid opportunity through thisframework that reflects all the lessons we have consultation to demonstrate to the world thatlearned in the last Decade. It has been immensely African countries have a determination and anencouraging to us during the last three days to hear ability to attack the enormous problems that theythe working groups reaching such remarkably close face in a spirit of collaboration and totalagreement on the approaches needed to bring renewed commitment. The outcome of this consultationand accelerted efforts in the 1990s, and to hear the will be an important part of Africa's voice in thepnriciples which we have tried to build into the Global Conference in New Delhi. Let us makeStrategy Document be endorsed by representatives of sure that the message is both loud andall countries and the ESAs present. convincing.

As you will soe from your achedule, the rest of to motivate and sitize communities and providethis afternoon is devoted to discussions in working prompt and effective support for communitygroups. You have gotten to know each other well in initiatives. I hope that you will help us to ensurethe recent days, and we would propose that the that we find the mechanisms at the national andcomposition of the working groups _mains the same, mity level to apply these concepts in thesewith the sme excellent chairmen. A facilitator will situations. Combining our desires for restructuring,be assigned to each group to provide further integrated approwhes, women's involvement,background information if you need it, or to help effective denand analysis, appropriate technologiesstructure the discussions to complete the analysis of nd service levels, sustainability and resourcethe document in the time available. We will then organization-combining all these things into effectivehave time tomorrow, in the plenay session, to national strategies-is no small challenge.compare notes and to reach a consensus on Strategies

for the 1990s. When you discuss the Strategy, you will see thatthe fundamental part of the process of strategy

The discussion document is not a lengthy one, development is for each country to develop an Issuesand I do not intend to go through it now. Most of Paper which addresses the major topics. We hopeyou have read it already, and I believe you will be that the list is comprehensive. We are confident thatable to go into discussions without any detailed you will be able to help us refine it.introduction of the document.

In the proposed Strategy formulation, we addressWhat I would say is that we are very encouraged the key issues of effective demand, of rehabilitation,

that the approaches incorported in the Strategy of credu and repa)nent medianisms and any more,appear to us to be consistent with the major new and we emphaize the need for continual exchange ofapproaches that you etphaszed in the Workshop. It experience at national and regional levels, so thatis clear that the lessons we have learned about sector decisionmakers can lean from the experiencecommunity responsibility, about sustainability and of elsewhere in order to improve their own sectorabout the viability of institutions are a fundamental performancepart of our common strategy.

You have already demonstrated that with yourWe at ADB fully support the Workshop's major own wealth of experience, you can produce solid and

conclusion: the emphasis should change from that conincing rcommendations for achieving progressof governments as providers of all services, to tht in WSS in rul areas. Now, please help us to giveof increasing involvement of community Africa the voice it needs in the world forum, and toorganizations, the private sector and non- promote the powerful case for increased resourcegovernmental organiztions (NGOs) in the allocations to the sector in our Region.implementation and management of WSS secor. Letus be clear this puts a heavy and crucial My message goes equally to country participantsresponsibility on governments to build up the and to those from ESAs. We need all of your inputcapacity of these organizations at all levels, and to in helping us to come up with a convincingequip them to accomplish their tasks. And document. Please see to it. Thank you Ladies andgovemments must intensify their promotion effois Gendemen.

At this point, discussions were continued in the 5 Working Groups. Each group submitted its detailedcomments as shown in the 5 Working Group Reports at Annex 6 through 10. The comments were discussed inplenary and then incrporated as far as possible by the 5 Working Group Chairmen who reconvened in Abidjanin August 1990. The finalised 'guidelines' appear on the next and following pages.

CHAIRMAN'S ASSESSMENT OF STRATEGEES FOR THE 1990s

Mr. A. MengeshaDeputy Director, WISI

Afncan Development Bank

Ladies and Gentlemen: about the capability of certain strata of our populationto pay for such services; others confideotly believe

I will be very brief in my reflections on the th througha mechni of subidies to the poor by

discussions we have had on the Strategy Documet. the rich revenues for all services can and should be

Let me first of all state that I am heartened by the collected.outcome of our deliberations of the past two days. I Similarly, in the concen we all sre tha t WSS

am heartened because I have the distinct impression services should reach aU populations, some have

trat we the spaking te devp langsuge. We have all sugested that associating solid waste disposal and

recognized the need to devrop a sound strt igy for storm water drainage with this sector would divertthe development of the water supply and sanitafion bohuratninndurrsm.Ye,Iin w

-stt>\ *t . . ~~~~~~~~both our attenbon and our resources. Yet, I thinkcwe(WSS) sector if access to these services is not only to have all agreed that the sector is best served if it is

keep abreast with population increase, but to seen within the context of the paallel development ofaccelerate to the pomt where we can provide water ssociated sectors such as hygiene education and

and sanitation for all. human resource developmnt.

The lessons we have learned in the past two days In my opinion, another consensus that has ben

also show that while a country's strategy paper needs n i the impotwanoe of the role played by the

to take into account its specific situation, there is no e i supportaces te role donors

disagreement in our thinking of what elements should entedal support agencis (ESAs), bilatal donors

constitute our overall strategies for the 1990s. I and nongove n orgaizations (NGOs). At the

believe that what appear to be divergeoces in our samie me, some are concerned that these

discussions in the working groups and in the plenary ogions should play an active role without

sessions are simply an indication of concern by unduly influencing govement policy.

various delegates which reflect the specificities of In brief, the reflection of the chair is that there is

their country's experiences. a geneal consns among the participants presenton the broad outline for the guideines for the

The question of privatization, for instance, has prepation of stategies prsented to us. The chair

been repeatedly raised. We have all recognized that also, however, acknowledges the various remarks

governments should, in the years ahead, act more as made by the five worldng groups, and to the extent

promoters than providers of WSS services. Yet, we possible and applicable, these remarics will be

have not all agreed on outright privatization, because incorporated in the revised Strategy Document to be

in our different countries such a step may not be prepared by the African Development Bank.

practical at the present time. There seems to be aconsemsus, however, for an intermediate stage of In conclusion, I would like to stress that the

creating parastatal institutions and partially private- or Strategy Document is a framework for collaborationmixed-capital institutions. for development between governments and

On the question of financial reource communities, ESAs, NGOs, bilateral donors and all

mobilization, I think we have all agreed that with the those who desire accelerated development of the

foreseeable economic clirnate, the major portion of sector. The last thing the Strwegy Document should

our investment for the sector's needs has to be be is a document of confrontation between the

gnrat internally. Thus, we all agree that WSS government and its people, between the haves and

Services must be paid for. Some of us are concered have-nots, between donors and recipients, andbetween lenders and borrowers. Thank you Ladiesand Gentlemen.

CLOSING REMARKS

Mr. Babacar N'DiayePresident

(delivered on his behalf by Mr. Gedamu)

Your Excellencies, Distinguied Guests, ladies and You have discussed these issues from the vantageGentlemen; point of your respective expeences, and they are

refleced in your findins and conclusions. I note inWe have come to the end of a very busy week. particular that there is a geneal consus that the

It is obviously premature to assess the results of your Smegy Docenet presented by the Africandelibertions, but I am sure they will constute a Development Bank (ADB) and the Collaborativemilestone and a point of reference for Africa's water Council provides a good basis for the Africaninvestment in the de ahead. position at the Global Conference which is to take

place in New Delhi in September 1990.I should first of all like to congatulate you on

the way in which you have organied your Equally important are the recommendations thatdiscussions, which has made it possible for membe h country should develop its own stategies andcountries to air their views. I shoul also like to policies for the WSS sector, and tat ther is need tocongraulate the organizers of the meeting for the eablish a mechanism to ensue colaborative effortsvery high quality of the documenti and a regular exchnge of expenences. I this

rgrd, I would like to say that ADB is prepared toDuring the first three days, you discused the explore with you the feasibility of creatng a Regional

ateg to be marked out in the water supply and Committee to guide and monitor developmentsanitation (WSS) sector in krur aos, on the basis of activities in the sector.the findings from and experence ganed by Africancountries, the speciald agencis of the United These recommentions constitute, for all theNations, and regional devepnt finance prts involved in the development of the WSSinstitutions. Yesterday nd today, you had the sector, a valuable asst to which we must periodicallyoppotnity to take stock of the achievemets, refer.shortcomings, sad lessons of the Water Supply andSanitation Docade which has just passed. Thes In conclusion, I should once again like todisussions were intended to identify ways and meau co hnulate the organizers of this Conference, on theof carrying forward the effort to provide good choice of topics, and to thank them for their verydrinking water and improved sewege fcilities to active participation. I would also like to thankAfrican populations. delegates of the support agencies for contributing

finonce to the realization of this Conference, and forThe critical question you have been required to having come here to listen to the views expressed by

addres-namely, how to serve the grtest number country representatives. And, I would like as wellof mostly low-income populations in countries with to sincerely thank all of you representing countrieslimited resources-is not simple, for the problems are and institutions for accepting you invitation to attendboth sesitive and complex. They are sensitive this meeting, which, as I said before, has given us abecause they dirctly affect the lives and health of very good basis for the work in the decade shead.human beings, and complex beause they must be Finally, I would like to thank you all for your kinden in the context of the entire spectrum of eonomic attetion, and to wish you bon voyage to your

and social activities. Because the resources are pective homes.limited, hard choices and decisions are involved.

PART m

SODECI

WATER DISTRIBUTION COMPANYOF COTE D'9VOIRE

The following paper was presented in plenary by Mr.Zadi Kessy, President of SODECI and hismanagement team.

SODECISocidtd de Distribution d'Eau de CMte d'Ivoire

I. ACTIVITIES, STRUCTURE AND FUNCTIONS equipment. This venture, however, iscurrentlyinsignificant due to the present economic

Background recession in Cote d'lvoire.

Since 1960, the Government of C6te d'lvoire has As of September 30, 1989, SODECI's turoverentrusted the management of urban public water was 17 billion Francs CFA without taxes and 26,3supply and distribution to a specialized company: billion francs CFA with taxes (including surcharges).SODECI (Water Distribution Company of Coted'lvoire). SODECI is a private company. Activity Percentage

of TurnoveAlthough the initial institutional relationship Services:

between the Government and SODECI was defined * Production and Supply of Water 67through a leasing agreenent, in 1987 this agreement * Sewerage 6was modified to a concessionary contract. The Works (including network connections) 13rights and obligations of both parties are clearly Other 14defined under this contract. The Government agencythat entered into contract with SODECI is the H. WATER SUPPLYMinistry of Public Works.

As of September 30, 1989, SODECI'sLegal Status performance can be described with the following

figures:SODECI is a private limited company with a

capital of 2 billion francs CFA. It was created in Water Produced 100 million cubic meters1960 by the Soci6t6 d'Anenagenent Urbain et Water Billed 85 million cubic metersRural (SAUR; Company for Urban and Rural Number of Subscribers 225,000Infrastructure), a subsidiary of BOUYGES, S.A., Coverage 370 cities and large villageswhich had obtained a contract for the rehabilitation ofnetworks of the city of Abidjan in 1959. Contractual Obligations

SODECI's capital is hold as follows: SODECI bas the exclusive contract for the:

Private Ivoirien Investors 45% * exploitation of ground wate resourcesGovernment of Cote d'lvoire 3% * production and distribution of potable water forCommon Investment Fund' 5% the entire Country. excluding rural water supplySAUR, S.A. and Private French Investors 47% * activities related to the exploitation and

manage_ent of networksScope and Volumne of Activities * maintenance and repair of works of all sorts

* replacement of worksTMe bulk of SODECI's activities consist of * new works for adapting, reinforcing, or

producing and distributing potable water in urban and extending existing facilities (when their costenci-urbun areas. Village water supply in rural areas exceeds 80 million francs CFA, SODECI

is manaed directly by the villages. introduces an invitation to tender)

Additionally, SODECI has created a separate For its operating costs, SODECI is paid directlycompany to manufacture pipes and hydraulic (and at its own risk) by the subscribers.

'Reserved for SODECI's agents.

Water is billed by cubic meter. Tariffs are Within the Country, there are a few sewerageestablished according to brackets of consumption. In treatment plants connected to sewerage networks.addition to its fees, SODECI collects:

SODECI is the Government's partner and is* a surcharge tax for the Government of Cbte responsible for the operation and maintenance of most

d'Ivoire, which allows the reimbursement of of the sewerage networks and treatment plants in theloans that were made in the past Country.

* a fixed amount per cubic meter of water billedwhich goes into a Development Fund that was Activities in these areas are perforned under twoestablished to finance: types of contrctual arrangements:

* connections to low-income areas (i) Services contracted at the end of 1988 for a* replacement works duration of 3 years between the Govemment of* extension works (new centers, new networks, Cote d'Ivoire (represented by the Ministry of

etc.) Public Works) and a merger companySODECIISAURAFRIQUE. This contract is for

Financial decisions concerning the utilization of the maintenance and operation of networks forfunds available in the Development Fund are made by the city of Abidjan.the Ministry of Works.

(ii) Several service contracts between SODECI andThe average price of water is 263 francs CFA private companies or between SODECI and

per cubic meter. The portion retained by SODECI is public or parastatal entities.approximately 50 percent of the amount billed.

Abidjan's MarketWater supply service is subjected to a Value

Added Tax (VAT). The scope of activities includes:

Operaion of a Public Service * general supervision of sewerage and drainagenetworks

SODECI provides a public service. Theconditions for administrating this service to the * cleaning out and maintenance of networkssubscribers are defined in 'Regulations ofConcessionary Service." * management, opertion and maintenance of other

works such as pumping, filtration, sand-removalContro of SODECI and sewewgtatment stations

SODECI is controlled by the Agency for Water Service rules and regulations have beenfor _Ageaet and operations, and by DCGTX established and apply to users of Abidjan's market.(Ageny for the Management and Control ofConstuctia of Public Works) for the research and Financial Arrngementsimnp_aation of consimction works.

* A flat annual rate of 855 million francs CFAilL SEWERAGE (excluding tax)

Sewae in Abidjan is still in an embryonic * An invoice for a set unit price quantifies thestate h coists of rain- and used-water collectors value of each activity(uniSd mad tparated networks) and of a fewewwg treotme plants. Most of the affluents are * Financing is usually borne by the drainage tax,

dispod of in the environment. Studies for new whose collection is the responsibility of theinfrsucur pojcts are currently being undertaken. Goverment.

All the activities are controlled by the * SODECI's management of the budget isGovernment's Agency for Water, which benefits from computerized, as are those of the regional centersthe assistance from DCGTX. which extensively utilize micro-computers.

IV. ORGANIZATION OF SODECI * All accounting is computerized.

Although SODECI is a private company, it is de Furthermore, SODECI has at its disposalfacto a public service company. analytical programs adapted to its needs, which allow

it to periodically measure its progress towards theThe objectives of its means and methods of attainment of its objectives.

operation are:Dynamic Management of Human Resources

* to create activitiesSODECI employs 330 agents, 99 percent of

* to constantly improve its production whom are African.performance

SODECI's main characteristics in the* to improve the quality of its relations with management of its human resources are:

the public* participation of its agents in the Company's

In order to achieve its objectives, SODECI objectives, with bonuses awarded in accordanceobserves three principles: (i) it has a very to each agent's performancedecentralized structure; (ii) it makes broad use ofcomputer technology; and (iii) it believes in the * an established mode of communication amongdynamic management of human resources. agents of the same hieratic level, and between

agents and senior managementDecentralized Structure

* an adapted communication policy, includingTen regional branches depend on SODECI's infonnal contacts, scheduled meetings, seminars,

headquarters located in Abidjan. Two of them are meetings for the exchange of informationlocated in Abidjan, and the remaining eight are between differt ministraive and operationaldispersed throughout the country. strures, sensitization meetings, etc. Senior

management is adently involved in the formationThe basic unit is the production cette, whose of Company policies by being attentive to

size and orgnization varies according to the number practical questionsof subscribers it serves.

* a very active training policyResponsibilities are also very decentralized. For

example. each center is earnestly committed to * progressive and diversified Company benefits.formulating and complying with its own budget. In addition to his salary, eac-h agent:Tbus, tr is a true management by objectives,whereby each center enters into an actual contract * has a health policy which covers 80 percent ofwith SODECI's beadquarters. his expenses

Broad Uw of Computer Technology * benefits from savings realized by the SocialBenefit Fund to which the Company contributes

* The etir management of the subscriber's substantiallyacoa is computerized, including billing andpcy_naa. * is a Company stock holder though the Mutual

* is given a tuition allowance for each of his SODECI'S Spiritchildren attending school

The image of SODECI, a private company in the* has access to the real estate marke thanks to the service of the public, must constantly be improved.

preferred conditions for loans offered by the This results from a Company spirit, which favors theCompany development of strong values unique to SODECI and

its activities, including: discipline, training,* may subscribe to a fund for low-interest loans commitment, strictness, solidarity, discretion, an

enterprising spirit, open-mindedness, self-confidencePersonnel is represented by elected delegates and and justice.

through four entities: (i) the Agents Union; (ii) theAthletic Association; (iii) the Association of Each agent must consider himself a trueSupervisory Staff; and (iv) the Union of Professional professional and must be proud to belong toAfricans. SODECI.

V. PRODUCTIVITY: A CONSTANT OBJECTIVE The respect of these values has enabled SODECI:

The figures given below demonstrate in practical * to be the first private water supply company interms SODECI's permanent concern for improving Africaproductivity.

* to make a differenceWater Billed 85%Payment for water by private subscribers 98% * to be considered an efficient and effective model

Productivity Ratios

* 1,500 subscribers per meter mn

* 8 connections per day per plumber

1979 1989Turnover per agent in

millions francs CFA 7.62 12.96Number of Subscribers

per agent 80.70 169.49Cubic meters of watersold per agent,in thousands 45.41 64.00

SUMMARY OF DISCUSSION

The utmost interest given by the audience to it to rehire 67 persons. SODECI continued itsthe presentation on SODECI is best indicated by the expansion and hard work by taking actions ontwo and a half hour question and answer period that reducing its expenditures, and by the end of 1989followed. Although the main points of the SODECI realized 500 million Francs CFA of profits.discussion are summarized below, for further In the process of reducing its expenditures SODECIinformation on SODECI's management, perform- improved its interna management which lead to theance, and training activities, intrested readers are realisation of substantial benefits.encouraged to write direcdy to SODECI (B.P. 1843,Abidjan 01, Cote d'lvoire). One discussant asked how SODECI managed

to have 99 percent of the private sector pay its waterAfter being thanod for his presentation and bill within a reasonable amount of time-an

for his contribution to the promotion of the water unprecedented success in Africa. Mr. Zady Kessysector m Africa in his capacity of President-Founder explained that the private sector had 45 days to payof the Union of African Water Suppliers (UAWS), for their water bills - a time period during whichMr. Zadi Kessy replid that he had the highest esteem employees usually receive two pay checks. Hein AUWD new President to cary the torch after him attributes the success of the billing collection toand that he would continue to bring his support to the women. He believes that in African Societies womenorganization for which he felt very committed. have less difficulties than men to collect money, and

for that particular reason all of SODECI's billOn a question on African partnership, Mr. coUectors are women. When a man comes to pay his

Zahi Kessy indicated that in addition to the personal water bill, he will not argue with a woman. Ifrelationships already established among the mnsagers women are educated, properly dressed, the man willof African water supply entities, this partnership is pay. That is his secret.meanigful only when there is an effective transfer ofknowledge and expertise among Afrcan experts. He On the subject of his management style, Mr.fiurther stated that, for the present, the partnership Zady Kessy said that good managers must pave themust be tiangular and include the assistance of way for their departure; they must select carefullydeveloped cowrtries. their coUaborators, trust them and make them

reposible for their own actions in such a way theyOn the price of water to the consmer, Mr. feel committed. It is also imperative that a good

Zadi Kessy confirmed that in 1987, SODECI reduced manager keeps in touch with all employees to developthe price of water by 15 percent and this lost of the company's spirit. There are regularly scheduledincome had to be compensated by a reduction of senior management meetings at SODECI as well asoperating costs and expenditures. To manage it some regularly scheduled meetings within each service atdrastic measures had to be taken, among them: a) headquarter and each distribution center. This is thevehicles were amortized over a period of five years only way for people to know about the company, itsinstad of three; b) fuel consumption was reduced performance and its problems. He indicated that hesignificantly; and c) 160 staff positions were can leave for one mronth, and the company willabolished. SODECI's staff worked relentlessly to continue because he has entrusted his managementimprove the financial performance of the Company. team with responsibilities; they can sign checks, theyAt the end of the fiscal year SODECI managed to accept the responsibility to mnanage; they know theirmke 250 million Francs CFA profits which allowed work and they are highly capable to perform their

wOlk without himt; on this basis he can trly say tht budgets ae et for each department or productionhe is not indispensable for the mnning of SODECI. centr.Mr. Kessy is convinced that it is not the position thatmakes the nmn but the mun that makes the position; On the subject of SODECI's own traininghe knows that the day he leaves SODECI one of his institute, Mr. Zadi Kessy indicated that they domanags will be there to suceed him with the full receive a large number of trainees from severalknowledge of the company's operations. African countries. Training is however an expensive

activity; therefore, water distributors interested inMr. Zadi Kessy gave some clarification to a using SODECI trining facilities and attending its

question on how the management by objectives program, should secure the financing from supportworked for SODECI. He explained that goals are set agencies. On that basis, SODECI is ready to helpevery year for the company and these goals ae other African water distributors.translated into yearly objectives for each department,production center, etc. The objectives by department The World Bank and the Africanor production center are negotiated and agreed upon Development Bank wish to express their gratitude towith each manager, they are quantifiable and the Mr. Marcel Zadi Kessy, President and Executivebonus/reward system for employees is based on the Director of SODECI and his management team notattanment of these objectives. He also indicated tbat only for their outstanding presentation but also forit is on the basis of these objectives that individual the support the Company has provided in the

organization of the workshop and conference.

PART IV

ANNEXES

ANNEX 1

WORKSHOP REPORT OF WORKING GROUP 1

IntroductionWith this objective in mind, participants

Group 1 wishes to congratulate the African agreed that of the three possible approaches-supply,Development Bak, the World Bank and the United wpply/promotion, and promotion-it is the last whichNations Development Progrmmme for their fortuitous gives the authorities a role in promotion/coordinationinitiative in organizing this Workshop, and for the that can best respond to the dtuation in theirpertinent Position Papers presented on the soctor in countrie,thefoliowingobservationsnotwithstanding:Africa. It also salutes the throe presenters for theirefforts in giving a synthetic view and for the interest * this approach must also be considered anthey showed to better facilitate the discussion objective to be followed by everyone

Group 1 was comprised of countries ftom * each country must be able to adapt it to itsthe Maghreb and from the Sahel. It wishes to situationunderscore their differences regarding the threetopics, particularly with respect to the characteristics The main conditions for the success of suchof rural areas and the achievements made during the an approach are:Inteational Drinking Water Supply and SanitationDecade (IDWSSD). They emphasized the three * the decentralization of the responsibilities forfollowing points: supply

* the Maghreb has an orgization and a * the emergence of local operators, public ortechnologica level different that those descibed private, formal or informalherein

1I. Resource Mobilization* the rate of coverage in the countries reprmsnted

in Grop 1 exceeds the average of 30 percent While recognizing the principle of chargingmentioned in the report for water at cost, the participants recommend that this

principle be modulated in consideration of the African* the level of intervention by the external spport countries' stage of development and the limited means

agecie is less significant in the Maghreb of ruta populations.coenuies

A consensus therefore emerged around theWhile aeng the close linkages between following points regarding cost recovery:

drinkable watr supply and sanitation, Group 1 notesthat ustatio was the poor parent of IDWSSD, and Although commumntes will be asked to increaseit recoindtal sataton receive special attention their participation, the bulk of the initialover the next docade. investment during the 90s, will be subsidized by

nadonal budgets, by evening-out tariffs and byL lauitutional and Sectoral Issues external support.

Givu the insufficiencies in sector planning, * Opeating costs must be the responsibility of thethe depesdence of the sector on external sources for beneficiary populatons, and cost recovery couldfinancn mad vanous supplies, the elevated costs of be facilitated by:coalta srvices and the weaknss of the reslts,Group I rommends the following as a major * enbancing hydrulic infrastructure by the gaftingobjechv beneficiary communoies should be of other income-generating economic activities tofiaxcay resxpsible for water supply and provide additional resourcessanuuaa

ANNEX 1

- crating nual finaci sydems of the 'caisse - a reduction of costs of works, particulrly ofde credit mutuel' type drilling

- developing an informal pnvate sectr - a pluri-nnual progmming of activities

A better use of subsidies calls for. Particular effort must be made for themobilizaion of resowurces and for cost recovery with

- their efficient utilization for operions egrds to sanitation.

- an improvement of the functioning of As a rsult, Group I ask that States andservices finacil agencies upport the development of the

sanitation sctor in the decade of the 1990s,- a cutting down of opeating costs in the especially through reinforcing the dissemination of

financing of works low-cost technologies such as those of CREPA inOuagadougou.

ANNEX 2

Introduction of projects, and in the operation of the works placedat their disposal.

During the Workshop on the policy for thewater supply and santation (WSS) sector in ural The role of coordination which belongs toAfrica-organized by the World Bank, the African the State, is perceived as follows:Development Bank (ADB) and external supportagencies (ESAs), and held in Abidjan, May 7-9, * all intervention in the sector must be1990-the delegates from the 10 African countries of submitted for the approval of the promoterGroup 2 considered the following topics: (coordinating structure)

1. Institutional Issues * the needs of the communities must benI. Financial Resource Mobilization communicated to the coordinating structure

HI. Rethinking Sector Management* the coordinating structure must be informed

During their discussions, Group 2 expressed of resource mobilization (financial andapproval of the position papers on the above topics. hydraulic)However, some important observations were noted,including: In the most simple case, where sector

activities are handled by a single department, the- communities benefitting from drinking water coordination must be assured by the supervising

points are often neither sensitized nor department.organized

In the case where actors are from various* sensilization and involvement of these ministries, it is recommended that a National Water

communities is a prerequisite for the Committee-with a permanent secretariat placed underimplementation of any water supply project the authority of one of the ministries involved--be

created or reactivated.These remarks are true both for Sahelien

areas, where the problem is caused by the scarcity of H. Fuuincial Resource Mobilizationresources, and for wooded areas, where the quality ofthe water is questionable. Grants and other financial resources of the

sector must be allocated to the various stages of theL. Institutional Issurs project-involvement, sensitization and training

(before, during and after project implementation).Geeally speaking, the role assigned to each After implementation, they must be allocated to the

of the actor depends on the nature and importance of follow-up and maintenance of the works.the activity. The role of the supplier must beretorned to the beneficiary communities who will in Given the low level of income of ruralturn need to call on the private sector, ESAs and non- populations, which is aggravated by the currentgovemmtl organizations. However, the necessity economic situation, it would be desirable forof encouraging and protecting local artisans (as financing to be integrated as much as possible withindispenable agents to ensure the durability of rural income-generating micro-projects.equipmen) sbould be emphasized.

The participation of the rural commnunity willTe role of the beneficiaries will consist of essentially consist of:

participattn in the development and implementation* supplying local materials for construction* the possible contribution of man power

ANNEX 2

* financial participation, in certain cas * coordination* the rwsponsibility of the maagement of the * sensitization and taining

works, aboe alRegrding legl aspects, Group 2 notes that

m. Rethiking Sector Management aldthough the comm_ ities ae generally responsiblefor supplying services, they ae not yet sufficiently

Group 2 recommends tht (i) in the future, structured to enter into contracts directly with ESAs.following the example of ADB (which took some Therefore, authorities from various countries willconcrete actions to strengthen the capbilities of local, have to strngthen the managerial capabilities of thesergional and African experts), other ESAs should com ities.give priority to existing loca expertise for technicalassistance; and (ii) regwding the selection of R matiommethodologies, each prject should systematicallyinclude a substantial trinng component both for the To avoid a recurrence of the failures of thebeneficiaries as well as for the national technicians lad Decade, it would be advantageous:and experts. This would cut down the need forexpensive foreign technica assistance which impoeds * to perform institutional studies by country inthe development of local expertise, order to find solutions appropriate for each

countryTo gurantee the durability of existing

works, the training and organiation of village * to widely disseminate to governments andcommittoes for managemt and maintenance of ESAs the recommendations emanating fromworks must be emphasized. Their follow-up under this Workshop and other similar activitiesthe coonrination of theo promoter must daso bestessd. To that end, Group 2 recommends:

In most Afncan countries at present, the * a wide dissemination of the conclusions andState plays the part of a supplier/pronoter in oendations of the Workshop by itsnational programs for ruml WSS. In the 1990s, the organizers to our governments and otheraim will be to progressively discharge the govemnment ESAsof its role as supplier of services, and to favor theother actoin the sector. This will allow the State * a true adherence of our States to theseto be uniquely dedicated to the role of promoter and conclusions and recommendationsto assume the following tasks:

an effective implementation of the* control, follow-up and evaluaion conclusions and recommendations in* planing/budgeting prgms tailor-made for each country's

situation

ANNEX 3

Introduction progressive and must take into consideration thespecificities of each country. It must be noted that

The fruitful discussions of Group 3 were this disengagement only involves the activities forbased on presentations of the following topics: which the communities could acquire and assume

their autonomy.1. Institutional Issues

II Financial Resource Mobilization * The understanding that payments for amortizationIII. Rethinking Sector Management is an essential condition for the durability of

equipment: amortization allows an increasedGiven the complementary nature of these cash-flow to the communities, and thus

topics, Group 3 decided that they should be treated in diminishes their need for external assistance fora global and integrated way, and thus the conclusions the renovation and extension of works or for the

are presented in a single document. implementation of new investments.

During the discussions it became clear that * Donor agencies should not tie their aid tothe main theme could be restated as follows: 'How conditions which are not consistent with thedoes one implement durable water supply and priorities established by the beneficiary countries.sanitation (WSS) systems for all in rural areas?' Indhed, tied aid demotivates governments because

it causes an unbalanced development in the"Rural areas' is defined as (i) villages or a countries.

series of villages; (ii) whose inhabitants' predominantactivities are agriculture and cattle-raising; and (iii) * WSS activities in rural areas do not constitute anwhere WSS can only be achieved through simple end in themselves, but are seen as being part of

systems which must be managed by the community an integrated mral development. Thus, foritself. optimal results, these activities must be conceived

in a framework of integrated developmentPrinciples Observed projects, taking into consideration the priorites

of the beneficiary community.The discussions on the reformulated theme

lead to the following general principles, which were Condusions and Recommendationsunanimously endorsed by the participants:

It would be appreciated if, during the* Water and sanitation are two components of the preparation of conferences such as this one, the

same problem and therefore can not be dealt with paticipatng countries could be involved in theseparately. Indeed, all water for biological or development of the working documents.industrial use becomes, after consumption, liquid AdditionaUy, the documents should be made availablewaste whose drinage poses a sanitation problem. prior to the conference in order to facilitate the

I effectve participation of the delegates.* The great number of actors involved, each having

a dynamic role to play, generates a complexity An observance of the principles put forwardwhich is expressed at various levels and for by Group 3 implies a deep political commitment.various interventions (see Table I, II and III). This commitment can only be obtained to the extent

that the technicians who have participated in this

* Each actor's responsibility is progressive in time Workshop manage to convince the politicaland space: the disengagement of control from authorities in their respective countries that thesethe State to the beneficiary commmunities must be proposisitions are well founded.

ANNEX 3

A better coordination of donor agencies in a more predominant role in the selection ofthe selection of their interventions is desireable. technologie and in the necessary financing.Various actors intervene in the initial equipment, inthe mnagement, and in the renewal or extension of For the development of rural water supply, thetual water installations. These actors, be they public following must be taken into consideration:or private, formal or informal, have responsibilitieswhich vary according to the type of operation and the * Functions ofpromotion or initiation-the trainingtime of its implementation. of the population, the identification of needs and

resources, the development of appropriate* This is particularly true in the case of the initial legislation, etc.-these functions are the

equipment activities, which involve an assessment responsibility of the authorities who act in theof the demand, an identification of resources public interest and who must know how to(water, financial, technical, etc.), the selection of subordinate the particular interests of this or thata technological option, the development of a private actor.financing policy, the enforcement of laws andregulations, and the mobilization and training of * Works, Actions-the works must be done bythe population. The role of national actors private operators, whether formal or informal,(ministries of all sorts, national water societies, regardless of the nature of the task. Whenetc.) is very essential. private operators do not exist, the public

authority may temporarily substitute itself, but- At the local level, the community and its actors it must crete conditions enabling private

also have a role to play. They must make their operators to take over. In other words, it mustdemand explicit, train those responsible for the create a market for rural water supply.water points, and contribute either financially orin kind to project implementation. * Foreigners-donor agencies, non-governmental

orgnizations, private companies, etc.-can play* Once the first works are realized, the role at the a role in this process of promotion or incitement

local level will become very essential, but, also by lending their know-how and demonstratingwith specific responsibilities at the regional level the practices of elsewhere. They can also be(creation of a inventory of spare parts, responsible for the implementation of the worksprogressive formation of teams capable of when there are no public or private operators.undertaking more important repairs, etc.)

In conclusion, let us not forget that these* When the time comes for renewing or expanding suggestions nd principles evolve with time, and they

installations, the local level should normally have are dependent upon the specificities of each countryand each region.

TABLE I: Levels of Actors and their Roles

ACTORS

OPERATIONS National Regional Local

First Equipment 3 1Oprations and Maintenance 0 2 3Rehabilitation and Extension 2 2 2

ANNEX 3

TABLE U: Actors

ACTORS

NATIONAL FOREIGN

FUNCTIONS Public Private

Promotion (Initiation) 1 0 1Action 0 1 1

TABLE III: Roles and Actors Involved in the Rural Water Supply and Sanitation Sector

A C T O R SGov't Region Local Comm- Formal Informal Donor Foreign

P O S T Auth. unities Priv. Sec. Priv. Sec. Agencies Actors

1 Regulation 3 1 12 Planning 3 2 2-3 Resource Mobiliz. 3 1 2 2 2 14 Creation of Rural Mkt. 3 15 Industrialization 3 26 Select. of Technology 3 37 Training 3 2 2 3 2 28 Coordination 3 2 2 2 29 Control 3 2 2 2 210 Proiect Ident.lFormul. 3 1 1 311 Initial Infrastructure 3 1 1 212 Imolement. of Wks. I I 1 3 3 2 213 Maintenance 1 3 314 Rehabilitation 2 1 1 315 Renewal 2 316 Operation 1 3 2

3 - maximum 2 - average I - minimum

Comments: I

* Actors should complement one another. * Coordinating structures for all activities andactors involved in the WSS sector should be

* We recognize the non-negligible role played by created or reinforced in order to achieve a betterthe informal sector, which in the future should use of investments. Women's associations-be better directed by the authorities-through regardless of their structure or their level oftrining activities and the choice of appropriate involvement-must be integrated in theseinvestments. coordinating structures.

ANNEX 4

I. Institutional Issues * Should governments shift their emphasis fromprovision to that of promotion? What are the

The first session was presented by Mr. K. operational implications?Khotle of the African Development Bank. Mr.Khotle presented salient points, such as that on A long discussion followed, and some of theaverage less than 30 percent of the rural population participants presented the experiences in variousin Africa has access to safe water supply. He countries. It becme clear that in most countries theclarified the definitions of 'rural community' and central government provides for the communities, but'demand' as used in the context of this workshop. the latter have no role in that provision. Therefore:He also identified the various functions and classified (i) the local govemment structures, i.e., communities,the activities undertaken in the rural water supply and should be strengthened and there should be a switchsanitation (RWSS) sector, namely: regulatory, to promotion; (ii) the switch from the centralplanning, capital finance, outreach, delivery, and government as provider to the communitymanagement. These functions were identified as determining its needs should be accompanied byeither "promotion' or "provision.' Mr. Khotle institutional infrastructure, i.e., the availability ofgrouped the African water supply situation into three funds for rural areas; and (iii) because a change fromcategories: (i) self provision for the poor, dispersed, provider to promoter requires political will,unorganized; (ii) conmunity provision for the better politicians should be brought into play (especiallyorganized; and (iii) utility provision for the urban. since in the present structure most governments are

obligated to provide services for the remaining 70Mr. Khotle identified six distinct institutional percent not covered).

issues relating to African RWSS: (i) highlycentralized govemnment but low incentives; (ii) weak Conclusions and Raemmmendationslocal govemrnment and bodies; (iii) a wide range ofgovemment institutions and little coordination; (iv) Group 4 agreed in principle that there is aweak private sector often excluded from services; (v) need for governments to shift from provision toseriously constrained local manufacture; and (vi) promotion, and that community institutions shoulddistortion aggravated by extemal grant financing. be stregtened. Group 4 recommended that this

shift be taken cautiously and go hand-in-hand withThe last point Mr. Khotle touched upon was the following:

the three possible approaches within the provision andpromotion spectrum: *provision,' 'provision/ * As politicians play a major role, they should bepromnotion,' and 'promotion.' He concluded that the brought into the picture earlier about this'promotion' approach is favored because it gives apprach, either through an intemational forumcommunities the greatest involvement and the most or in their countries.initiatives.

* The change from the present system to theDiscussion proposed approach should be gradual over the

coming decade. This change should take intoThe discussion focused on the following two consideration affordability and equity for the

topics: beneficiary communities.

* What are the possible roles of the public sector, * The implications and operation factors should bethe private sector and the beneficiaries themselves studied, perhaps through case studies fromin the provision and management of RWSS? different countries, before making

recommendation to their respective governments.

ANNEX 4

11. Fnanial Resouce Mobilihation Discusion

This topic was presented by Mr. Harvey A. A long discussion ensued from the floor,Gan from the World Bank. In his presentation, he which can be summarized as follows:mentioned three options to be considered, namely:(i) to continue present financial strategies; (ii) to * Which services should receive subsidies? Willincrease the level of share of subsidy for the sector; starting to charge now be acceptable by usersor (iii) to increase the share of costs borne by users. who have been receiving free services?

He then examined the following criteria used * It is difficult to collect charges from theto assess these options: (i) the effects of distribution, consumers/uss, especially from consumersderived from the responsibility for payment and using public utilities. This problem is worsenedaccess to service; and (ii) the effectiveness of the when the users are aware that the money is goingutilization of funds. to the central government rather than remaining

in the area.Mr. Gamn also considered the macroeconornic

background, defining the main features as: (i) a * Group 4 generally agreed that a good approachgenerally large debt to export and debt to gross may be to leave the collection of charges fornational product ratio; (ii) a reduced per capita services rendered with the communities.incone; (iii) investment levels that increase less thanpopulation growth; and (iv) a rising per capita cost of * In order to reduce costs (and hence charges) toservice provision. poor people, the providing of services should be

adapted to low-cost technologies.He then expanded on the three options

mentioned above, on past practices, on CondusioIs and Recomunendationsdemand/willingness to pay, on institutionalarrangements, on charging structures, and on levels Group 4 concluded the discussion with theand options for capital cost financing. following recommendations:

Mr. Gan's conclusions were as follows: (i) * There is a need to San charging the users somecurrent financial strategies are unsatisfactory; (ii) fee for cost recovery.increasing the subsidies alone is not an adequatesolution; (iii) cost recovery from users has * Capital costs should be borne by the centraladvantages, but mechanisms and conditions must be governMent and the operation and maintenanceappropriate to this end; and (iv) full cost recovery should be wholly or partially charged to thefrom users is not yet possible, and thus subsidies are consumers on a gradual basis until full recoverystill required. is achieved.

* Effective demand or willingness to pay shouldbe demstat by the user community througha token contribution for services.

ANNEX 5

1. Institutional Issues Central govermments should seek efficientways of facilitating sustainble provision of services

In his presentation of the above stated paper, for rural communities. In so doing, Group 5 agreed

Mr. David Grey of the World Bank highlighted the that the perception of the govermment as the provider

fundamental institutional problems that have been of these services should be gradually phased out, andobserved during the International Drinking Water service provision by other actors such as local

Supply and Sanitation Decade. He also emphasized authorities, the private sector, NGOs and the

the lack of sound institutional strategies in the rurl communities themselves should be promoted and

water supply and sanitation (RWSS) sector and the facilitated instead.need to address this situation by considering thefollowing questions, upon which the subsequent This promotion/facilitation role of

discussion of Group 5 was focused: governments should include, among other aspects:

* the possible roles of the public sector, the * providing financial resourcesprivate sector and the beneficiaries in the * ensuring a sound regulatory and policy

provision and management of RWSS framework- plnning, designing and standardizing

- the shift of emphasis by governments from * educating communities to enable them to

provision to promotion and the operational make decisions and manage servicesimplications of such a shift * supporting appropriate affordable

technologiesIn discussing these two principal issues, * strengthening the capacity of the informal

particular attention was paid to the re-orientation of and formal private sectorsthe governments' role from provider to promoter, * coordinating sector activitieseven though in some countries the role of govenmentas promoter has been recognized in the form of Given the socioeconomic situation in many

coordination, animation/sensitization, public countries, centra -governments may need to

education and community participation. In spite of participate as a provider of services to the rural

a consensus to redefine the goverments' role as communities in the short- and medium-term, while

promoter, Group 5 acknowledged the difference decentralization and local capacity building occurs.

between community participation and community Both the time frame and nature of the shift will varymanagement, and recognized that comprehensive from one country to another depending upon the

community management would be difficult to realize political, economic and environmental conditions.in the short- and medium-term. Rather, gradualefforts should be made to transfer the responsibilities As a final conclusion, Group S stronglyto community management. encouaged the development of an institutional

framework to guarantee sustainability.Conclusions and Recommendations

. FMnancial Resource MobilizationOne the primary roles of the government

within the development process of RWSS should be This paper was presented by Mr. Mbanefo

capacity building at all levels of society, including of the World Bank, who invited Group 5 to consider

the public and private sectors, non-governmental the following points as highlights for discussion:

organzations (NGOs) and the rural community.Capacity building should create an enabling * How can cost recovery be made feasible?environmnt within which the demand for services * How can subsidies be better utilized?

could be imet efficiently and effectively by appropriate * How can the financial performance of the

institutions, responsible organizations be improved?

ANNEX 5

* How can the performance and role of the as grnts, perhps on some matching terms ufinancial intermediates be strengthened? govenunent grants, in order to promote deveopment

of the RWSS sector.* Should development ideas and initiatives

come from local communities to central Group S considered that beneficiaries shouldgovernment, rather than the other way be encouaged to develop initiatives and ideas onaround? RWSS development programs rather than being

directed by central governments at all times.Conclusions and Recommendations

m. Redhinking Sector ManagenentIn considering the above points, Group 5

discussed in detail the issue of total cost recovery, In his presentation, Mr. Laubjerg ofwhich was defined as the total capital cost plus DANIDA focused the attention of Group S on theoperation and maintenance costs for services. Since five following issues:water is a basic need of rural communities who aretypically very poor, Group 5 concluded that the * documented policies and stategiesconcept of cost-sharing-that is, less than full cost * mechanismsfor interal and extenal coordinatonrecovery-is more acceptable, both politically and * control of external support agencies (ESAs)morally, than total cost recovery. Governments * the role of ESAs in developing sector frameworkshould facilitate the provision of RWSS services by * the role of governments in initiating sectorassuning the major proportion of capital cost, whilst planningthe beneficiaries would assume the full operation andmaintenance costs and also contribute to the capital Condusions and Recommendationscost in cash or in kind.

Group 5 firmly endorsed the need forRegarding subsidies, Group 5 expressed goverments to take strong initiatives in developing

concern over the common practice of the and enforcing sound sector policies and legislation inindiscriminate use of subsidies. However, Group 5 order to improve the use of scarce resoutres. Grouprecognized the need for subsidizing capital cost and 5 rcgid that few countries currently have stucmajor rehabilitation, as well as support services such a policy framework.as training and extension.

Within a sector policy framework, nationalIn view of the limited coverage of RWSS in sector institutions and ESAs can provide coordiated

Africa and its high costs in comparison to elsewhere, support. In this regard, donors should limit orGroup 5 recognized the need to both (i) reduce costs renmve conditionalities, as their support would bethrough improving the financial performance of sector defined within a sound national policy framework.organizations and adopting appropriate technologies;and (ii) raise additional financial resources at different It was recognized that effective coordinationlevels within the country as well as externally. can be jeopardized by ESAs who are not willing to

conform to expressed policies and strategies.Banks and other financial intermediaries

should be involved and contacted in community Special coordinating mechanisms for themobilization and sensitization efforts of governments sector have been established by some countries, butsad wector development agencies. Banks should be governments are reluctant to dictate conditions toencouraged to lend to artisans, pump and spar-part ESAs for foar of loosing sector support. On themanufacurers, and other business entities working in other hand, some ESAs tend to withdraw theirRWSS. Govemments could consider requiring banks support if sector development does not lead toto contribute a fixed percentage of their profits effective utilization of facilities on a sstained basis

ANNEX S

due to lack of adherence to expresd govnment ESAs in Group 5 welcomed firm control bysoctor policies and strategies. gwamnents of sector policies, and volunteered

upport in the prepartion of uoctor developmentA well-documented frmework can serve u framworks. However, concern was expressed by

an offective tool for internal nd exteral coordination Group 5 that such support not jeopardize the overallof sector development through the normal govemment responibility and authority of govemnment in the areamachinmay. Adaptive plnning and monitoring can of sector managemet.bost be done at a decentralized level.

ANNEX 6

CONFERENCE REPORT OF WORKING GROUP 1

Chairman: Mr. Cardoso, Secretary of State for Natural Resources of Guinea BissauRapporteur: Mr. Lahlou, Finance Manager, National Dridking Water Office of Morocco

Introduction Furthenmore, Group 1 stresses the importance ofthe following points:

Group 1 reviewed the objectives and strategiesof the water supply and sanitation (WSS) sector * The provision of potable water and sanitationbeyond the Interoational Drinking Water Supply and services must be a global approach-not a partial,Sanitation Decade (IDWSSD) and agreed upon the sectorial, technical or technological one. Thisfollowing observations and recommendations. approach must encompass aU aspects of the

sector, including environmental factors with aObservations and Recommendations direct or indirect impact on the quality or the

quantity of water appropriate for humanGroup 1 noted that African countries are consumption.

currently facing challenges in the field of WSS whichthey will still be confronting during the next decade. * All measures that favor the preservation and theThe sector must not only make up for being behind protection of water resources should be taken.schedule, it must also address the increasing demandresulting from the demographic pressure caused by * Project planning and implementation should benaturl population growth and urban drift. This based on effective demand and on covering needschallenge is all the more important because water is for a period determined by economic activities.a limited resource of increasingly acute scarcity, andbecause this crucial and necessry resource faces * Special attention should be paid to sanitation,mounting risks of contamination and pollution. and cost recovery should be strongly encouraged,These problems are aggravated both by the financial as should related training and extensionseverity some countries are forced to adopt and by activities.the natural disasters (draughts, desertification, etc.)that effect resources as wel as economies. * Attention should also be paid to the drinking

water supply in rural and pen-urban areas.In spite of these problems, and because the

provision of WSS services-at least with reciprocal * An adequate legal and institutional environmentinteraction-is the essential element for improving the for the promotion of community participation athealth and hygiene conditions of the populations and every cycle of a project should be created.for conmbatting water-related diseases (especially * Such an environment should also promote theDracunculiasis) Group 1 recommends as an objective participation of women in every cycle.the provision of adequate WSS for all by the year2000. * Sensitization, the relaying of information, and

the training of the population should beIn this context, Group 1 considers that the promoted, using all appropriate means (mass

documents presented by African Development Bank media, health education, etc.).(ADB) and the Union of African Water Suppliers(UAWS) serve as a valid basis for the definition of * The necessary training-at all levels-should beWSS strategies for the years beyond IDWSSD. These dispensed to ensure the success of projects anddocuments, which complement one another on certain of cost-saving measures.points, should also take into account the Workshopreport presented by Group 1. * Loca skills should be developed.

ANNEX 6

* Cost reductit should be sought, especially * It is imtant to aim at the bost conmtry-levelthrough the ue of appropria technologies; to coordinaion possble, involving all actonthat end, applied esech should be developed .and eourged ihough the involvement ofuniversities and roseafch institutions. * lho promotion of both regional coopeation

(among countries with similar characteristics) and* Drinkig water and wase water standards, with intrational cooperation is vital.

refronce to the stands of the World HealthOrniaition, should be adopted nd adjustd to * Te implementtion ofan institutional framworknational reaities and possibilities. sowing clearly the respective responsibilities of

tho govenments and the public- or private-sector* Te edsablismt of uctum for quality institutions is essential.

control and for the implementation of stndards(monitoring nd ion boratories) shouldbe encoua . Finally, Group I deems it necessary to: (i)

premt the rocommendaions of this meeting to the* Country-specific objectives, implementation Now Deli Conference; and (ii) entrst a committee

ategies, progrm and actions am deemed of African individuals and institutions (such as ADBnecssary. and UAWS) with the follow-up on the

implementation of the reoommdatons for the nextdwcade.

ANNEX 7

Chairn: Mr. Nenonene, Chief, Natioial Sanitation Service of TogoRapporur: Mr. Aboki of CoDP

Co-Rapportour: Mr. Mangnoungou, Chief, Rsarch Division, SNDE of Congo

Group 2 met to review the SmuegrifsJor the * In urban are, national solidarityI99s prposed by the African Development Bank. requirs that the water rato be baod onMr. Zono briefly prsted the docment, aftr cross-ubsidization, so that rich areaswhich the diwcouion focused on the following support the poorr one.topics:

* In poe-urban and mal aras, the notion* To what extent is the document- of effective demand should be

proposed a a guideline for govenments introduced gradually in order toto establish a national sector ultimately reach financialdevelopment strategy-in line with the self-sustainability.main conclusions of the Workhop?

Rogwding point 4, the following masre- What amexdments should be made to the ar proposd:

doumet for it to be offctively uod?* inform the population on the advantages

Regarding the firt point, Group 2 of savinsunanimousy acoept the need for new rateies forthe watr supply and anitation cr in the 1990.. * encourag the creation of credit unionsIn this respct, the documet conside the followig that will eable the mobilizaio of rualconrs exprssd during td Wokhp: avingp

* Selection of apoprite technology * introduce revenue-generating* Community participaion microoec aumong pments* Health education* Financial self-rliance (coat recovey) * simplify the procedures for obtining

creditsWith rpect to the scond point, Goup 2

doem it necessary to modify the propoed Docment Regarding point 5, the following(se Spef Comments below). observatons wer made:

Gou 2 also considered th subsidiary * In the simple case whro one departmenttopics, ad wishe to record the following: controls all sector Activities,

coordination should rest within thatRegAding point 3 (effectiveoemantau department.

basis for im enbts and long4term usnabilitythroug wsr payments): although agreeing in * In the cas where soveral mnstries areprinciple. Group 2 stesa the necesity for a involved, a National Water Committee,di in between urban and peri-urban or rura with a permanent secrtar under oneara: of the ministries, should be created or

roectivate.

ANNEX 7

Finally, regarding point 6, Gup 2 pogram-con between the govezuwet anduanimously considered that the proposed procedure pratl oraizations, enuring the financial andshould not be regarded as a bureaucratic exercise, nmiga autonomy of the batter. Privatizationgiven the fact that its implementation calls for the should only be contemplated when these intermedayparticipation of all sector actors-amely, the solutions hve no chance of success.beneficiaries, the govemment, the extenal supportagencies and the non-governmenal orgaizaons. Regarding pam 19 (formerly 17): ResourceThe awensm of the various actors must be mobilization includes the collection of funds forheightened to obtain both their support and their design studies, construction, awareness-building,effective participatioo at the various stages. In the outreach, maintenance, etc.action plan, the roles of the various actors should bewell defined, and egular evaluations should be Pra 21 (19): Replace with: 'A more rigorousplanned. approach to affordable effective demand and to user

ability to pay is required for an improved design andSpecific Comments a more adequate specification of equipment.'

Among the 'sector objectives,' and under that of Par 28 (25): Add: 'To this end, it is necessary toimprovement of health and of humn productivity, encourage and support on-going applied researchspecial mention should be made of the eradication of efforts in various centers.'water-related diseases, especially Dracunculiauis inthe countries where it is endemic. Pars 31 (28): When water resources are insufficient,

priority should be given to the provision of drinkingUnder 'policies,' the sentence on rsouce allocation water.and cost recovery should be reformulaed as follows:Resource allocation and cost recovery lead to Pam 32 (29): Before the item on privatination, anfinancial self-sufficiency of the sector, and ultimately item should be added to invite govemnments toto the principle of user payment for setvices. establish program-contracts between supervisory

authorities and parlstat organizations.In pam 16, Group 2 acknowledged that a betterefficiency can also be reached through

ANNEX 8

Chairman: Prof. Kadima Mwamva, General Secretary, CNAEA, ZaireRapporter: Mrs. Kabamba Bilonda, CNAEA, Zaire

The document Strategies for the 1990s, We cannot conclude this report withoutpresented by the African Development Bank (ADB) thanking the organizers of this event, who enabled usand submitted to the scrutiny of Group 3, has been to exchange constuctive views and compare notes on

analyzed point by point with gret care. the development of the water supply and sanitationsector in our countries. We are also grateful for the

The lively debates, reflective of the unique opportunity to participate in the formulation of sectorinterest of Group 3 for the proposals of this strategies for the 1990s, which will allow us, throughDocument, can be interpreted as a global approval of improved coordination and support of national as wellthe text. However, in order to stay in line with the as foreign actors, and through the optimal

recommendations of the Workshop on Rural Water development of South-South and North-SouthSupply and Saonitation, Group 3 agreed on the partnerships, to reach the objectives defined by eachmodifications presented herein (see Specific of our governments, based on the experience gatheredComments below). during IDWSSD.

Furthermore, so as not to offend sensibilities Specific Commentsthrough tendentious or useless statements, Group 3unanimously decided to remove paragraphs 51 and Summary, para 9: delete "rainwater drinage and53 (former 47 and 49). solid waste removal,' as these ar understood to be

part of sanitation.Recwm men dati on s

Pan 4: *The objective of this paper is to help

Group 3 recommends that ADD continues its countries develop a strategy ....active support and promotion of the formulation andmiplementation of sector stategies and development Pam 8, last item: 'Provision of basic services, to theplans in member countries. extent possible, to the greatest number of people.,

Add two items: (i) alleviation of the water supplyGiven that the goals of the International burden; and (ii) protection of the environment, and

Drinking Water Supply and Sanitation Decade particularly of water resources.(IDWSSD) have not been reached, it should beextended by ten years in order to maintain national Pan 9, add two items: (i) promotion of and supportand international attention. One way to accomplish to sector-related local enterprises; and (ii) promotionthis is to implement task forces at the regional and of partnerships.continental levels, charged to monitor the progress ofsector development. Parm 10: '...The steps consist of: (i) General points

on the sector; (ii) Constraints; (iii) . . .-.Finally, Group 3 unanimously endorsed the

conclusions of the General Managers Meeting of the Pan 11, new title: *General Points on the Sector.'Union of African Water Suppliers (UAWS), held inLom6 on March 20-22, 1990. Par 12, new title: 'Constraints.' 'Its purpose is to

present the major constraints ....

l, :1 '~ iii

~~IZ :{ [

I X I X ,.i

ii illi. II

ANNEX 9

Chairnan: Mr. Sandile Ceko, Principal Secretary, Ministry of Natural Resourcs and Energy of SwazilandRapporteur: Mr. Balisi Khupe, Deputy Director, Department of Water Affairs of Botswana

Group 4 met to discuss the document, * Expansion or maintenance of existingStrategies for the 1990s, prepared by the African systems by the communities/users shouldDevelopment Bank (ADB) for this Sector Conference. go hand in hand with mechanisms.

Mr. Mhango presented an outline of the * Gnt money is different from loandocument, briefly addressing the various phases for money and governments are morestrategy formulation. He cautioned Group 4 that the atcted to gants because they do notprivatization process should be treated carefully in have to be paid back.most African countries and, that if change isrequired, the process should be gradual. * Strong democatic structures should be

etblshed at the community level beforeIn considering strategies for the coming communities are given the full

decade, pen-urban settloments near towns/cities responsibility of nning the system.should also be included since they are problemadcand have no water supply and sanitation (WSS) * Strategie and development plans shouldfacilities. be integrted, i.e., all the sector strategies

and development plans noeded by theDiscussion community should be simultaneously

rodized.The discussion that followed ensued from the

group sessions of the Workshop, and similar feelings Group 4 decided that its finalwere expressed. ondons would be based on the 10 points

ouggeted in the summary of the above-mentionedThe general points which arose from the document p tared by ADB. Group 4 adopted some

discussion are as follows: of the poins as they stand and oters with correctionsn additions, as follows:

- Existing systems should be reviewed fordifferent countries and should be * Eah country should fonmulate a sectorconsolidated before new hemes are deopmentstratogy, defining, inter alia,brought in. sector objectives, institutional

responsibility nd authority, and policies* Most African countries have plans and for resource allocation and cost recovery

strategies, and these should be reviewed (at govermental request, ESAs mayfor the coming deade. If thesestrtegies advise on the formulation of thisexist, then the external support agencies srtegy).(ESAs) and/or non-governmentalorganizations (NGOs) can analyze them * All participants in sector development,before deciding whether or not they can both ESAs and country organizations.fund projects and become should be governed by this developmentcollaborators/partners. strategy. ESAs should increase

collaborative and complementary* Recipient governments have the right to activities to enhance sector

shop around for funds rther than be offectiveness.subjected to the tied aid offered by someESAs.

ANNEX 9

* Investments should be based on effective brng decision-maling closer to the user.demand and long-term sustainability by Privatization should be part of thisthe users (dhough payment or through restructuring, as appropriate.their efforts) of the facilities built.Tariffs set to recover the cost of service * Technologies should be appropriate forshould ensure the financial viability of the socio-cultural conditions of thethe service organization, economnic communities they are designed to serve,efficiency and social equity. [Group 4 and should be the least-cost solution torealized that this strategy is attainable solve the problem at hand.under good conditions, but in times ofdisaster, governments should intervene * To accelerate service to the underserved,and play the role of provider.] investment priority should be to provide

the maximum number of people with at* The sector's access to capital markets and least basic services before upgrading the

private savings should be promnoted service standards of those alreadythrough the creation of appropriate receiving adequate service.financial intermediaries. [Group 4 feelsthere should be further elaboration * The scope of sector services should beon/expansion of the approach by ADB, expanded to include water supply,since setting up financial institutions in sanitation, rainwater drainage and solid-different countries could be a difficult waste removal. Hygiene eduction shouldtask. be an integral part of all water and

sanitation projects.* Rehabilitation and maintenance of assets

as well as effective management should * The members of the Collaborativebe given priority both for operational Council should promote globalreasons and to make the sector more collaboration and the dissemination ofattactive to investors. infornation helpful to country sector

agencies. The Council should assist the* Comnunity and especially women's regional and sub-regional agencies

participation must be an integral part of increase both the knowledge andall project development and competence of sector staff and theimplementation, varying only in degree awareness of decision makers in regionalbetween conventional urban and countries through, inter alia, regional andperi-urban or rural projects. sub-regional consultations, workshops

and seminars.* Institutional decentralization and

rstructuring should be implemented to Group 4 believes that the lead agency, i.e.,ADB, should present the Region's formulatedstrategies to the New Dehi Conference.

ANNEX 10

Chairman: Mr. Birru Ittisa, General Manaager, Water Supply and Sewerage Authority of EthiopiaRapporteur: Mr. Peter Sackey, Director of Rural Water Development of Ghana

Mr. Tomnaro gave a brief introduction to Topic 4: To increase access to capital, it wasStrategiesfor the 1990s and suggested that it be used proposed that: (i) communities be encouraged toas a guideline for developing countries to prepare form credit unions; (ii) external support agenciestheir own strategies for the 1990s. He advised the (ESAs)-including NGOs-consider providing grants,participants that they should not assume the position low-interest loans, revolving funds or guarantees toof engineers and others working on water supply and communities; and (iii) govemrnents encourage thesanitation (WSS) projects but rather that of policy- formation of rwal banks to facilitate lending toand decision-makers. After briefly reviewing the communities for sector projects. ThisDocument and the discussion topics, Group 5 chose recommendation is in accord with the position takento examine and formulate recomnmendations relevant by Group 5 during the Workshop.to the suggested topics.

Topic 5: Group 5 endorsed the primary role ofTopics 1 and 2: It was proposed that Strategiesfor governments in setting policies and determiningthe 1990s was generally in accord with the priorities in the sector, and therefore encouraged theconclusions reached during the Workshop, with the formation of a national body that would take the leadfollowing exceptions: in policy formulation and the coordination of

activities in the sector. These bodies would benefit- The important role of non-govermmental from access to an information center on sector

organizations (NGOs)/private voluntary activities within the country and other Africanorganizations in institutional development countries. Furthermore, it was suggested thatshould be acknowledged. collaborative meetings of African governments and

ESAs take place on a regular basis, and that regional-* A paragraph emphasizing the need for level meetings be organized by ADB with assistance

govermment action, enabling communities to as necessary from the rul WSS offices of the Worldimplement income-generating activities, Bank/United Nations Development Progmme insbould be added. Abidjan and Nairobi. In addition, countries should

continue to play a more important role in thed A shift in the role of government from activities of the Collaborative Council.

promoter to provider of services needs to beinccwporated. Topic 6: Group 5 concluded that the steps for

securing the development, approval and* Regrding paragraph 9 of the summary implementation of sector plans and programs are

(which calls for the inclusion of rainwater appropriate. Since these steps are interconnected,dminag nd solid-waste disposal in the ESAs should be involved at each stage, even thoughsector), the implication is one of policy ownership of the plans resides with the government.formation rather than implementation. To reduce the time and cost associated with the

development of documents, local consultants familiarTopic 3: In response to the statement that with national conditions should participate. The'Investmosb should be based on demand by the users participants also noted that ESA financing for theseof the fciltis built,' it was decided that "ability to activities would be considered and, at times,pay' as wa1 as 'willingness to pay' should be taken welcomed.into accou_ This is because most African countrieshave foud it difficult to define and apply As a final commnent, Group 5 expressed itswillngm-y criteria.' gratitude to the chairman and asked the rapporteur to

express his appreciation to all the organizers whomade this Conference possible.

ANNEX 11

COUNTRY DEEGAT

ALGERIA BOTSWANAMr. Mohamed Ouahdi Mr. Balisi Benard Jibichibi KhupoM6decin Sp6cialiste Deputy DiroctorMinistere do la Sant6 Department of Water Affairs15 rue Marengo P.B. 0029Alger Gaborone

Mr. Obonetse Alfrid MasediPrincipal Water EngineerWater DepartmentP.B. 0029

ANGOLA GaboroneMr. Relvas Rerraz DambiDirecteur National des Eaux BURKINA FASOSecretaria de Estado de Urbanismo Habitacao e Agua6 Mr. Tass6r6 CongoCx Postal N@ 890 tng6nieur Hydrog6ologueLuanda Ministmre de P'Eau

Direction des Etudes et de la PlanificationMr. Olivera Vicente Jos6 Manuel 03 B.P. 7025Chef du Secteur de l'Hygibne et Assainissement OuagadougouMinistere de la Sant6Direcao Nacional de Saude Publica Mr. Abdoulaye KoneRua 1° Congresso Ing6nieur G.R./Directeur TechniqueCx Postal N° 1201 Office National de l'Eau et de l'AssainissementLuanda 01 B.P. 170

Ouagadougou

Mr. Seri PafadnanamIng6nicur Hydrog6ologueMinistbre do 1'EauDirection R6gionale de l'Eau

BENIN B.P. 81Mr. Mamadou Abouki D6dougouIng6nieur do l'Equipernnt RurdDirection de l'Hydraulique BURUNDIB.P. 385 Mr. Phocas NtungwanayoCotonou Directeur Gen6ral de IAm6nagenment du Territoire

des Eaux et ForbtsMr. Lazare Ensile Amuna Ministbre de I'Am6nagement, Tourisme etDirecteur du G6nie Sanitaire et de l'Assainissement EnvironnementMinistre de la Sante Publique Bujumbura7 R6sidence AXWFFA PK 6Cotonou Mr. Dominique Nyandwi

Directour G6neral de I'Hydraulique et des EnergiesMr. Andr6 Toup6 RuralesIngenieur de Developpement Rurd Ministbre du Developpement Rural et deDirection de l'Hydraulique l'AssainissementB.P. 385 B.P. 1192Colonou Bujumbura

ANNEX 11

CAMEROUN COTE d'IVOREMr. Emmanuel Hell Mr. Kouadio An-niIngenieur Sous-Dirocteur de l'Hydraulique UrbaineMinistore des Mines, de l'Eau et d'Energie Ministere des Travaux Publics, des Transports, de laYaound6 Construction et de Urbanisme

AbidjanMr. Jean Claude KouadoIng6nieur Mr. Anzeni DjoukaMinisttre des Mines, de l'Eau et de l'Energie Diwecteur de l'EauYaounde Ministere des Travaux Publics, des Transports, de In

Constuction et de l'UrbanismeAbidjanMr. Goorge KakadieDirecteur Adjoint de l'Eau

CAPE VERDE Ministere des Travaux Publics, des Transports, de laMr. Emanuel Monteiro Construction et de l'UrbanismeDirecteur Gen6ral Ressources Hydrique AbidjanJ.R.H - Service Ressources HydriqueCha De Azeia Mr. George Gouganou KopiePraia Sous-Directeur de lAsinissemet et du Drainage

Ministmre des Trvaux Publics, des Transports, de IaConsruction et de l'Urbanisme

Abidjan

COMOROS Mr. Paul Zahiri SeriMr. Mohamed Adamou Sous-Diracteur de I'Hydnulique VillageoiseDirecteur Energie et Ressources en Eau Ministbre des Travaux Publics, des Transports, de taMinistere d'Equipement Consruction et de l'UrbanismeB.P. 131 AbidjanMoroni

DJEBOUTIMr. Said Omar Yonaya El-Bakri Mr. Mahamoud Ahmod AouateChef de Service Ing6nieur T.P.Electricite et Eaux des Comores Chef de la Subdivision Asainissement - VRDB.P. 121 Ministre, des Travux PublicsMoroni B.P. 842

Djibouti

Mr. Ai Youssouf GuediCONGO Dirocteur AdjointMr. Jean Nicaise Magnoungou Makaya Office National des Eaux de DjiboutiChef du bureau d'Etude de Ia SNDE Ministere de l'Industrie et du D6veloppementB.P. 229 IndustrielBrazville Djibouti

ANNEX 11

EQUATORIAL GUINEA ¢ - . GHANAMr. Elias Manuel 4 , Dr. Anthony Tawia AmuzuConseiller de Mairie Water Rcsources Research Institute (CSIR)Avenida Naciones Unidas, No. 26 P.O. Box M32Malabo Acca

Mr. Paulino Mbo Obama A> Mr. Emmanuel Kobla Y. Dovlo

Jefe Proyecto A.A.P.S. Director of Plnning and DevelopmentMinisterio de Obras Publicas, Vivienda, Transporte Ghana Water and Sewerage Corporation

M.O.P.V.T. P.O. Box M194Malabo Accra

Mr. Peter SackeyETIUOPIA Director of Runl Water DevelopmentMr. Birru Ittissa Ghana Water and Sewerage CorporationGeneral Manager P.O. Box M194Water Supply and Sewerage Authority AccraP.O. Box 5744Addis Ababa GUINEA

Mr. Mamadou Malick DemMr. Amgaw Truneh D.G.A.Commissioner S N A P EEthiopian Water Resources Commission B.P. 625P.O. Box 5744 ComaaryAddis Ababa

Mr. Moanied N'Fah FofanaChef de la Section Hydraulique Urbaine

GABON DNSR/SEEMr. Antoine Ango-Ossa m B.P. 1217Directeur des Eaux C= -- yMinistbre Energie et Ressources HydrauliquesB.P. 1172 Mr. Keita TanoudyLibreville Ingenieur Hydrotechnicien

Bueau d'Etude - SONEGMr. Vincent Moussavou B.P. 150Ingenieur de Techniques Stagisire ConakryMinistere Energie et Ressources HydrauliquesB.P. 1172 GUINEA BISSAULibreville Mr. Joao Gomes Cardoso

S6cretaire d'EtatMinistbre des Ressources Naturelles et de 'lindustrie

GAMBIA B.P. 399Mr. Momodou Sahor BissauDirectorDepartment of Water Resources Mr. Joao Antonio Da Silva7 Marina PD Ing6nieur HydrotechniqueBanjul B.P. 399

BissauMr. Sulayman SambaPrincipal Assistant Secretary Mr. L Dichtl

Ministry of Water Resources, Fisheries and Forestry Chief Technical AdvisorBanjul Bissau

ANNEX 11

KENYA MALAWIMr. Kilwake Holi Edward Mr. LAurnc ChipunguDeputy Secrety Deputy Chief Public Health OfficerMinistry of Water Development Ministry of Health HeadquartersP.O. Box 30521 P.O. Box 30377Nairobi Lilongwe

Mr. Sam Kibui Kibunja Mr. Joseph KazomboAssistant Director Saitary EngineerMinistry of Water Development Ministry of Local GovernmentP.O. Box 30S21 P.O. Box 30312Nairobi Lilongwe 3

Mr. Bwigane MwakikungaWater Engineer in Chief

LESOTHO Minidry of WorksMr. Phamoli Nkaku Fanana Department of WaterChief Planning Officer P.O. Box 316Ministry of Planning LilongweP.O. Box 630Maseru MALI

Mr. Amadou GuindoMr. Lehlohonolo Pelepele Ing6nieur Hydrog6ologueManaging Director DNHE/ML184/005Water and Sewerage Branch B.P. 66P.O. Box 426 BamakoMaseru 100

Mr. Kabsha LubuikaJngdnieur SanitareBureau sous-Regional de D6veloppement Sanitaire de

MADAGASCAR l'OMSMr. Felix Rabemnanbola BamakoSecretaire Permanent du Comit6 de l'Eau et de

l'Assains6sement MAURITANIAMinisthre de l'Economie et du Plan Mr. Gueadio CisseLogement 50, cit6 Ambobipo Chef de Service National d'Hygiene etAntananarivo Assini _ement

Ministber de la Sant6 at des Affaires SocialesMr. Richard Ramanantsoa B.P. 177Cbef de Service NouakchottService de l'Assainissement et du G6nie SanitaireMinistdre de la Sant6 Mr. Amidnah Ould MoussaB.P. 18 Directeur Projet d'Hydaulique VillageoiseAmsohimansrina Direction de l'HydrauliqueAntananarivo Nouakchott

ANNEX 11

MAURJTTIJS NIGERIAMr. Narmndmath Luchmaya Mr. Iyeola AkinolaEconomist Chief Water EngineerMiniaty of Energy Federal Ministry of Water RessouWater Resources and Post Services V WR - P.M.B. 135New Govemment House AbujaPort Louis

Prof. G.A. MakanjuolaMr. Raj. Hemansing Prayag Directorate of Food, Roads and Rural InfrastructureChief Engineer The PresidencyCentral Water Authority Tafawa Balmwa SquareC. U. A. LagosTechnical OfficeSt. Paul

REPUBLIC OF CENTRAL AFRICAMOROCCO Mr. Alphonse KongoloMr. Abderrafii l hlou Abid Directeur G6ndarDirecteur Financier Soci6t6 Nationale des Eaux de RCAONEP D.P. 18386 Bis rue Patrice, Rabat BanguiLorumba

Mr. Daniel YaleMr. Beihoucine Directeur G6ndral de l'Hydraulique

Ministere Energie, Mines, Geologic et HydrauliqueMOZAMBIQUE B.P. 1481Mr. Jos6 Anselmo Santana BsnguiDirector of UDAASNational Directorate of Water Mr. Jocelyn Phylippe ZackoMinistry of Construction and Water ExpertP.O. Box 1611 Ministere du PlanMaputo B.P. 696

BanNIGERMr. Reinhrd EbersbrgConseiLirCommiusso des Communaut6es Europ6ennes RWANDAB.P. 10388 Mr. Alexis NgirababyeyiNiamey Chef de Division Etudes

Ministero des Travaux Publics, de l'Energie et deMr. Abdom Hme l'EauSecr6t0i G66ra1 B.P. 24Minitdbu de I'Hydralique et de l'Environmement KigaliB.P. 257Nimay Mr. Charles Uramutse

DirecteurMr. Abdma Ousnae Hydraulique Urbaine et AssainisswmentChef de Disicon Hydraulique Urbaine, Urbmnisme et Ministere de l'Energie et de l'Eau

A __iniuaeint B.P. 24Mlini a do Plan KigaliNian

ANNEX 11

SAO TOME & PRINCIPE . SWAZILANDMs. Lias Cristinc Soares de Bafros Mr. Sandile CdkoResponsable Section d'Eau Principal SecretaryDirecon nduste, Energie t Tounme Ministry of Natrl R _orces and EnergySao Tome P.O. Box 57

Mr. Yoao Lina dos Reis Mr. Leslie MtetwaReqmsnsable - Cabinet Technique EMAE Senior Health InspectorEnteprise d'Eau et Electricit6 Ministry of HealthSao Tom6 P.O. Box 5

Mbabane

Mr. Napoleon M. NtezindeSENEGAL Senior Water EngineerMr. Djiby Diouf Rural Water Supply BoardChef P.O. Box 961Bureau Suivi des Investissemants MbaebmMinistere de l'Economie et des FinancesDirection de la Dette ddes Ivesfissmnts TANZANIADakar Ms. Hilda Gondwe

Pblnning OfficerMinistry of Water, Energy and MineralsP.O. Box 9153

SIERRA LEONE Dar-Es-SalaamMr. Solomon GerberMinistry of Energy and Power Dr. Raphael Oleng LucasElectricity House Direcr of Design, Consbtction andFreetown Materials Testing

Ministry of Water, Energy and MineralsP.O. Box 9153

Mr. Justin Andrew Musa Dar-Es-SalaumIng6nieur HydrotechnicienCo-Project Manager TCHADMinistry of Energy and Power Mr. Abdellaore SafiWater Supply Division Directeur Adjoint de l'Office National deFreetown l'Hydrauloque Pastorale et Villageoise - ONHPV

Ministrie de l'Elevage et de l'HydrauliquePastoral.

B.P. 48SUDAN N'DjamenaMr. Mohamed Yahia BabikerEngineer TOGOUSAID Mr. Kuessan AssiongbonP.O. Box 699 Cbef, Division Hydraulique Urbaine et RuraleKhartoum Direction de l'Hydraulique et de l'Energie

Mr. Kamil Idries Kamblawi Komi Denyo NenoneneDept Under Secretary Chef, Service National d'AssainissementMinistry of Finance and Economic Planning Service National d'AssainissementKhrtoum Lome

ANNEX 11

UGANDA . ZAIRE (cont'd)Mr. Stephens Ogolla Owino Mr. Pierre NorcyHead Panning Division Ing6nieurMinistry of Water and Mineral Development Louis BergetP.O. Box 7096 Building REGIDESOKampal Blvd du 30 juin

B.P. 12599Kinshsa

Mr. James WambiChief Engineer Mr. Mukmba TshimangaWater Development Department Directeur ChefP.O. Box 20026 Dpatmnt de Recherche et D6veloppementKampala Administration Centrale

Blvd du 30 juinB.P. 12599

ZAIRE Kinshasa IMs. Bilonda Kabamba BilondaFonctionnaire Mr. Tshiongo Thibinkubula WatumbaC N A E A Pr6sident Directeur Gn6ralBuilding REGIDESO Building REGIDESOBlvd du 30 juin Blvd du 30 juinB.P. 12599 B.P. 12599Kinshasa Kishasa

Mr. Sangano Bujaketa ZAMBIADirecteur Mr. Matbew M.T. MulipukwaREGIDESO - CEMDAEP Secetary for National Action Committee forBlvd du 30 jUin IDWSSDB.P. 12599 Ministry of Water, Laxnds and Natural ResourcesKinshasa I Deptment of Water Affairs

P.O. Box 50288Mr. Souwa Lukono LusakaDirecteur NationalService National d'Hydraulique Rurale Mr. Ignatius J. SinadambweAvenue de la Justice Anciene la Voix du Zaire Asistant SectaryB.P. 3940 Ministry of Water, Lands and Natural ResourcesKinshasa/Gombe P.O. Box 50694

Mr. Ngoy Mbele ZIMBABWEFonctionnaire Mr. Cbristopber W.E. MatumbikeCNAEA Deputy SecretryBuilding REGIDESO Ministry of Local Government, Rural and Urban

Blvd du 30 juin DevelopmentKinshc P.O. Box 7706

Causeway, HarareMr. Kaduna MwambsSecrdtaire G66al Mr. John Chatsauka MvududuComitE Nationl d'Action de l'Eau et de Director of Environmental Health Services

1A _inia Ministry of Health, The Secretary for Health

B.P. 12599 P.O. Box 8204KIndlm Causeway, Harre

ANNEX 2

REFD1'ATVFROMEXLTRNAL SUE!ORT AGINCI

AFRICAN DEVELOPMENT BANK AMRICAN DEVELOPENT BANK (cont'd)Ms. B. Aibot-Bruce Mr. K. MuishipsyUnit6 Femms dAns le D6veloppement

Mr. T. NkodoMr. G. Avika Direteur Adjoint, CEPRVice Pr6sident

Mr. F. OusliMr. N. BouznherChef de Division, WISI 2 Ms. Thiam Ouereytou

Chag6e d'lnforrationMr. A. DesmiChef de Division, WISI I Mr. David Pieme

Civil EngineerMr. S. DiakiteIng6nieur Eau-AsmsaiwiSSemDt Mr. W.T. Selassie

Watr and Sanitation EngineerM. Lokoachi DrissCivil Enginoer Mr. V. Zongo

Analyste FinancierMr. T. GodamuVice President, Operations Centrales CAISSE CENTRALE DE COOPERATION

ECONOMIQUEMr. Daniel Gubor Mr. Jean JaujayConsultant Ing6niour Hydrulique Rural

Fond6 do PouvoirMr. B. Hadjadj PuisChef do Division, CEPR

Mr. H. Le MassonMr. K. Khotle Fond6 do PouvoirIng6nieur Eau-Assainisemmnt Paris

Mr. F. Lounes CANADIAN INTERNATIONALVice President, Operations pour l'Afrique do l'Ouest DEVELOPMENT AGENCY

Mr. Gew ChrisMr. A. Mathis Senior Development OfficerIng6nieur Hydraulique Rurale

Ms. Krystyna DunakaMr. A. Mangesba IngDOieUr HydrauliqueDirecteur Adjoint, WISI. Direction de l'lnfrstnme

Hull-CanadaMr. K.H.M. MhangoIng6nieur Eau-Ainieent Mr. Camara Eli

Camsultant en HydauliqueMr. Bismai Raafat Mikhai BaiakoDqxety Director, Office of Post Evaluation

Ms. Peggy FloridaMr. B.I. Moblinger First ScrtaryIng6nieur Eau-Assinissement Addis Ababa

ANNEX 12

CARrTAS COMMISSION DES COMMUNAUTESMr. Joseph Sam EUROPEENE

Mr. Reinhard EbersbergCARL DUISBERG GESECHAFT, EV Conseiller GEnie-Civil I la DE1egation du NigerMs. Kristn Kamlage-OlgunProject Manager Mr. Giordao MartelliGermany D61egu6 f.f. de la C.C.E. 1& Abidjan

CEFIGRE Mr. Rony SabakMr. Denis Robert Conseifer GEnie-Civil l a D616gation du LesothoDirecteur G6n6raISophia Antipolis, France DANISH ENTERNATIONAL DEVELOPMENT

AGENCYCENTER FOR DISEASE CONTROL Dr. K. LaubjergDr. Ernesto Ruiz-Tiben Technical AdviserCoordinator CqpenhagenGuinea worm Eradiction Task ForceAtlanta, Georgia, U.S.A. ECONOMIC COMMESSION FOR AFRICA

Mr. Faziul HoqueCENTRE INTERNATIONAL d'ETUDE DE ChiefP'HYDRAULIQUE Water, Environment and Marine Affairs SectionMr. Charles DilucaChef DEpartement Hydrogeologie at Hydrauique GERMAN AGENCY FOR TECHNICAL

Villagooise COOPERAITONC i E H Mr. Fred Greiner01 B.P. 369 Senior Technical AdviserOuagadougou

Mr. Katakou Kokou GOVERNMENT OF COTE d'IVOIREChef du Centre de Docementation et d'Information Mr. Kouadio AmaniC I E H Sous-Directeur Hydraulique Urbaine01 B.P. 369Ouagadougou Mr. Yapi Georges Kakadie

:n8enieur, Directeur-AdjointMr. Cheikh Toume Direcion de I'EauRWSG/CREPACIEH Mr. Bamba Vamoussa01 B.P. 369 Ministre des Travaux Publics, des Transports, de laOuagadougou Constuction et de l'Urbanisme

CElRISTLAN MISSION AID HUMAN SETTLEMENTS OF ZAMBIAMr. Barasa Sitati Wasike Mr. E.M. ChitondoIntwrnational Projes Director Deputy Field Team Leader/NutritionistNairobi Lusk-, 7ambia

COMMONWEALTH SCIENCE COUNCIL INSTITUTE FOR DEVELOPMENT ANDDr. S. Malomo DISASTER STUDIESChief Poject Officer Mr. Constantine BerheWar #ad Mineral Resources Prgrmme Executive Directorlondon Addis Ababa

ANNEX 12

INTERNATIONAL LABOR ORGANIZATION NORWIEGIAN AGENCY FtORMrs. Antela Sinikka INTERNATIONAL DEVELOPMENTLisson Officer Dr. Desmood McNeillAbidjan Adviser

OdoIRC INTERNATIONAL WATER ANDSAN1TATION CENTRE PROWWESSMISTRAW/IDWSSDMr. J.M.G. Van Damme Ms. Deep. Namyan-ParkerDirector Senior Planing and Evaluation OfficerIhe Hague PROWWESS

New York CityINTERNATIONAL DEVELOPMENTRESEARCH CENTER Mrs. Aminata ToreDr. Akvasi Aidoo Regional CoodintorRegioal Program Officer AbidjanB.P 11007 CD AnnexeDakar

SOCIEE DE DISTRIBUTION d'EAU DE COTEKUWAIT FUND FOR ARAB ECONOMIC d'IVOIRE - SODECIDEVELOPMENT Mr. Fr6d6ric BaudinMr. A.A. Al-Saqabi Diecteur D6vdoppementA6sistant Engineering Adviser

Mr. Seri GbaloanMr. T.A. Dabbagh Dircteur d'ExpoitationEngineering Adviser

Mr. Marcel Zady KessyLEAGUE OF RED CROSS AND RED Pr6sident Directur G6n6ralCRESCENT SOCIETEESMr. Albur, Mohamed Hasn UNICEFWater Project Director Mr. Stevan RodojicicSudanese Red Crem Senior Proect Officer

MozambiqueDr. Evgeni StrijakUnder-Sretary Genera UNITED NATIONS DEVELOPMT

PROGRAMMEMAURTITAN COUNCIL FOR DEVELOPMENT, Mr. Brian AppletonENVIRONMENTAL STUDIES AND ConsultantCONSERVATIONMr. Ishwarlz!: Hurgungs Ms. Aissatou Cisae

UNDP, AbidjanMINISTERE DES AFFAIRES ETRANGERESMr. Jacques Gurad , Mr. William G. CosgroveCharge de Mission ConsultantFrane

Ms. Sumne DrouilhMINISTERE DE LA COOPERATION ET DU Principal OfficerDEVELOPPEMENT Now YofkMr. Pierr GenyChrg6 de Mission Mr. Ahmed FrihFrac consultant

ANNEX 12

UNITED NATIONS DEVELOPMENT WATERAIDPROGRAMME (coot'd) Mr. Nick KingMn. Eirh GoneDale Overse Dvelopment OfficerInformaon Coordinator Londo.

GmWEST AFMCAN DEVELOPMENT BANK

Mr. Bryan Locke Mr. Issa CoulibalyDeputy to Chairman of Coliaborative Council Ing6nieur Hydrog6ologue

Loem, TogoMr. Alexander RotivalChurman, ESA Colbboaive Council WORLD BANKGeneva Mr. Randolph Andersn

Principal Finac Analyst, AFrINMr. M. SimonotChief Technical Adviser Mr. John BlaxallMali/84/00S Mager, RWSG/EABamako, Mali

Ms. Pauline BoernaProgmm Officer, INUWS

UNION OF AFRICAN WATER SUPPLMRSMr. Mohamed Fouad Djerrari Ms. Sylvie BrebionPr6sident Consltant

UNITED STATES AGENCY FOR Mr. Roger ChaufouaioerINTERNATIONAL DEVELOPMENT ConsultantMr. Scott JohnonEnginee Mr. Joan DoyanAbidjan Division Chief, AFrIN

Mr. Wayne King Mr. H. Michad GasnAsidsant Director Consltant, INUWS

Mr. Modibo Sangre Mr. David GreyEngineer Senior Progam Officer, INUWS

Mr. Takao llgamiUNITED NATIONS CENTRE FOR HUMAN Egn, AFTINSEITLEMENTS - HABITATDr. Gehan Sinnatamy Mr. Samids KpognonHuman Sttlemnts Officer Spcial Reprosentative to ADBNairobi, Kenya

Mr. MAin LocussolManager, RWSG/WA

VERGNET, SAMr. Marco Poroyma Mr. Uche MbanefoAres Sales Manager Prinicipul Financial Analyst, RWSG/WA

Ms. Lettia ObengWATER AND SANITATION FOR HEALTH Progamm Officer, RWSGtWADr. John TomaroConsltant Mr. lAm RasmussonWashington, D.C. Principal Sanitary Engineer, AFTIN

ANNEX 12

WORLD BANK (cont'd) WORLD HEALTH ORGANIZATIONMr. Robert Roche Mr. Mikail KoouwtuwevPropm Officer, RWSOIWA Conueillor Rfgional

Brznville, CongoMr. Gunner SchultzbergRWSG/EA Mr. Louis Laugeri

ConsultantMr. Fathi Bon SlianmeFinancial Analyst, EM21N

Mr. Boukari TareAnt. Program Officer, RWSGIWA

Mr. Gerhard TschannerlSenior Municipal Engineer, AF2IN

Mr. Beyene Wolde-GabrielProgram Officer, RWSG/WA

The World BankWashington, D.C. 20433

U.S.A.

EDWARD V. K. JAYCOXVice President,Africa Region

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