JOINT ZAMBIA WATER SECTOR REVIEW. J… · Web viewThe goods (vehicles, equipments etc), are locally...

JOINT ZAMBIA WATER SECTOR REVIEW

Final Report

for the consideration of the

Government of Zambia and the Cooperating Partners

Submitted by the

GRZ/CP Joint Review Team

19 October 2007

Joint GRZ/CPs Water Sector Review Mission Report – 19th October 2007

ABBREVIATIONS/ACRONYMS

ABP Area Based ProgrammeAfDB African Development BankADC Area Development CommitteeCPs Cooperating PartnersCSO Central Statistics OfficeCU Commercial UtilityDANIDA Danish International Development AgencyDWA Department of Water AffairsDISS Department of Infrastructure and Support ServicesD WASHE District Water, Sanitation and Hygiene EducationDTF Devolution Trust FundEHT Environmental Health TechnicianFNDP Fifth National Development PlanGRZ Government of the Republic of ZambiaGTZ Deutsche Gesellschaft fuer Technische ZusammenarbeitIMS Information Management SystemJASZ Joint Assistance Strategy for ZambiaJRT Joint Review TeamKfW Kreditanstalt fuer WiederanfbanLA Local AuthorityMCDSS Ministry of Community Development and Social ServicesMDD Management Development DivisionMDG Millennium Development GoalsMEWD Ministry of Energy and Water DevelopmentMLGH Ministry of Local Government and HousingMoE Ministry of EducationMoFNP Ministry of Finance & National PlanningMoH Ministry of HealthMoU Memorandum of UnderstandingMTEF Medium Term Expenditure FrameworkMTENR Ministry of Tourism Environment and Natural ResourcesNGO Non-Government OrganisationNRWSSP National Rural Water Supply and Sanitation ProgrammeNUWSSP National Urban Water Supply and Sanitation ProgrammeNWASCO National Water and Sanitation CouncilN-WASHE National Water, Sanitation and Hygiene EducationO & M Operations and MaintenancePSRP Public Service Reform ProgrammePeri UWSS Peri Urban Water Supply and SanitationRDC Resident Development CommitteeRWSS Rural Water Supply and SanitationRWSSU Rural Water Supply and Sanitation UnitSOMAP Sustainable Operations and Maintenance ProjectSWAp Sector-wide ApproachTA Technical AssistanceTOR Terms of ReferenceV-WASHE Village Water, Sanitation & Hygiene EducationUWSS Urban Water Supply and SanitationUWSSU Urban Water Supply and Sanitation UnitWASHE Water, Sanitation and Hygiene EducationWSS Water Supply and SanitationWSPS Water Sector Programme Support

2


ACKNOWLEDGEMENTS

This report is based on the findings of the Joint Government of Zambia and Cooperating Partners Water Sector Review Mission which undertook the assignment between 24 th September and 5th

October 2007. The Joint Review Team comprised Romance Sampa (Team Leader – Independent Consultant), Rolf Kaestner (Consultant - GTZ), Tom Mugoya (Consultant - AfDB), Esther Mbawo (Consultant – Ireland Aid), Rose Lidonde (Consultant - UNICEF), Mogens Mechta (Consultant - DANIDA), Mogens Bregnbaek (Ministry of Foreign Affairs, Denmark), Rees Mwasambili (Ministry of Local Government .and Housing).

The conclusions and recommendations are those of the Joint Review Team (JRT) and do not necessarily reflect the opinion of the persons or institutions consulted. Neither do they represent official positions of the Government of Zambia, Ireland, Germany, Denmark and related Cooperating Partners or other international institutions.

The Joint Review Team (JRT) would like thank the Government of Zambia, GTZ and DANIDA for their logistical support and extend their gratitude to the Task Force Members: Mr David Ndopu, (Ministry of Finance and National Planning); Mr Peter Lubambo (Ministry of Local Government and Housing); Mr Helmut Lang (GTZ); and Mr Peter Sievers (DANIDA) for their guidance and encouragement. The JRT further thank all the persons and institutions, too numerous to mention, for availing time to meet the Team, sometimes at very short notice.

3


Table of Contents PageABBREVIATIONS/ACRONYMS..........................................................................................................................2

ACKNOWLEDGEMENTS.....................................................................................................................................3

EXECUTIVE SUMMARY......................................................................................................................................5

1.1 REVIEW OBJECTIVES............................................................................................................................91.2 WATER SUPPLY AND SANITATION INSTITUTIONS..............................................................................10

2. GRZ/CP SECTOR COOPERATION.............................................................................................................10

2.1 JASZ PRINCIPLE.................................................................................................................................102.2 RECENT AND CURRENT DEVELOPMENTS..........................................................................................10

3. STATE OF DEVELOPMENT.........................................................................................................................11

3.1 FINDINGS IN THE RURAL WSS SECTOR...........................................................................................113.1.1 State of the Rural Process and Ongoing Activities.........................................................113.1.2 Rural Water Supply Sector.....................................................................................................11

3.1.2.1 Eastern Province Project (2006-2009)........................................................................................113.1.2.2 Northern & Luapula Province Project (2007- 2010)................................................................123.1.2.3 Western, Lusaka & Southern Province, WSPS (2006 – 2010)..............................................123.1.2.4 Operation and Maintenance (O & M)...........................................................................................13

3.1.3 Hygiene and Sanitation..........................................................................................................133.1.4 The Position(s) of the CPs in RWSS....................................................................................163.1.5 Special Aspects.........................................................................................................................17

3.2 FINDINGS IN THE URBAN WSS SECTOR...........................................................................................183.2.1 Required Action and Institutional Framework..................................................................183.2.2 Roles of DTF and NWASCO concerning Urban Areas....................................................193.2.3 Special Aspect “Solid Waste Management” (SWM)........................................................203.2.4 Hygiene and Sanitation in Peri- Urban Areas....................................................................21

3.3 FINDINGS IN SECTOR DEVELOPMENT AND MANAGEMENT...............................................................213.3.1 Progress in Implementation of agreed Transfers of Mandates and Authority..........213.3.2 The Legal and Institutional Framework................................................................................233.3.3 Alignment, Harmonisation and Accountability..................................................................243.3.4 Framework for Planning, Co-ordination, Monitoring and Evaluation..........................25

4. STAKEHOLDER RESPONSE TO THE DEBRIEFING.............................................................................25

5. LESSONS LEARNT........................................................................................................................................26

5.1 REVIEW PROCESS...............................................................................................................................265.2 REPORTING STANDARDS....................................................................................................................27

6. QUESTIONNAIRE AND RESPONSES FROM THE CPS........................................................................29

6.1 COOPERATING PARTNER: …EMBASSY OF THE NETHERLANDS (BACKGROUND DONOR).............296.2 COOPERATING PARTNER: …EMBASSY OF JAPAN/ JICA................................................................306.3 COOPERATING PARTNER: …AFRICAN DEVELOPMENT BANK..........................................................326.4 COOPERATING PARTNER: …DANIDA..............................................................................................336.5 COOPERATING PARTNER: …IRISH AID..............................................................................................346.6 COOPERATING PARTNER: …GERMANY.............................................................................................356.7 COOPERATING PARTNER: …UNICEF...............................................................................................37

ANNEX 1. STRUCTURE OF THE PROPOSED DEPARTMENT OF HOUSING AND INFRASTRUCTURE............................................................................................................................................38

ANNEX 2. Issues Raised by Stakeholders.......................................................................................................40

4


EXECUTIVE SUMMARY

The Water Supply and Sanitation (WSS) sector in Zambia is generally progressing well although there are still some delays and institutional issues to be resolved. The Joint Review Team (JRT) undertook an analysis of all the key institutions in the WSS sector to appreciate and fully understand the relationships, roles, responsibilities and importance of key stakeholders.

The JRT focused on WSS institutions whose framework is as shown below.

5

Commercial Utility(CU) or

Community based Service Provider

Urban , Peri-Urban and Rural Areas (residents/consumers)

District(s)

Supply/operate sometimes in co-operation with

Own (water supplies) and provide services (solid waste and public health)

Regulation through licensing

DTF

Resident Development Committee(s)

District(s) - LAs

Financeperi-urban

MLGH

WSS Policyoversight

MEWD

NWASCO

Water rightsProvidesoperating

framework

MOH MCDSS MOE

Community based Service Provider(s)

V-WASHEV-WASHE

V-WASHE(s)

D-WASHE

Sub-district(s) ADC(s)

MTENRECZ


The JRT held several structured meetings and interviews with most key stakeholders and noted some key issues constraining sector development. These include the slow pace of decentralisation; general lack of information and understanding among key stakeholders on key WSS policy issues, strategies, the role and responsibilities of the public as well as public perceptions and attitudes towards WSS facilities.

The JRT recommends that all stakeholders intensify efforts to change social attitudes and perceptions about WSS through basic education on private and public health matters.

The JRT also noted indicators of progress made in sector development such as:

- The integration of water supply and sanitation as a key component of the Fifth National Development Plan (FNDP);

- The development of the National Rural Water Supply and Sanitation Programme (NRWSSP);- Sanitation being a key component of the NRWSSP;- Continued efforts by Ministry of Local Government and Housing (MLGH) and Cooperating

Partners (CPs) to intensify effort to increase coverage;- Key institutions like the National Water and Sanitation Council (NWASCO), Commercial Utilities

and the Devolution Trust Fund (DTF) are established and working.

Rural Water Supply

In Rural Water Supply the JRT makes the following Recommendations:

While mindful of the agreement between GRZ and Germany, the JRT recommends that the two parties ensure that capacity building for the 8 districts under RWS Eastern Province is provided in line with the NRWSSP to ensure that those districts at the end of NRWSSP Phase One are at the same level of preparedness as the other districts with regard to decentralised implementation.

It is recommended that the GRZ and CPs scale up the Sustainable Operations and Maintenance Project (SOMAP) approach to become the national approach co-ordinated by present SOMAP and pool resources meant for O&M or alternatively work out agreement to scale up individually within the ABPs following the same approach.

It is recommended that ways be found within the ABPs to provide funding for time limited employment of minimum staff requirements to staff district support teams under the assumption that the personnel will belong to the local authorities and be taken over by them at the agreed time (i.e. 3 years).

Urban Water Supply

Under Urban Water Supply the JRT recommends as follows:

It is recommended that the overall plan for the NUWSSP be reviewed and redesigned on the basis of current work done.

It is recommended that the aspect of including solid waste management in the water and sanitation strategy be resolved through a feasibility study which should prove whether such a multi-utility strategy works or not. A CU experienced in faecal sludge management should be included in the feasibility study.

6


Hygiene and Sanitation

It is recommended that the official GRZ target should be revised to 66% coverage MLGH and its CPs need to revisit the actual status coverage of sanitation and the MDG targets and commit a realistic budget allocation for sanitation if the set targets are to be realised.

It is recommended that the IMS working group should liaise with the National Sanitation Working Group in order to identify key indicators for rural hygiene and sanitation and ensure these are included in the IMS.

The National Sanitation Working Groups should formulate clear activities of facilitating hygiene and sanitation improvements in schools to include provision for hand washing facilities and practices. The JRM strongly recommends that mechanisms of enhancing collaboration with MoE and CPs (like UNICEF) already working on school hygiene education and sanitation improvements should be outlined in the development programme and implemented to increase coverage.

It is strongly recommended that the WSS Steering Committee and the Working Group on Sanitation take charge and steer the process of developing the Sector Devolution Plan.

The JRM strongly recommends that mechanisms of enhancing collaboration with MoE and CPs (like UNICEF) already working on school hygiene education and sanitation improvements should be outlined in the development programme and implemented to increase coverage.

Water Development and Management

It is strongly recommended that GRZ approve the required staffing levels to avoid delays in NRWSSP implementation.

The JRT recommends that dialogue and consultation between the GRZ and the CPs continues on the modalities for cooperation and support to the NRWSSP which should lead to the signing of the MoU before the end of 2007.

It is recommended that each CP makes arrangements with the GRZ to ensure, that future funding is included in the MTEF and thus reflected in the subsequent Public Expenditure Reviews for the sector.

It is recommended that each CP carefully reconsiders the present TA procurement procedures and indicate its willingness to align itself with the stipulations of the NRWSSP and the MoU. This includes finding a position on the possibility of joining a joint basket for funding of TA.

It is recommended that the issue of use of ABP TA as national level TA is formally agreed between the various partners and that possible additional required TA is pooled under this arrangement.

It is recommended that ways be found within the ABPs to provide funding for a time limited employment of the minimum staff requirement to staff district support teams under the assumption that the staff will belong to the local authorities and be taken over by these at the agreed time (i.e. 3 years).

The JRT recommends that due to the devolution of the various sectors functions to the districts, Government, through the WSS Steering Committee, reviews and re-aligns the planning process, including the IMS in WSS, with the overall planning framework to be introduced at the District.

7


The JRT recommends that in line with the seven sector principles the GRZ should take practical steps to increase funding to the water sector!

It is strongly recommended that the long standing issue of sector leadership and decisions about roles and responsibilities between the MEWD and MLGH be resolved by the Secretary to the Cabinet!

The above stated key recommendations are repeated in chapter 3 and “boxed” in the context of accompanying explanations and while other recommendations are in bold italics font.

In addition the JRT has presented the recommendations arising from the debriefing meeting of 4 th

October 2007 in chapter 4 in minutes format.

8


1. INTRODUCTION

1.1 Review Objectives

This water sector review report, presented to the Government of Zambia (GRZ) and Co-operating partners (CPs), takes stock of sector developments, progress, achievements and failures with respect to the support provided to Government and various institutions in the Water Supply and Sanitation (WSS sector by participating CPs.

The development and formulation of the National Rural Water Supply and Sanitation Programme (NRWSSP) is reviewed and findings and lessons learnt used to inform the process of developing a National Urban Water Supply and Sanitation Programme (NUWSSP) currently underway at the Ministry for Local Government and Housing (MLGH).

The specific sub-sector objectives of the review on WSS were as follows:

Rural Water Supply and Sanitation (RWSS)

To analyse the progress and process of the NRWSSP; To assess the integration of ongoing components within the NRWSSP; To assess the existing capacity of the Department of Infrastructure and Support Services

(DISS) at MLGH in relation to the implementation requirements of the NRWSSP; To establish the need for and possibilities of adjusting individual bilateral programmes to

improve flow of funds, funding of activities and reporting arrangements; To examine options for coordinating various CPs in the WSS sector; To review the policy framework and identify possible missing RWSS policy decisions.

Urban Water Supply and Sanitation (UWSS)

To analyse the concept and process of the NUWSSP in relation to the NRWSSP; To examine the integration of ongoing components within the NUWSSP, present financing

and budgets in relation to required investments; To examine the future role of the Devolution Trust Fund (DTF) combined with financing and

programme management modalities; To review required support for Commercial Utilities (CUs); To review the policy framework and identify possible missing UWSS policy decisions; and Examine the option of extending CUs service to Solid Waste management (SWM) and other

services.

WSS Sector Development and Management

To assess progress in the implementation of agreed transfers of mandates and authority; To assess progress in the establishment of sector institutions in the sector and

recommendations for improvement; To assess the feasibility of alternative funding modalities in the water sector based on

experiences from other countries and in particular Zambia within the Health, Education, and Road sectors as well as the DTF;

To analyse the framework for planning, co-ordination, monitoring and evaluation in the sector; and

To recommend the future format, design and processes for future reviews.

9


1.2 Water Supply and Sanitation Institutions

The JRT first examined the WSS sector institutional framework, institutions and their roles and interrelationships in the sector. At central government and policy making level are the Ministries of Energy and Water Development (MEWD), Local Government and Housing (MLGH), Health (MONH), Education (MOE), Tourism Environment and Natural Resources (MTENR), Community Development and Social Services (MCDSS) as shown in the chart in the executive summary above.

The JRT observed that the key water sector ministries, MEWD and the MLGH, still have outstanding issues over the roles, mandates and regulatory functions.

At the WSS project and programme implementation level are a second group of institutions comprising Commercial Utilities (CUs) or Community-Based Service Providers operating under supervision of the Local Authorities (LA) on one hand and regulated by NWASCO. The DTF provides special financing for peri-urban WSS. There is also a third group of institutions involved in basic provision of water and sanitation services like Resident Development Committees (RDCs), and various Non-Governmental Organisations (NGOs). There are also coordinating arrangements such as the District Water, Sanitation and Hygiene Education (D-WASHEs), Village Water, Sanitation & Hygiene Education (V-WASHEs)

2. GRZ/CP SECTOR COOPERATION

The Government of the Republic of Zambia (GRZ) and the Co-operating Partners (CP) have agreed in principle on a “Joint Assistance Strategy for Zambia” (JASZ) for period 2007 – 2010. It concerns the management of the development co-operation between the GRZ and CPs.

2.1 JASZ Principle

Under the agreed division of labour, Germany and Denmark form the lead amongst the CPs in the water sector. Germany is leading in water resources management under the MEWD, and Denmark is leading in water supply and sanitation under the MLGH.

2.2 Recent and Current Developments

GRZ and CPs have agreed on the NRWSSP. However, the joint appraisal of 2006 and other work have indicated gaps in financing and planned commitments. The JRT noted that the Irish and Netherlands governments and the World Bank have already put funds into the programme. The African Development Bank (AfDB) supported programme in 15 districts will use the same implementation methods. UNICEF RWSS programme in 20 districts will commence soon.

10 Commercial Utility (CU) companies are operational. The MLGH with CPs support are forming one CU in Luapula Province and transforming one LA CU into a provincial CU in Eastern Province. The remaining LAs are providing services through their Works Departments.

The NRWSSP is also looking at developing capacity at central level partly through DANIDA, Irish/Netherlands and World Bank support. Discussions to create synergies with other programmes in the NRWSSP are on-going.

MLGH is developing a National Urban Water Supply & Sanitation Programme (NRWSSP), with initial CPs TA support.

3. STATE OF DEVELOPMENT

10


3.1 Findings in the Rural WSS Sector

The NRWSSP is a framework for development of RWSS in the period 2006 to 2015, and aims at meeting the Millennium Development Goals (MDGs). The Programme’s Phase One (2007-2010) will be implemented through ongoing Area Based Projects and SWAp. Money from Irish Aid and the World Bank is already in the pool.

3.1.1 State of the Rural Process and Ongoing Activities

The NRWSSP to be launched in October 2007 is being used already by MLGH and CPs as a planning instrument. A key problem of data identified during the programme formulation has been addressed by the implementation of an ME-MIS pilot project to verify district data.

The JRT noted that programme development was quite far before all stakeholders were included. Despite the late inclusion of all stakeholders the process was enhanced by a well-executed appraisal of the draft NRWSSP and workshops to comment and agree on the final draft document. However, consultations with local authorities may not have been extensive enough. The District Development Plans appear to have been prescribed and standardised from the Centre and not sufficiently discussed and verified. Chibombo District Plan, for instance, indicate that the district would have more than 100% water supply coverage using the NRWSSP coverage criteria and having a budget for 2,460 boreholes yet the average NRWSSP budget provides for approximately 120 boreholes for the whole period up to 2015.

From the above experience the JRT recommend that preparation of the NUWSSP currently underway should take advantage of the lessons from the NRWSSP process. The NUWSSP process should be inclusive and participatory from the start. A time schedule and various steps in the process should be prepared and agreed with all parties involved from the very beginning!

3.1.2 Rural Water Supply Sector

The JRT found the main Area-Based (ABP) RWSS programmes to be consistent with the goals, objectives and strategies of the NRWSSP. Most such programmes are being implemented in the time period 2005-2010 after which they are expected to be fully integrated into the NRWSSP.

3.1.2.1 Eastern Province Project (2006-2009)

The JRT found the project objectives and strategies to be in line with the NRWSSP. However, the scope of the KfW financed programme is narrower than the other two ABPs in terms of capacity building at district level, flow of funds and procurement.

The Project is being implemented through MEWD instead of MLGH who have the mandate for WSS. The explanation is that the Project is considered to be in phase III and is merely being consistent with previous procedures. This position is reflected in the agreed minutes of the 2004 Zambia – Germany government-to-government meeting held from 17th to 19th May 2004.

(1) While mindful of the agreement between GRZ and Germany the JRT recommends that the two parties ensure that capacity building for the 8 districts under RWS Eastern Province is provided in line with the NRWSSP to ensure that those districts at the end of NRWSSP Phase One are at the same level of preparedness as the other districts with regard to decentralised implementation.

3.1.2.2 Northern & Luapula Province Project (2007- 2010)

11


The AfDB financed RWSS programme contributes to the NRWSSP as it falls within the priority sectors stated in GRZ’s current Medium Term Expenditure Framework (MTEF) (2006-2009) and the Fifth National Development Plan (FNDP). The Programme will be implemented in 15 districts in Northern and Luapula Provinces.

3.1.2.3 Western, Lusaka & Southern Province, WSPS (2006 – 2010)

The DANIDA financed Water Sector Programme Support (WSPS) consists of three sub-components: Support to RWSS; Support to Sector Development and DTF; and Support to Integrated Water Resources Management through MEWD. However, the focus of this review is on the RWSS sub-component.

The JRT found the project goals, objectives and strategies to be largely aligned to the NRWSSP with the following differences:

Coverage Criteria

Due to uncertainty about the baseline data and the various ways of calculating coverage as well as taking into account the sparsely populated areas there are a number of factors to consider. In the assessment of needs, equity and access the figures used by the WSPS are: 50 households per water point, areas with low coverage and households with more than 1.5 Km distance to safe water.

The JRT was informed that a consultancy study has started to look into coverage parameters and present the coverage and financial implications of applying these parameters. The criteria in the NRWSSP uses 250 users per hand pump and a maximum walking distance of 500m.

The JRT finds the study process satisfactory and that it points to opportunities of aligning the WSPS approach to the study findings in agreement with the GRZ. User contributions

The JRT has noted the differences in defining user capital contributions. These differences partly arise from the fact that contribution in kind is considered difficult and not practical when it comes to borehole drilling and hand pump installation but in kind contribution might be used / necessary in certain cases and partly from differences on how to treat beneficiaries in areas of high poverty levels and defining appropriate user contributions.

The JRT suggests that where appropriate a flat average rate for user capital contribution should be used.

Approaches to household sanitation

The NRWSSP provides for a subsidy for construction of household latrines. i.e. the NRWSSP contains a budget for 32,000 units of household latrines in Western Province in districts under the DANIDA WSPS. The WSPS only provides for a smaller number of demonstration latrines. In addition DANIDA’s policy, on household sanitation, states that subsidies to household latrines should be avoided and should not exceed local contributions.

The JRT recommends that a common approach be developed in the national sanitation plan and agreed to as stipulated in clause 11 of the draft Memorandum of Understanding (MoU) which is expected to be signed by the CPs and GRZ.

Reporting Format

12


The JRT learnt of the decision to use a common report format under the NRWSSP instead of individual ABP progress reporting. The JRT supports this decision as an important step in harmonising procedures. The JRT, however, noted that so far no NRWSSR progress report has been prepared and this needs to be done urgently before the next Steering Committee Meeting

3.1.2.4 Operation and Maintenance (O & M)

The decision by the MLGH and CPs to promote the JICA assisted maintenance system developed by the JICA assisted Sustainable Operation and Maintenance Project (SOMAP) as the national model is an indicator of the willingness for harmonisation in the sector. The JRT finds the O&M, supply chain programme sufficient and appropriate for improving the hand pump O&M. There could, however, be some challenges with regard to getting spare parts supplies close enough to the users. This will call for more outlets to be explored. The option to use District offices as outlets for spare parts, needs to be handled with caution as it could easily give the user the impression that “the government” will be in-charge and responsible for hand pump maintenance (business as usual).

The maintenance system in use varies from district to district. In the district visited by the JRT it was the district Council which provides spare parts and carries out most of the repairs by responding to reports from communities having problems with hand pumps etc. Changing the modalities to the SOMAP approach is obviously going to take some time, training and mobilisation efforts. The SOMAP three year second phase will only cover five districts in Central Province so it is expected that the ABPs adopt the approach and roll out a similar programme.

(2) It is recommended that the GRZ and CPs scale up the SOMAP approach to become the national approach co-ordinated by present SOMAP and pool resources meant for O&M or alternatively work out agreement to scale up individually within the ABPs following the same approach.

3.1.3 Hygiene and Sanitation

The goal of the NRWSSP with respect to sanitation is to increase the number of proper sanitation facilities in rural areas through the promotion of household latrine construction, health and hygiene education, and strategic demonstration facilities; to increase the sanitation coverage from 13% (2005) to 35% (2010) and finally 60% by 2015.

Sanitation is regarded as an individual household affair and interventions are limited to raising awareness on hygiene and sanitation and assistance in construction of demonstration models of sanitation facilities. The JRT noted that there is already a GRZ – CPs committee on sanitation.

Coverage estimates for rural sanitation

The JRT findings show that the official sanitation coverage is 13% and the objective is to achieve 60% by 2015. This coverage figure is based on the 2000 census. This implies that of the then projected 7.7 million rural populations in 2005, 7 million people still lack adequate sanitation facilities. In addition approximately, 30% of the rural population or at about 2 million people do not have access to any type of sanitation facility. This means that in addition to increasing access to sanitation facilities it will be necessary to rehabilitate defunct facilities and ensure maintenance of existing services.

It is still unclear how the GRZ quoted figure of 60% was derived. The Central Statistics Office(CSO) has recently accepted that pit latrines should be included in future surveys, which is a positive step but has the potential to distort the progress made.

13


(3) It is recommended that the official GRZ target should, be revised to 66% coverage MLGH and its CPs need to revisit the actual status coverage of sanitation and the MDG targets and commit a realistic budget allocation for sanitation if the set targets are to be realised.

Capital Contribution to Household Sanitation

The national programme is based on the assumption that households will provide their own sanitation facilities. A unit capital cost of US$25 per household is budgeted for to assist each household build the basic sanitary facility. This amount is meant to support credit facility, or for poor and vulnerable households an outright subsidy. MLGH will need to review the best ways to promote subsidy for sanitation as well as to facilitate building of consensus support for subsidies among CPs

Information Management System

The JRT recognises that a MIS has been developed and tested and is to be rolled out to the entire country and institutionalised. Notably the IMS does not have adequate indicators for hygiene and sanitation improvements, such as hand washing practices, safe excreta disposal and access to safe drinking water, that are key in monitoring effective behavioural practices. The IMS unit needs to be elevated from unit level to section level as it cuts across all activities of the NRWSSP..

(4) It is recommended that the IMS working group should liaise with the National Sanitation Working Group in order to identify key indicators for the rural hygiene and sanitation and ensure these are included in the IMS.

The decentralisation structure at District Level

The implications of the decentralisation policy are that the MLGH devolves the implementation of sanitation services to the Local Authorities. However it is acknowledged that LAs have limited capacity. The challenge for the NRWSSP is how the MLGH is going to facilitate the implementation of hygiene and sanitation activities and meet its officially set target of 13% to 60 % by 2015.

(5) It is strongly recommended that WSS steering Committee and the Working group on Sanitation take charge and steer the process of developing the Sector Devolution Plan.

The National Water Policy

The policy is inadequate in addressing rural sanitation. There is no definition of basic service level with respect to RWSS facilities. The policy is also silent regarding investment support for individual or household sanitation facilities; roles and responsibilities for rural sanitation.

Development of the National Sanitation Programme should consider articulating the above shortcomings and clearly define the basic service levels for sanitation, the investment support for household sanitation, roles and responsibilities of relevant stakeholders

The Gender Strategy in the WSS sector

The strategy still remains useful in terms of content and should provide a basis of mainstreaming gender concerns especially on sanitation and hygiene improvements so as to avoid gender imbalances in terms of participation and benefits. Although the gender strategy is found to be sound, it has not been implemented. Among the prominent issues of concern to be added to the strategy is gender and HIV/AIDS that should be implemented at all levels of WSS programmes. The JRT noted that there is an ongoing MLGH and UN Habitat gender mainstreaming activity.

14


The WASHE Approach

Many D-WASHE committees have ceased functioning due to insufficient support from the national level particularly where donor support is not available. Additionally, the WASHE concept with its structure and the distribution of responsibilities remains to be harmonised with the decentralisation efforts in Zambia.

Based on the new institutional structure at District level in the NRWSSP, it is proposed that the D-WASHE be phased out completely by having a RWSS co-ordinator employed by the district council. The danger of this is that the inter-sectoral advantages of the D-WASHE structure will be lost completely and the role of MoH, MoE, MCDSS will become less clear and less effective. While it is agreed that the WASHE concept should remain the strategy for RWSS it will be difficult for this to occur in practice if the D-WASHE is abolished.

Although the WASHE function ceased due to insufficient support MLGH/DISS should build on such existing strategies and approaches as part of the capacity building process.

It is pertinent that the nature of the WASHE planning and implementation is maintained. As the institutional structure evolves at the district level, and a RWSS co-ordinator is employed, an inter-sectoral district-level advisory committee should be established to ensure that the inter-sectoral advantages of the D-WASHE structure are strategically incorporated in the planning and implementation process of the Programme.

The MLGH has indicated that it is advocating the creation of RWSS Committees, incorporating line Ministries, within LA. The JRT supports this initiative.

Ministry of Health

The Ministry of Health (MoH) is responsible for health, sanitation and hygiene promotion. The MoH has deployed Environmental Health Technicians (EHTs) at the sub district level whose major responsibility is to undertake Public Health activities. The role of the EHTs includes community mobilisation for hygiene and sanitation promotion, operation and maintenance of water supply facilities as well as water quality monitoring amongst other functions. There is need to revisit the development of the new structures that are being developed under the NRWSSP/MLGH in order to harmonise and compliment its devolved roles.

The MoH legislation and regulatory frameworks should form the basis for planning and implementing the RWSS as well as in the development of the national sanitation policy. Therefore, it is recommended to extend the coordination with MoH and employment of EHTs at the district and sub-district level.

Ministry of Education (MoE )

The key features for the MoE that are considered in sanitation service delivery include (i) promotion of improved hygiene and sanitation among pupils; (ii) achieving correct pupils per toilet ratios and separate toilets for the girl and boy child; (iii) the provision of disposal systems such as incinerators latrines that have sitting pans; (iv) the number of stances for the girls child are more than those of the boy child given the sanitary gender dynamics; and (v) appropriate and separate sanitation facilities for pupils with disabilities to enable them attend school. Support to the improvement of sanitation the situation in the school sector is essential to success.

The status of water and sanitation facilities in basic schools is characterised as being very poor.

15


(6) The National Sanitation Working Groups should formulate clear activities of facilitating hygiene and sanitation improvements in schools to include provision for hand washing facilities and practices. The JRM strongly recommends that mechanisms of enhancing collaboration with MoE and CPs (like UNICEF) already working on school hygiene education and sanitation improvements should be outlined in the development programme and implemented to increase coverage.

Ministry of Community Development and Social Services (MCDSS)

MCDSS is not directly mandated to implement water and sanitation activities in the country and can only contribute to this process through its mandate of mobilising and organising communities for the various development activities that may be agreed upon in the sector.

The level of involvement in the NRWSSP should be through the D-WASHE and V-WASHE’s, under the LAs. V-WASHE should be supported so as to ensure sustainable institutional capacity to promote hygiene and sanitation

3.1.4 The Position(s) of the CPs in RWSS

To get an overview of the harmonisation and alignment potential in the RWSS Sector in Zambia the JRT prepared a questionnaire for the CPs. The CPs responses are captured in section 6 below.

Readiness to sign the MoU on the NRWSSP

Most CPs agree with the basic principles of the NRWSSP and have declared their willingness to sign the proposed MoU, subject to certain clarifications and adjustments in the text and conclusion of their internal consultations.

(7) The JRT recommends that dialogue and consultation between the MLGH and the CPs continues on the modalities for cooperation and support to the NRWSSP which should lead to the signing of the MoU before the end of 2007.

Procedures for procurement of TA

There are still marked differences in the modalities of how TA is arranged by different CPs. The range is from open tendering for national experts using the procurement rules of the CP, to open European Union tendering, and to using the GRZ procurement system - at least for local TA staff.

(8) It is recommended that each CP carefully reconsiders the present TA procurement procedures and indicate its willingness to align itself with the stipulations of the NRWSSP and the MoU. This includes finding a position on the possibility of joining a joint basket for funding of TA.

Flow of funds

Each CP at present uses its own procedures for the flow of funds, ranging from direct project funding managed by consultants/contractors, or direct disbursement to either Districts or through MLGH/MoFNP. A few CPs have indicated their readiness/preference for joint funding through a common arrangement at the MoFNP.

It is recommended that each CP carefully considers its position on this issue. The result can be manifested through the signing of the MoU on the NRWSSP, which provides for different options.

16


Funding of sector reflected in the (MTEF)?

Most of the funding from CPs at present is reflected in the MTEF, and the CPs still outside seem to recognise, that reflection of financial contributions to the sector in the MTEF is a key SWAp indicator.

It is recommended that each CP makes arrangements with the GRZ to ensure, that future funding is included in the MTEF and thus reflected in the subsequent Public Expenditure Reviews for the sector.

Readiness to contribute to a common fund for RWSS sector development

The readiness of CPs to contribute to a common fund for RWSS sector development is confirmed by some CPs while others still have reservations due to national regulations.

It is recommended that these issues be dealt with bilaterally through consultations between each CP and GRZ, and that the outcome be manifested through the signing of the MoU on the NRWSSP.

3.1.5 Special Aspects

The capacity of MLGH/DISS to meet the NRWSSP’s requirements

The JRT found that, at the central level, the current staffing of the RWSSU under MLGH /DISS is not inadequate to implement the NRWSSP. The JRT noted that MLGH has not made much progress in preparing a devolution plan to the same extent as some other Ministries. The JRT notes that the MLGH should be able to prepare a Devolution Implementation Plan within 6 months.

The JRT was informed that staffing requirements have been submitted to the Cabinet Office for processing and approval. The JRT strongly urge the GRZ to approve the required staffing levels to avoid delays in implementation. The JRT also notes that this is considered a critical assumption for successful implementation of the NRWSSP in both its programme document as well as in the AfDB and DANIDA supported projects.

(9) It is strongly recommended that GRZ approve the required staffing levels to avoid delays in implementation.

The JRT found the capacity at local authority level to be too low to provide the necessary support for implementation of the ABP using the NRWSSP Phase One approach, which was a precondition for funding two of the ABPs. The JRT finds it necessary to boost the staff at district level to avoid further delays in implementation. At the present stage of decentralisation, resolving the issue of flow of funds channel from centre to districts, service rules etc might take a long time before sufficient capacity is available for district implementation. The JRT, therefore, finds it necessary that capacity at district level should be boosted as part of the ABP implementation approach.

(10) It is recommended that ways be found within the ABPs to provide funding for a time limited employment of the minimum staff requirement to staff district support teams under the assumption that the staff will belong to the local authorities and be taken over by these at the agreed time (i.e. 3 years).

TA plans for the sub-sector

The NRWSSP presents the ABPs as Phase One piloting of the programme as well at the TA contracted under the WSPS as the TA for the national programme. While this is a logical and positive resource saving assumption it should be formalised among the CPs / GRZ and the TA manpower implications should be considered, negotiated and agreed to as it might require adjustment to present TA strengths and contractual arrangements.

17


(11) It is recommended that the issue concerning the use of ABP TA as national level TA is formally agreed between the various partners and that possible additional required TA is pooled under this arrangement.

3.2 Findings in the Urban WSS Sector

The strategy for developing water supply and sanitation services in urban areas includes the formation of Commercial Utilities (CUs) by Local Authorities to have the primary responsibility of developing and managing water supply and sewage services on a commercial basis. So far, 10 CUs have been formed in seven out of nine provinces, mainly with the support of the Co-operating Partners (CPs).

Investment programmes have been initiated to rehabilitate and extend the water supply infrastructure in the larger urban areas with support of CPs such as the German Government, the World Bank, African Development Bank and the Danish Government. In accordance with the reforms a regulator, NWSACO was created and is fully functioning. For the expansion of services to peri-urban areas the Devolution Trust Fund (DTF) was created and is also fully operational.

The JRT also noted the support of other CPs such as JICA and KfW as being among others supporting peri UWSS.

A National Urban Water Supply and Sanitation Programme (NUWSSP) is being developed at MLGH. The first draft of the NUWSSP is planned to be completed by March 2008.

3.2.1 Required Action and Institutional Framework

The JRT reviewed the outline of the main issues, action plan and cost estimate for the development of the NUWSSP. It was noted that table of contents is adopted from the NRWSSP. The overall work plan and activity development of three core strategies for sanitation, drainage and faecal sludge run parallel beginning November and ending in December 2007. The solid waste management strategy is planned to be elaborated in October 2007.

The JRT finds the plan to complete the first draft of the UWSSP to be very ambitious as it does not take into consideration all the activities required to achieve the outputs. However, the JRT also acknowledges that the UWSSP has made the important step of starting and is at the planning stage with room for adjustments.

(12) It is recommended that the overall plan for the NUWSSP be reviewed and redesigned on the basis of current work done.

In general, the reconstruction of the urban WSS infrastructure and development of existing systems to adequate standards in future is an urgent basic priority after which, wherever possible, it can then be extended to peri-urban areas.

Secondly, the development of Commercial Utilities (CUs) under the LAs will need to be supported to achieve best operational performance.

The financing in the water sector and future budgets are dependant on the actual development of a nation wide strategy for urban water supply and sanitation. Improved operational efficiency is also essential.

The lack of qualified staff and uncertainty about the general direction in the development of the country’s infrastructure and how to simultaneously improve the urban infrastructure needs a strategic to be developed within the NUWSSP. The second key issue relates to capacity of water sector staff how to co-ordinate training from university down to basic technical training. The issue of staff training has been identified as a sector wide problem.

18


Therefore it is recommended, to complete the actual and ongoing activities by late 2008 with a capacity building programme for the water sector in co-operation with the existing CUs, for the rural and urban demands. There is need for a significant increase for (re-) investments in the water supply and sanitation infrastructure.

The CUs are central in improving urban water supply and sanitation. The performance of the current CUs are at different levels of performance not withstanding the lack of qualified personnel. In general CUs are critical to further improved standards of water supply and sanitation.

The most important activities for the CUs are:

to improve the basic water supply and sewage system in the urban areas; to develop and install or extend water supply and basic sanitation services in the peri-urban

and low-income housing areas; to increase the collection of water and sewerage fees; and to develop capacity for future business stability.

To assist in meeting the needs of the various CUs it is recommended that the CUs and CU-like providers form an association for promoting cooperation and joint actions.

In the long run the CUs are expected to increase their customer base in their licensed areas to supply WSS services including the needs of industrial purposes.

The Water Supply and Sanitation Act mandates the MLGH the policy responsibility for delivery of water and sanitation services. Consequently the Ministry monitors and provides technical support to the LAs which are responsible for direct services provision in the areas under their jurisdiction, mainly through CUs. The DISS of MLGH has the responsibility to provide technical support to the LAs including the established CUs. The urban water supply and sanitation unit consists of 3 staff members (one for urban, one for peri urban and one is currently designated as project co-ordinator of the ADB funded Central Province 8 centres Urban Water and Sanitation Project).

3.2.2 Roles of DTF and NWASCO concerning Urban Areas

NWASCO

NWASCO has moved relatively fast in setting quality standards for service delivery and developing its regulatory instruments. Through technical support provided by GTZ NWASCO’s ability to effectively monitor the service providers has been strengthened by development of standardised reporting and accounting standards.

The practical support provided for building up commercial utilities is helpful. Quarterly organised meetings by NWASCO with the heads of the CUs have already led to a common understanding of what their business is. Setting benchmarks for CUs helps to improve their business and service.

Key activities carried out by NWASCO include:

Preparation on a regular basis of detailed reports about the performance of the CUs; Publishing comments and recommendations on each CU; Developing and publishing business guidelines; Consumer interests recognised and supported through assistance to water watch groups; and Preparation of Annual Reports.

The descriptions of the regulatory procedures in guidelines are in accordance with the ISO 9000 standards.

19


During the JRT consultations with CU officials and LAs it emerged that sometimes the LAs have inadequate information about what is actually going on in the water sector. Lack of adequate information hinders development of the sector and it is proposed that in future the CUs, NWASCO and MLGH develop a platform for informing the LAs authorities about their expected roles and responsibilities in the water sector.

Devolution Trust Fund (DTF)

DTF began on a pilot scale in 2003 with the aim of improving water supply in the peri-urban areas. The main task of the DTF is to finance projects for water supply in peri-urban and low-income areas. It is planned that in future (starting second half 2007) the DTF activities will also extend its services to the sanitation sector in these areas.

The Aquatis Information System as a functional database for all Zambian Urban areas – matching 102 cities and towns, 370 peri-urban and 198 low-income areas has been developed and is fully functional.

The toolkit developed by DTF for peri-urban water supply enables CUs and other service providers to run complete kiosk programmes in their peri-urban areas. A small group of independent consultants is listed at the DTF who are able to support CUs and service providers in the implementation of the kiosk programme.

There appear to be some misconceptions about the position of the DTF which need to be cleared. Sometimes the DTF is perceived to be a department of NWASCO or as a financial provider operating independently. The DTF should enhance its efforts to be recognised as the independent financing institution for CUs and other service providers to develop water supply and sanitation services to peri-urban and low-income areas and the role of the DTF in this field as a fund!

A potential problem in the near future relates to the re-financing of the DTF. There are no grants from forthcoming from the European Union despite the previous announcements to that effect. The GRZ and CPs should seek to for a clarification from the European Union.

Finally there is the issue of foreign exchange variations and need to minimise the effects on the on the DTF which needs to develop a formula and method for cushioning the budget and prudent short term investments.

3.2.3 Special Aspect “Solid Waste Management” (SWM)

The JRT sought to find out if CUs, apart from the core business providing water supply and sanitation services in the urban areas, could also provide additional services given the experience of one CU on the Copperbelt. The CUs consulted all pointed out the lack of similarity between sewage handling or faecal sludge management and SWM. They indicated that it would be more efficient to create a separate specialised agency for SWM under the CUs in line with all the international experience in this field. Even then it is not definite whether this option would be advantageous to the CU operations. Consequently it is recommended this be determined through a feasibility study to be undertaken preferably under the auspices of a CU with experience in faecal sludge management.

(13) It is recommended that the aspect of including solid waste management in the water and sanitation strategy be resolved through a feasibility study which should prove whether such a multi-utility strategy works or not. A CU experienced in faecal sludge management should be included in the feasibility study.

20


3.2.4 Hygiene and Sanitation in Peri- Urban Areas

In the peri urban and low income areas there are very limited sanitation facilities and excreta disposal is mainly by use of on-site sanitation facilities i.e. toilets with septic tanks and latrines.

Latrines available are of mixed quality with a big number in poor condition because they are poorly constructed and/or poorly maintained. There is also a problem of poverty constrains the majority from hiring labour, paying for good and durable building materials or hiring qualified technicians to construct the latrines appropriately. In areas where the water table is high people cannot dig deep pits. These shallow pits fill up quickly and entail frequent emptying, which in turn is expensive. Currently in most urban centres equipment for emptying is not available or when available it is inadequate.

Hygiene and sanitation activities are the responsibility of the health department of LAs, however they are constrained by lack of financial and human resources. Work on promotion of improved hygiene and sanitation in peri and low income urban areas is carried out by NGOs and to a limited extent community based organisations. The DTF is to pilot the provision of sanitation services in 4 towns.

It is recommended that the special nature of the peri-urban areas be considered when developing the strategies and implementation plan as part of the development of the NUWSSP

3.3 Findings in Sector Development and Management

The national policies such as the Vision 2030, the Millennium Development Goals (MDGs), the Fifth National Development Plan (FNDP), including the Medium Term Expenditure Framework (MTEF) and other national policies and strategies such as the National Gender Policy (2000) and the National Decentralisation Policy (2000) form the set of important guiding policies for the WSS sector.

3.3.1 Progress in Implementation of agreed Transfers of Mandates and Authority Water Sector Reforms 1994

The water sector reforms led to the development of the first ever National Water Policy in 1994 and the Seven Sector Principles namely: Separation of water resources functions from water supply and sanitation; Separation of regulatory and executive functions within the WSS sector; Devolution of authority to local authorities and private enterprise; Achievement of full cost recovery for the water supply and sanitation services through user charges in the long run; Human resource development leading to more effective institutions; Technology appropriate to local conditions; Increased GRZ spending priority and budget spending to the sector.

Separation of Water Resources Functions From WSS

Although the separation of the water resources function from that of WSS has since been achieved some challenges remain:

- Capacity gaps created in MLGH with regard to WSS expertise. - WSS is only a section under DISS. This arrangement has lowered visibility and profiling of WSS;- There are still outstanding issues between the Department of Water Affairs (DWA) and DISS which

need to be resolved. These challenges are a serious lapse in the reform process.

The JRT recommends that the GRZ raises the profile of the WSS and resolve the long outstanding issues between the DWA and DISS.

21


The JRT is also of the impression that hiving-off the Drilling Section under the DWA and making appropriate redeployment of personnel to make better use of their expertise would assist the GRZ to resolve the outstanding issues.

The JRT acknowledges that the establishment and successful operation of NWASCO as the regulatory authority of the UWSS is a key achievement of the reforms. Another achievement for NWASCO has been the development of guidelines on service provision to the poor as well as its facilitation of the establishment and successful operation of the Devolution Trust Fund (DTF). Despite these successes the JRT notes the following challenges:

As a regulator, NWASCO should strictly adhere to its mandate as defined in the Water Supply and Sanitation Act of 1997. The relationship between the DTF and the NWASCO offices has also been questioned by some stakeholders who argue that it compromises the regulator’s role.

Other stakeholders on the other hand, believe that NWASCO has been proactive in its operations and has in many ways filled the capacity gap for MLGH in some of the activities it has undertaken.

The JTR noted that government is processing the transfer of NWASCO and the DTF from MEWD to the MLGH. This transfer provides the opportunity to define and delineate the roles and responsibilities of MLGH/DISS, DTF and NWASCO.

The JRT recommends that Government urgently transfers the NWASCO to MLGH and clarifies the relationship between the DTF and NWASCO.

Devolution of Authority to Local Authorities and Commercial Utilities (CUs)

WSS services were devolved to the Local Authorities in line with the provisions of the WSS Act of 1997. In the case of UWSS, the Local Authorities are mandated to provide the service either directly or by forming CUs.

The devolution of authority to the Local Authorities brought with it capacity challenges in RWSS. However, as the CUs were taking shape and consolidating their operations, they began to shade off some of this staff who had inadequate skills and qualifications.

A recent study (Sector Capacity Study, 2007) has indicated that there are serious capacity gaps both in terms of numbers, qualifications and skills at the District level and also in the CUs. Currently, government has engaged a consultant to undertake a review of the salary structures for public service workers. In this regard, it is important for the stakeholders in the WSS sub-sector to take this opportunity and avail as much information as possible to government (as well as advocate) in order to improve salaries and conditions of service.

The JRT recommends that the WSS Steering Committee formulates comprehensive Human Resource Development (HRD) Strategies for the sub-sector (One for RWSS and another for UWSS).

The recent Capacity Study (2007) would act as a base for developing this initiative.

Progress of the Reforms

The JRT while acknowledging the achievements of the reforms note that there are areas of the National Water Policy yet to be realised. These include achievement of full cost recovery through user charges, human resource development issues, matters relating to technology options as well as funding to the sector. By failing to make progress in these areas, sector development has been slowed down considerably thereby affecting service delivery.

22


3.3.2 The Legal and Institutional Framework

Legal Framework

The pending Water Resources Management Bill under the MEWD has implications for WSS sector management and co-ordination. There are bound to be changes (or additional responsibilities) in the way the WSS sector will be managed.

Another development is the current decentralisation programme and the process in which all the relevant laws are being reviewed to ensure that the legal framework will adequately support its implementation.

The JRT recommend that DISS working through the WSS Steering Committee should keep track of developments that will emerge as a result of the Water Resources Management Bill as well as all other laws under review

National Level

The WSS institutional framework should include the Ministry of Finance and National Planning (MoFNP). The MoFNP is critical to the WSS sector as its actions have implications on sector management and co-ordination. These implications are often of a financial nature as the portfolio of the ministry includes external and internal resource mobilisation as well as sector funding.

Ministry Level: The Role of DISS

Staff in the RWSS Unit are not yet on the government pay roll (after 3 year support from Irish Aid) although. Government is paying the salaries through project financing. The proposed structure for the department still awaits approval by Cabinet. This proposal has been pending for a long time forcing staff operate under a lot of pressure. Cabinet Office through the Management Development Division (MDD) has assured the JRT that this process could be finalized by December 2007.

As regards the process of decentralisation, the WSS sector is lagging behind the other sectors such as Education, Health and Agriculture. All these ministries are already in the process of developing their Sector Devolution Plans (SDPs). The JRT found that there has been no adequate consultation between DISS and the Department of Decentralisation. Evidence of this is seen in the way the Department of Decentralisation working with the Management Development Division (MDD) of Cabinet Office has already undertaken restructuring of the Municipalities. The JRT was, however, informed that DISS has presented the establishment of RWSS Units at District level and that DISS is on the Devolution Committee.

District Level

Currently, RWSS Unit has worked out a tentative structure for the District (This is being piloted under the DANIDA supported ABPs). The structure consists of three positions (One for O&M, another for IMS and the other for Community Mobilisation). However, this structure has not been worked out in consultation with the Department of Decentralisation. It also means that it has been worked out in isolation of the SDP, which is yet to be developed. The underlying assumption of this structure is that every district has the same requirements. The reality is that districts differ in their capacities and geographical size.

Sub-District and Community Level

The WASHE activities at the Sub-District level are facilitated mostly by Environmental Health Technicians (EHTs) who are employees of the MOH based at Rural Health Centres (RHCs). However, in Districts where there is an active NGO in the sector, activities are supplemented (e.g. DAPP in Monze, CCF in Mumbwa). At the community level, the V-WASHE Committee ensures the delivery of WSS services. Under the decentralised system of administration, it is not yet clear how these lower level structures will evolve. What is clear is that the Area Development Committee (ADC) will be the centre of

23


activity as it will provide the forum for planning and co-ordination of activities of the different sectors. It is important therefore, that the sector policy makers begin to think through these issues long before implementation starts.

The JTR recommends that MLGH begins preparing the WSS SDP in consultation with the Decentralisation Department MOE and MOH and review the staffing levels being piloted under the ABPs and aligned to the SDP.

Non-Governmental Organisations (NGOs)

The JRT found that the NGOs in WSS are key players. Several NGOs have considerable experience from implementing of community-based RWSS and some of these have own ABPs. Other NGOs are providing services to ABPs funded by different CPs. However, government has been wary of some NGOs whose activities have not been clear and this has often led to mistrust and suspicion.

JRT also found that until very recently the NGOs in the WSS sector have been operating without a common platform where they can share experiences and as such have been dealing with government institutions mostly on a one-on-one basis. ToRs to facilitate the NGO Forum are under scrutiny by the stakeholders. With new developments coming as a result of decentralisation and new funding mechanisms such as SWAp being considered, the NGOs have expressed concern on how they will be able to access funds in future.

The JRT recommends that Government should engage the WSS NGO Forum for the exchange of views, information, defining roles and coordinating WSS activities.

3.3.3 Alignment, Harmonisation and Accountability

In line with the Paris Declaration, the government of Zambia has formulated the Joint Assistance Strategy for Zambia (JASZ) which is principally a domestication of the Paris Declaration, reform of the public financial management system through the Public Expenditure Management and Financial Accountability Programme (PEMFA), facilitation of a Sector Wide Approach (SWAp) and also the decentralisation and restructuring of the office of the Auditor General.

JASZ

The overall objective of JASZ is harmonisation and co-ordination of donor activities in the country. It is also an initiative to facilitate strategic partnership between CPs and Government and also strategic partnership between the CPs themselves. The outcome is the formulation of a MoU based on the Paris Declaration, which stipulates various guidelines for co-ordination and harmonisation of approaches by CPs.

Public Expenditure Management and Financial Accountability Programme (PEMFA)

PEMFA is designed to improve accountability and transparency in the management of public funds. PEMFA was established in 2005 in MoFNP and will run until the end of 2008. The main objective of the programme is to improve public expenditure management and strengthen overall financial accountability in the public sector. Its key activities include:

Decentralisation/Restructuring of the Office of the Auditor General (OAG)

The AOG is a key institution for promoting accountability and good governance in the use of resources in the country. In order for WSS sector management and co-ordination to be more effective, the efficient operation of the AOG is required.

The JRT recommends that the Office Auditor General be strengthened

24


SWAp

In spite of the introduction of SWAp, some CPs have continued to fund sector programme budgets. This affects the ability of MoFNP to control and monitor the use of these funds leading to technical, procurement and audit problems because currently, MLGH has inadequate accounting staff. This is affecting the performance of the various departments, including the WSS Unit. For instance, the financial reports are not submitted on time.

The JRT recommends that Government accelerates the launching of the JASZ because of its importance to the

effective management of the WSS sector; MLGH working in collaboration with MoFNP and CPs prepare a timetable for the

implementation of SWAp; MoFNP ensure that all stakeholders are familiar with the concepts and procedures of LASZ,

SWAp, PEMFA and related policies.

3.3.4 Framework for Planning, Co-ordination, Monitoring and Evaluation

Currently, the planning process for WSS follows the pattern of planning prevailing in other government institutions involving the development of Annual Plans for the sectors. In RWSS the process begins at sub-district level where plans are submitted (mostly by EHTs) to the LAs. The LAs then consolidate the submissions of the various sub-districts and pass them on either through the provincial office or direct to DISS. The planning for UWSS takes a different dimension altogether as each CU undertakes its own planning.

Since it has already been observed that there are capacity problems at all levels of implementation in the WSS sector, the planning process has therefore, over the years been prone to a lot of problems. However, this scenario is soon to change as the MLGH is developing an Information Management System (IMS) .

(14) The JRT recommends that due to the devolution of the various sectors functions to the districts, Government, through the WSS Steering Committee, reviews and re-aligns the planning process, including the IMS in WSS, with the overall planning framework to be introduced at the District.

4. STAKEHOLDER RESPONSE TO THE DEBRIEFING

Summary of the debriefing meeting

The JRT held a debriefing meeting with officials from the GRZ and CPs on 4 th October 2007 and noted the following issues:

Rural Sector

The lack of capacity at various government levels was noted and recognised as a serious problem and constraint on how to decentralise responsibility and action to the lower levels of administration. In addition it was acknowledged that the extent of water supply delivery will greatly depend on local support and human resources.

It was recognised that future WSS funding programme will be based on a joint approach instead of the usual bilateral agreements. It is, therefore, required to develop a co-ordinated process of funding and co-funding by the GRZ especially the budgeting process whose financial years need to be taken into account to avoid delays arising from discrepancies between the flow of CPs contributions and incorporation into the GRZ budget. This may well be experienced when it comes to provision of sanitation in national activities.

25


Urban Areas

The planning process for urban water and sanitation programme has just began. There are reservations regarding suggestions to include solid waste management as part of utility services.

The regulatory institutional framework generally received favourable comment although there were reservations about the relationship between NWASCO and the DTF. NWASCO is on the Board of DTF. Others felt that this is not a problem as NWASCO does not represent a majority on the Board.

Sector Development and Management

It was observed that since the various players, that is GRZ, CPs and NGOs, share a common desire to develop the country they should complement each other’s efforts. It was pointed out that it would be helpful for the NGOs to show Government the niches they are able to work in.

MLGH

The MLGH acknowledged the work of the JRT and pointed out that much still needed to be done especially the need to accelerate the process of devolution. It was also pointed out that there is a lack of capacity in implementing institutions in the country. The MLGH, therefore, was requesting CPs for further capacity building and decentralisation support.

The MLGH welcomed the contributions of the NGOs to WSS sub-sector and called for them to indicate their particular skills and niche in sector development.

Further the MLGH acknowledged the findings on the sector leadership problem but emphasised that a resolution of the problem was at hand.

MoFNP

The MoFNP noted and accepted the findings and recommendations of the JRT. The MoFNP stated that they strongly support the further implementation of the NRWSSP and would work on supporting the WSS sector through increased funding.

5. LESSONS LEARNT

5.1 Review Process

This first joint sector review could be regarded as an experimental exercise intended to inform and establish a permanent and predicable future process for reviewing the entire water sector. The lessons learnt during this short review and recommendations for future reviews will necessarily be enhanced by future experiences and adjusted accordingly. For the present the recommendation by the JRT for futures sector review is based on the two week experience of document and field research through structured meetings and interviews with the stakeholders in the WSS sector.

Based on this experience the JRT recommends that the Review Mission should start before September to allow their findings to feed into and inform the government budgeting process underway at the time. The overall time for a review based on agreed objectives and anticipated number of activities suggest that a “medium sized” review be allowed 17-18 days on location for the active auditing phase instead of 14 days.

26


Preparation Phase:

The JRT make the following suggestions on the preparation phase of future reviews:

A joint sector review should be planned at least 6 month in advance and programmed into the calendar of the Government and CPs which was not the case this time;

The auditing details and process as a whole should be planned in advance of the actual review (including a first work plan) which in this case was on the work plan level;

Documentation and other needed material should be distributed to the team in advance with perhaps one main delivery. This was basically tried this time. However, in future consideration should be given to creating an access restricted website where materials could be posted for the duration of the review. This could also serve as the Review Teams internal information exchange platform;

The GRZ/CP joint review agreed ToRs should basically form one document in one version (perhaps freeze as pdf document) with a copy to be attached to the individual contracts of the Team members. In this instance some Team members had old versions of TORs with others having revised ones;

The Review Team composition should reflect some commonality in the profiles of the team members in terms of professional and social background to enhance understanding and synergy in the working relationship among the team members. Coincidentally, this time, there was harmony and synergy in the working relationships of the JRT!;

Each member of the review team should receive a brief information (CV) on other team members in advance in order for members to cultivate a better understanding and appreciation of each other;

Start Up Review Phase and Following Phases

The JRT felt it could not practically pre-plan all the phases of future joint sector reviews apart from making suggestions on some improvements of the current review. Accordingly the JRT suggest the following:

The number of people to be interviewed should be extended in line with the extension of the time period as indicated above;

The review process should include holding of a stakeholder workshop (including Steering Committee members) to capture more input and inform decision making on critical issues.

5.2 Reporting Standards

The JRT suggests that a standard reporting system be developed for review reports which could be adjusted to questions posed by the TORs and set objectives. Although there are a few common standards that can be agreed for multilateral reporting and government reporting this is a technical area and a “house style” could easily be developed and agreed.

The JRT suggests that the layout should use serif types for the text, e.g. Times or Times Roman, 11p. The use of Arial is not common for text. Arial should be used for all headings from front page till headlines of part chapters – although others prefer one font to be used throughout the document. The text should be structured by space lines. Block setting should be used. Abbreviations should only be used if they have been introduced previously by a name or subject written in the long version.

27


The JRT suggests that a general framework for a review report should contain though not restricted to the following:

Table of ContentsExecutive Summary

1. INTRODUCTION1.1 Committed Objectives1.2 Short Description of the Reviewed “System”

(Actors and Relations); short description of the institutions; Development partners involved and type and style of co-operation

2. Relevance of the Reviewed Sector or Programme3. Description of the Findings

State of Development – in sections closely based on the objectives within TORs4.Stakeholder Response

Responses to findings during the debriefing meeting Proposals for the next review

5. Lessons LearntA description of expectations; changes to the process; and recommendations for the future processes and reports

28

6. Questionnaire and Responses from the CPs

(Assessment of Harmonisation and Alignment potential in the Rural Water Sector in Zambia)

6.1 Cooperating Partner: …Embassy of the Netherlands (Background donor)

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase2 (2011-15)Issues: Present: Remaining period:GRZ partner in RWSS development MLGH through Delegated Cooperation arrangement with Irish

Aid.MLGH through DC arrangement Irish Aid or Co-Financing arrangement with regional UNICEF-WASH program or withdrawal from the sector based upon Water Sector Review.

-


yes - -

Procedures for procurement of TA n.a. - -

Procedures for project/programme procurement

Procurement by implementing partner (MLGH) - -

Flow of funds – through which channels?

We have a Delegated Cooperation arrangement with Irish Aid (Based upon the Nordic DC arrangement format). Irish Aid has a bilateral agreement with MLGH.

Delegated Cooperation or contribution to regional UNICEF-WASH programme

-

Funding of sector reflected in the national budget (MTEF)?

Yes – through coordinating CP. - -

Readiness to contribute to a common fund (pooled basket arrangement) for rural water sector development

Yes Through DC arrangement or through regional UNICEF- WASH programme

-

A self assessment of readiness to Harmonisation and Alignment and adherence to the stipulations of the NRWSSP

Netherlands fully support further alignment to NRWSSP through an active or lead donor agency.

- -

Position on Hygiene and sanitation as a priority and the issue of subsidy

Positive to hygiene and sanitation. - -

6.2 Cooperating Partner: …Embassy of Japan/ JICA

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase 2 (2011-2015)Issues: Present: Remaining period:GRZ partner in RWSS development RWSS Unit, MLGH Same N/A (Currently there are no concrete

programs or projects planned by the Japanese side during this period.)


Have sent comments from the Embassy and now awaiting the final version of MoU from GRZ. Then we will proceed to get approval by the Head Quarters in Tokyo for the signing.

Same Same

Procedures for procurement of TA Open recruitment system of Japanese experts. Same N/A


(1) For the technical cooperation project, such as SOMAP, the procurement of local consultants will be done by the selection committee. The committee will be established with the members both from GRZ and Japanese side. Both the technical and financial proposals submitted by the applicants will be evaluated by the selection committee. The goods (vehicles, equipments etc), are locally procured by the Japanese side based on the procurement/ accountant regulation set by the Japanese government.(2) For the grant aid project, such as Groundwater Development Project in Luapula Province, both the consultant and contractor are tied to the Japanese firms. (The consultant will be selected by the selection committee in Japan and the contractor will be selected on the tender basis.) The subcontracted consultants and contractors will be the local

Same N/A

ones contracted by the prime Japanese consultant or Japanese contractor.


Our main modality is project funding, and currently basket funding or budget support is not our choice.

Since there is a case where the Japanese government contribute to the sector budget support in Tanzania, possibility remains for the future.

N/A


Currently no. Currently no. N/A


Currently no. As we had not had any funding schemes to provide funding through pooled or basket funding.

Since there is a case where the Japanese government contribute to the sector budget support in Tanzania, possibility remains for the future.

N/A


Although Japan has constraint in terms of contribution to the sector budget support arrangement and some part of procurement procedures as written above, Japan appreciates the concept of the NRWSSP and willing to implement the projects within the framework of the national program as far as possible.

Same N/A


So far, Japan has rather focused on Rural Water Supply in terms of project under water sector. However, we do have some experiences in hygiene and sanitation under project which supported MoH. Therefore, once the position of hygiene and sanitation within the NRWSSP and the demarcation of MLGH and MoH have been clarified, we could also consider incorporating hygiene and sanitation under future water sector projects.

Same N/A

6.3 Cooperating Partner: …African Development Bank

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase 2 (2011-2015)Issues: Present: Remaining period:GRZ partner in RWSS development MLGH MLGH MLGH and LAs

Readiness to sign the MoU on the NRWSSP In principle agreed awaiting further consultations with all partners and ratification with AfDB legal department

Ready in line with Paris principles, JASZ and the Rural Water and Sanitation Principles

Ready in line with Paris principles, JASZ and the Rural Water and Sanitation Principles

Procedures for procurement of TA GRZ and Bank procedures (Procurement carried out by GRZ ).

GRZ and Bank procedures (Procurement carried out by GRZ ).

Use of GRZ procedures




GRZ procedures

Flow of funds – through which channels? Ministry of finance (special account) to MLGH and Locals authorities in line with GRZ procedures

Ministry of finance (special account) to MLGH and Locals authorities in line with GRZ procedures

Sub sector earmarked budget support


Yes Yes NA


Based on fiduciary assessment carried out in 2006 the Bank cannot contribute to pooled basket funding

Based on fiduciary assessment carried out in 2006 the Bank cannot contribute to pooled basket funding

Ready based on fiduciary assessment


Bank program harmonised in accordance to principles of the national Program Phase I (Bank program appraised after joint appraisal of the NRWSSP)

Bank program harmonised in accordance to principles of the national Program Phase I

In line with SWAp


Hygiene and sanitation an integral part of the Bank program, but no subsidy for household sanitation

Hygiene and sanitation an integral part of the Bank program. To be adapted in line with national sanitation program.

In line with SWAp and national sanitation program

6.4 Cooperating Partner: …DANIDA

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase 2 (2011-2015)Issues: Present: Remaining period:GRZ partner in RWSS development MLGH MLGH MLGH


Ready, document needs clarification, but no “show stoppers” -do- -do-

Procedures for procurement of TA EU tender for overall TA. Programme activities, e.g. hydro geological investigation, supervision, design etc. procured by implementing partners.

-do- Provided joint funding and MOUs in place, accountability improved, DK will be able to “allow” implementing partners to procure.


Implementing partners procure, information and observer rights preserved. Guided by TA.

-do- -do-


Interim arrangement – funds from RDE to implementing ministry (MLGH), then to implementing partners

Expected flow: RDE to MoFNP then to implementing partners.

Depend on programme design, either sector budget support, Programme support (MOFNP), basket in Ministry (MLGH)??


Yes Yes Yes


No basket created yet, but willing. Limited resources (from unallocated) could be directed to pool.

Yes


Already considered part of NRWSSP (ADP) - do- -do-


Sanitation considered very important. Do not favour direct subsidy, but understand that some areas have extreme poverty. Study NGO experience with provision of slaps combine with sanitation approach to WSS.

Prepared to follow national strategy, but limited resources available (unallocated)

-do-

6.5 Cooperating Partner: …Irish Aid

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase 2 (2011-2015)Issues: Present: Remaining period:GRZ partner in RWSS development MLGH MLGH MLGH


Would prefer a revised version but are ready to sign as is. -do- -do-

Procedures for procurement of TA Preference to GRZ’s national systems for pooled funds and GRZ/or partner systems for the project funding modality

-do- -do-


Preference to GRZ’s national systems for pooled funds and GRZ/or partner systems for the project funding modality. A monitoring and audit reporting system should be factored into the management/coordination arrangements

-do -do-


Dependant of funding modality. Willing to channel through Government system. That is MOFNP/MLGH/ Bank of Zambia

-do- -do-


Not certain but this is our preference. This is our preference Our preference


Yes Yes Yes


Ready Ready Ready


Hygiene/Sanitation are a priority. And are integrated with WASHE

We are not convinced of the merits of introducing subsidies for rural sanitation but will consider any directions from GRZ on this.

-do - -do-

6.6 Cooperating Partner: …Germany

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase 2 (2011-2015)Issues: Present: Remaining period:GRZ partner in RWSS development 1) RWSS project with MLGH in North-Western Province

2) RWSS project with MEWD in Eastern Province. in line with GRZ request during German-Zambian Negotiations in May 2004 in Bonn (p. 5 of MoNeg.)

1) with MLGH until end of 20082) with MEWD until 2009/2010

German support to RWSS is being phased out. As soon as ongoing projects are completed, the German involvement in RWSS will end.


Ready: comments that need some clarification have been submitted, clearance from Head Office is being sought in parallel

-not applicable- German involvement in RWSS will end prior to the start of Phase 2.

Procedures for procurement of TA for RWSS projects

KfW (German) tender together with implementing partners (MLGH/MEWD) for overall TA (Project activities such as implementation concept, supervision, hydro-geological investigation tendering of drilling, construction etc).

-same as now- German involvement in RWSS will end prior to the start of Phase 2.


Implementing partners (MLGH/MEWD) procure (drilling, construction of civil works etc.) using Zambia. Nat. Tend. Board evaluation criteria & procedures. After evaluation is complete, a “no objection” from KfW is required.



Funds from KfW to implementing ministry (MLGH/MWED), then to implementing partners


KfW-funded RWSS and UWSS projects are reflected in the national budget (MTEF)?

National budget: Yes

not sure about the MTEF

Yes German involvement in RWSS will end prior to the start of Phase 2.


No for RWSS.Yes for a Nat. Urb. WSS Programme. Already contributing to a basket for peri-urban WSS (DTF)

-same as now- German involvement in RWSS will end prior to the start of Phase 2. s


Projects under implementation are fully aware of the NRWSSP as well as the SOMAP guidelines and ready to align as long as not in conflict with existing contracts/agreements.


Position on Hygiene and sanitation as a The German Government recognises access to drinking water compatible with the German involvement in RWSS will end prior

priority and the issue of subsidy and basic sanitation as a human right (WS Strat. p. 12). At the same time, Germany considers full cost recovery as key prerequisite to ensure sustainable operation of systems. However, compliance with the principle of full cost recovery does not rule out the option of providing poorer social groups with a basic drinking water supply as well as basic sanitation at prices which do not cover the costs, or even at no charge in extreme cases (WS Strat. p.16).

basic principles, interventions with respect to basic sanitations include: (a) construction of latrines for schools and hospitals, (ii) support of targeted microfinance schemes for the construction of private on-site systems, (iii) TA for the builders of on-site systems and (iv) promotion of small enterprises in the sanitation sector, (v) free provision of standard components (e.g. slaps). Ongoing projects focus on Hygiene. Education and Awareness and the testing of various on-site solutions.

to the start of Phase 2.

6.7 Cooperating Partner: …UNICEF

NRWSSP (2006-2015) Phase 1 (2006-2010) Phase 2 (2011-2015)Issues: Present: Remaining period:GRZ partner in RWSS development MLGH (MoH, MoE) MLGH (MoH, MoE) MLGH (MoH, MoE)


Ready to sign, no major obstacles -- --

Procedures for procurement of TA Individual consultants procured by UNICEF Programme Support Teams contracted by UNICEF

Open to pooled TA arrangements and/or procurement by implementing partners


Implementing partners procure local services, UNICEF supplies materials and contracts drilling centrally

Implementing partners procure local services and materials, UNICEF contracts drilling centrally

Anticipated that implementing partners will procure all services and materials


Direct from UNICEF to District Councils From UNICEF to District Councils via provincial based teams (TBC)

Expected SWAP basket funding through MoFNP/MLGH to districts


Yes Yes Yes


Ready in principle Ready in principle Ready


Committed to harmonisation with NRWSSP, but procurement and financing issues need to be revised over time for Phase 2

Committed to harmonisation with NRWSSP, but procurement and financing issues need to be revised over time for Phase 2

Ready for full harmonisation, alignment and adherence to stipulations of NRWSSP


Hygiene and sanitation are integral components of all programmes, generally in favour of moving to zero subsidy at household level

Hygiene and sanitation integral components of all programmes, expected to follow national sanitation implementation strategy

Hygiene and sanitation integral components of all programmes, expected to follow national sanitation implementation strategy

Annex 1. Structure of the Proposed Department of Housing and Infrastructure(Next page)

Error! Objects cannot be created from editing field codes.

ANNEX 2. Issues Raised by Stakeholders

The JRT held a debriefing meeting on 4th October 2007 with the GRZ and CPs and the following were the issues raised.

Flash points on Rural Water Supply

The MLGH does not have the capacity to ensure effective service delivery for Area Based Programmes. It is not yet clear how the partners are going to relate to the district councils and ABPs. It is noted that the devolution strategy, the Country and Town Act will define what kind of activities will be undertaken at various levels and use of these structure as mechanisms for monitoring the flow and use of funds.

WSP is not solely based in Western Province, but also covers Southern, and Lusaka provinces. The DANIDA supported program is not only confined to Western Province, but covers four other districts.

In terms of coverage it is 50 households used in the WSPS and 250 people per hand pump in the NRWSSP.

The user contribution should also apply to other technologies. DANIDA policy is that if the technology chosen is sophisticated or expensive then the communities should make a proportionately bigger contribution.

The level of commitment by Co-operating partners to the NWRSSP has already been developed and energies should be redirected to facilitating its implementation.

Mechanism of funding the program has been outlined in the SWAp and some CPs have already subscribed to it while others are in the process. Collapsing all funding into one basket should be done gradually to allow CPs and implementing partners to finalise on going activities which currently are at different stages.

There has been no mention of the development of the IMS and yet this is a significant milestone in the monitoring of the programme.

The issue of counterpart funding which is not coming through frustrates the efforts of various stakeholders. MoFNP has no funds to disburse for the development of activities and this has implications for the CPs that have already given their contributions. At the district level communities are wondering why the programme is not moving.

There is a lot of progress in the harmonisation of processes for implementation. The JRT indicated that time will be allocated for ongoing programs to align with the implementing principles of the NRWSSP.

The Local Authorities currently do not have staff for RWSS. This is critical for both the Area Based Programs and subsequent programs to be undertaken in future. To facilitate capacity building financing should be availed from the central level. It is also important that the MLGH hires and builds the capacity at the District level.

It appears that there is a misunderstanding on the role of the Provincial Support Team, who are not intended to be a part of the LA. These Teams should, however, give interim support to the district level for three years and after which Districts should be able to employ them.

The flat rate for community contributions is a concern. The approach should be to encourage communities to come up with what they can contribute. This should include both funds and other local materials.

Provision of water should target both social and productive uses of water.

Flash points on Rural Hygiene and Sanitation

The CSO recommendation is that coverage should be redefined. Part of the problem is that the sector generates its own independent figures. The question is to establish how the sector should work closely with CSO in order to ensure common definitions.

Working Group on Sanitation uses a new definition of sanitation which includes other technical options. This should be considered by the Working Group on Sanitation as it develops the National Sanitation Programme and define what targets will be set.

Position of the GRZ & CPs in RWSS

A lot of questions have been raised regarding the SOMAP and how it fits into the SWAp. JICA position is that SOMAP is a development approach and should easily fit into the SWAp.

MLGH is concerned that a lot of money has been spent, but results on the ground are not commensurate with the level of service delivery.

The JRT should shade some light on how funds have been utilised. GRZ should take a slower step towards the aspects that will facilitate the implementation of the

programme such as the SWAp.

Impressions about the Development in the Urban Areas

While the economics of water supply and sanitation has been demonstrated, there is no similar treatment for solid waste management.

NGOs can play a key role in sensitising people on the economical value of solid waste management to facilitate effective SWM.

The process of developing the NUWSSP has been undertaken by the working group and is ongoing.

Why is solid waste management being associated with CUs? It is not within the mandate of CUs to handle SWM? The JRT recommends that a feasibility study be undertaken to identify and define the SWM project.

The proposed feasibility study would possibly delay the need to deal with SWM. Modalities for working with SWM in the LAs can be facilitated to address this.

One CU is already piloting on the Copperbelt on mechanisms of addressing SWM. The JRT was specifically requested to address the management of solid waste with CUs. The issue

was raised e.g. with LWSC and the response was that it’s not within their mandate to manage SWM.

When one looks at how the DTF was established, this was by the Regulator and it is not presently separated from the regulator in the minds of a lot of people. When one looks at the legal framework of the establishment the DTF this is closely linked to management by the regulator. Notably the Director of NWASCO is a member of the DTF board.

In regard to the findings by the JRT, it was found that there are some conflicting issues with regard to DTF’s relationship with NWASCO.

Flash points on Sector Development and Management

The structure of DISS will affect the way programs are implemented and yet the timeframe for concluding this matter is not yet clear.

The lack of institutional arrangements for NGOs involvement in the sector could be resolved by establishing a forum for NGOs, GRZ and other CPs.

Institutional arrangements should encompass various aspects, such as CPs, financing procedures, gender and institutional arrangements in terms of the district councils, N-WASHE’s role and responsibility in the sector. These should be clarified and outlined.

Constraints

MLGH has proposed structures for implementation however, progress has been hindered by bureaucracy;

MLGH is in the process of devolution although this has yet to be applied to the WSS sector. The approach is to work with the District council to define the scope of activities and the resources that are required for effective service delivery. The same approach hopefully will be used in the development of structures for the RWSS.

GRZ should urgently approve staffing levels to avoid delays in implementation. The MLGH is now urgently looking at the restructuring process to ensure that they are no further delays. The Co-operating partners are concerned as this has budget implications in terms of commitment of funds in the budget.

CPs should work jointly with MLGH in addressing the issues of capacity building and decentralisation. CPs feel there should be a move to greater co-ordination among the sector partners to address these issues.

It is a precondition that the legal basis is operational by January 2008. If Cabinet Office does not approve the proposed structures in time then alternative institutional avenues may need to be considered.

The JRT strongly recommend the need for an extra debriefing meeting to be organised with the Minister of MLGH to present the findings of the review mission and the urgency for the approval of the necessary structures for the implementation of the NWRSSP.

General Comments

NGOs contributions are very welcome. If NGOs are going to work in the sector they should spell out what their niche is. NGOs need to clarify their niche in sector development.

It is recognised that there is a sector leadership problem. However, MLGH feels this has been resolved. It is the technical leadership that is of concern as it is embedded in all areas, such as the sector reforms.

Capacity building issues are also of concern to the MoFNP. The Ministry recognises that issues of financial accountability are still a problem.

There are problems on the needs of a TA in terms of how much TA and when to procure the TA. It is noted that if the procedures are aligned then it is possible to plan for procurement of TAs. This requires clear guidelines and plans to facilitate efficient TA procurement procedures. However TA should be planned just as another aspect of the program that need to be addressed.

The recommendations should re-examine the start and current status of the situation. How have the previous policies influenced the way forward? Where is the role for Public Private Partnerships in financing the sector and what role do the Public Private Partnerships in the sector?

There is an assertion that GRZ should increase funding in the sector in accordance with the seven sector principles. This has been done.

The JRT needs to look at indicators that guide the sector on - whether there has been any progress established.

The JRT was asked to look at approaches and mechanisms for conducting future reviews. The team would reflect on this towards the end of the review mission and draft some comments.

MoFNP - Comments

There was an indication that some processes had been left out. However it was mentioned that a lot of progress had been made that facilitates harmonisation. There is need for MLGH and MoFNP to work together and come up with a timeframe to accelerate the implementation of the NWRSSP.

MoFNP also recognises that there has been little funding coming from GRZ. GRZ is committed to increased funding in this sector. MoFNP recognises that in the beginning there were a lot of budgetary constraints. But now there is need for counterpart funding to be accelerated in the financial budget. Otherwise MoFNP will not be able to factor this in the programme.

JOINT ZAMBIA WATER SECTOR REVIEW. J… · Web viewThe goods (vehicles, equipments etc), are locally...

Documents

Transcript of JOINT ZAMBIA WATER SECTOR REVIEW. J… · Web viewThe goods (vehicles, equipments etc), are locally...