Supporting water sanitationand hygiene services for life
Understanding the Service Delivery Approach: the political economy of delivering rural water
Harold Lockwood
WaterAid, 23 October 2014
Rural water supply: we are making progress
• Tens of $ billions invested
• 800 million with new access 1990 – 2010 (JMP, 2012)
• Almost doubling of on-premise piped supplies
• New approaches and knowledge gained
In short , we have become pretty good at providing first time access
Millennium development goal
on safe drinking water reaches
target early.
SERVICE DELIVERY APPROACH
Universal access by 2030? ........ mind the “sustainability gap”
SERVICE DELIVERY APPROACH
Current approaches to rural water supply are not working
Too many systems are non-functional at any one time or broken beyond repair
Commonly cited figures average between 30% and 40%
Africa: cost of failing handpmups
Information Collated by Peter Harvey, UNICEF Zambia, May 2007
Investment loss in sub-Saharan Africa of between US$ 1.2 to 1.3 billion over 20 years
~36%
World Bank data AfricaPercentage of rural water systems requiring rehabilitation
World Bank 2007. Africa Infrastructure Country Diagnostic Water Supply and Sanitation Survey Database.
Comparing coverage with actual service delivered
And non-functionality is just the tip of the iceberg (n=500)
SERVICE DELIVERY APPROACH
hardware ≠ service
9
Structural challenges to development aid• Overwhelming focus on infrastructure provision
and coverage
• Unrealistic assumptions about financing, particularly for long -term recurrent expenditures
• Scale of intervention (community) cannot address systemic needs
• Incomplete and partial decentralisation combined with lack of incentives and political interference
• Rural sector reform neglected behind urban bias
• Lack of financing for rural water and failure to address recurrent costs
Challenges for governments
• Lack of engagement with government and investment to improve overall rural sector performance
• Poorly harmonised donors and NGOs
• Fragmented and ‘projectised’ approaches
Donors and NGOs also challenged
• 1 region
• 7 different programmatic approaches
• Different end-user experiences
• Marginalised government
Fragmentation of aid delivery
Nature of (some) aid is improving • Aid effectiveness principles and
commitment (Paris +)
• Country ownership and leadership
• Emergence of SWAps – 11 countries in Africa (AfDB, 2010)
• DP alignment with country systems (only moderate progress according to OECD)
Adopting a service delivery approach
to rural water
The concept of service delivery
An approach to the provision of rural water supply services, which emphasises the entire life-cycle of a service, consisting of both the hardware and software required to provide a certain level of water service
Source: Lockwood and Smets 2011
SERVICE DELIVERY APPROACH
A new paradigm?
SERVICE DELIVERY APPROACH
Source: IRC, 2011
Infrastructure Approach Service Delivery Approach
Investment (capital expenditure)
Investment (operational expenditure)
Service level
As sectors evolve, so effort, cost and institutional requirements also change
Source: Moriarty, 2011
SERVICE DELIVERY APPROACH
As sectors evolve, so effort, costs and institutional requirements also change
SERVICE DELIVERY APPROACH
Source: Moriarty, 2011
Danger zone:
as basic infrastructure is provided, coverage risks stagnating at around 60 – 80
National level government (may also be deconcentrated regional/provincial):•Policy, institutional and legal•Defining service levels•Regulatory and funding frameworks•Budgetary allocations•Asset ownership/management (in some cases)
Serv
ice
auth
ority
fu
nctio
ns –
In
term
edia
te
leve
l
Nor
mat
ive
and
polic
y fu
nctio
ns –
na
tiona
l le
vel
Decentralised government (district, municipality, commune):•Planning and coordination•Financing (taxes and transfers)•Monitoring and back-stopping, including technical support•Regulation (delegated)•Bye-laws•Asset ownership/management (in some cases)
Serv
ice
prov
ider
fu
nctio
ns –
sy
stem
leve
l
Consumers in rural household and communities
Utility managed
Delegated private sector
Communitymanaged
Municipal managed
Management Entity: •System operation•Maintenance•Administration•Financial management• Asset management• Consumer interface
Source: Lockwood , 2010
Moving towards service delivery• WASH services – beyond functionality
quality, quantity, accessibility, reliability
• A service is indefinite planning, financing, O&M, monitoring, support and reinvestment
• Scale matters district, regional and national
• Capacity development is at the centre
BUILDING BLOCKS FOR SERVICE DELIVERY
SERVICE DELIVERY APPROACH
EXPLAINING TRIPLE-S AND THE SERVICE DELIVERY APPROACH
Professionalisaton of service providers
Move away from volunteerism; outsourcing some specialist tasks
Training and business practices
Building blocks for service delivery
EXPLAINING TRIPLE-S AND THE SERVICE DELIVERY APPROACH
Long-term direct support to communities
Technical support and oversight
Monitoring of services – regulation ‘light’
Access to goods and servicesBuilding blocks for service delivery
EXPLAINING TRIPLE-S AND THE SERVICE DELIVERY APPROACH Capacity support for LG and private sector
Technical support and oversight
Data aggregation and screening
Adherence to norms and technical standardsBuilding blocks for service delivery
EXPLAINING TRIPLE-S AND THE SERVICE DELIVERY APPROACH
Monitoring of service delivery
Service indicators(quantity, quality, reliability and accessibility)
Performance of service providers (operators)
Building blocks for service delivery
EXPLAINING TRIPLE-S AND THE SERVICE DELIVERY APPROACH
Life cycle cost analysis
Understanding recurrent and replacement costs
Direct support ~ $1/p/yr
Improved asset managementBuilding blocks for service delivery
EXPLAINING TRIPLE-S AND THE SERVICE DELIVERY APPROACH
Government vision and leadership is critical
Supporting water sanitationand hygiene services for life
For further information see: www.waterservicesthatlast.org/
Contact: [email protected]
SERVICE DELIVERY APPROACH
Empirical study of rural water supply sectors 2009 - 2010
Triple-S, 2009 – 2010 - http://www.waterservicesthatlast.org/
Source: Lockwood and Smits; 2011
Management models
• Community management still dominates• Higher coverage trends towards greater
diversity of management models• Higher population densities trends towards
more professionalised models
CBM is dominant but evolving Increasing trend from volunteerism towardsprofessionalised management:
• Out-sourcing of specific functions (Honduras, Sri Lanka)
• Applying good business practices (Programa de cultura empresarial Colombia, USA)
• Full out-sourcing of O&M and administration for more complex systems (Ghana, South Africa, USA)
WSDB with PO
Utility management
Intermediate private providers
Independent private
providers
Self supply
Community management Private management
Direct WSDB
Single towns piped
scheme
Small town bulk
water scheme
Multi town piped
scheme
Basic High
Community Ownership and Management (COM)
Basic
Other CM models
High BasicHigh Basis
Piped scheme
Utility management
Holding tank with
standpipe
Urban Water Board
Water tanker
Holding tank with standpipe
water vendor
tanker operator
Limited mechanized
borehole
Basic
Water Health Centre
Private company
Ghana: many management options
Source: IRC and Aguaconsult; 2010
WATSAN committ-ee
Population size System Management model
< 2,000 Point source Water and Sanitation (WATSAN) committee2,000-5,000 Non-mechanised systems (e.g. gravity fed
water schemes)Water and Sanitation Development Board (WSDB) supported by skilled artisans from within the community, whose services may be procured when necessary on a retainer basis (indicated as “option 1” in the Community Water and Sanitation Agency (CWSA) Small Towns O&M Guidelines).
5,001-10,000 Simple boreholes, gravity fed or slow sand filtration based piped systems
WSDB with certified/reputable firm carries out specialised functions as and when needed or, preferably, WSDB with contracted firm/firms performs specialised functions on a periodic basis
> 10,000 Communities served with complex water supply systems
WSDB and a contracted firm (private operator) operate and maintain the water supply system
Population size
System Management model
<2000 Point source Water and Sanitation (WATSAN) committee
2,000-5,000 Non-mechanised systems (e.g. gravity fed water schemes)
Water and Sanitation Development Board (WSDB) supported by skilled artisans from within the community, whose services may be procured when necessary on a retainer basis (indicated as “option 1” in the Community Water and Sanitation Agency (CWSA) Small Towns O&M Guidelines)
5,001-10,000 Simple boreholes, gravity fed or slow sand filtration based piped systems
WSDB with certified/reputable firm carries out specialised functions as and when needed or, preferably, WSDB with contracted firm/firms performs specialised functions on a periodic basis
> 10,000 Communities served with complex water supply systems
WSDB and a contracted firm (private operator) operate and maintain the water supply system
Ghana: CWSA management options
Alternative models emerging • Self supply increasingly recognised and supported -
Ethiopia, Thailand, Uganda - and is a reality to improve sub-standard services almost everywhere (14 million people in the USA rely on self-supply)
• Public Private Partnerships, especially for piped schemes and rural growth centres - O&M contracts to private firms – Ghana, Burkina Faso, Uganda
• Important implications for capacity of local government to design, let and manage delegated contracts
Evolution of management models
Management approaches
Popu
latio
n de
nsiti
es a
nd s
ervi
ce le
vels
Rural, highly dispersed
Rural, (village)
Rural, growth centres
Voluntary based
Semi-professional
Fully professional
Self supply
Community based
management
Delegated contracts
Public or private
utilities
Professionalization of community management - or “CBM plus”• Limits of volunteerism – higher standards,
business approaches and efficiencies
• Demands greater clarity of legal status and asset ownership
• More and better long-term external support
• Increased need for oversight and regulation
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