824 UG97

[Paper on WOniCil’S participationin waterandsanitationservicesin Uganda]

1997

Cibrar~,IAC Interr~tIoflaIrwatorand Sanjtatjon CentrOTeI. +31 7O3O6~~~~ +31 70 3~~QQ64

824—UG—14422

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11 -~Cibrarv1 ~ A & t ~ IRC intemationaiÇ,~~~~L___I ~ ~ ~ ~ and Sanilatlon Centre~ Tel +31 70 3068980Fax +31 703589964

Table of Contents

TABLE OF CONTENTS II

LIST OFACRONYMS III

ABSTRACT IV

1.0 INTRODUCTION 5

2.0POLICIESIN WATER SUPPLYAND SANITATION 5

3.0 WATER AND ENVIROMENTAL SANITATION IN THE SELECTEDCASE STUDY AR}AS1O

4.0 CASE STUDY METHODOLOGY 11

4 1 SAMPLING - . . . . . .. . .. 114 2 PARTICIPANTS PROFILE ..... .... .. 1143 DISTRICTDISCUSSIONS .. . . .. .... . . 114 4 FocusGROUP DISCUSSIONS .. . - . . 11

4.4.1 OperationandMaintenanceof WaterandSanitationactivities by Gender 114.4.2Problem/Challenges,CauseCopingMairix (PCCM) /2

4.5 CASE STUDY RESULTS 12

4 5 1 DISTRICTDISCUSSIONS . . . .... . 124.5.2Strongpointsof theWESprogram . . .. . . . . 134.5.3 C/zallenges . . 13

4.6 EXPERIENCESFROM KIKOKWA PARISH 14

4 6 1 EVOLUTION OF THE WES PROGRAM . ... .. . . 14462SLCCESSESNOTED . .. . 164 6 3 CONSTRAINTS . . . . . . . .16

4.7EXPERIENCESFROM BUGAMBA PARISH 17

4 7.1 EVOLUTION OF THEWES AcTIvmES . - . . 174 7 2 BENEFITSOFTHE SANPLAT PROJECT .. 194 7.3CONSTRAINTS/PROBLEMSTHAT WEREFACEDBY THE WOMEN, 20

4.8 LESSONSAND IMPLICATIONS FORFOLICY 20

4.9CONCLUSION 22

REFERENCES 24

LIBRARY IRC~x 93190, 2509 AD THE HAGI’

TeL: +31 703068980Fax: +31 70 35 899 64

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List of Acronyms

CBHC CommunityBasedHealthCareCHW CommunityHealthWorkersFGD FocusGroupDiscussionGFS GravityFlow SchemeLC Local CouncilNGO NonGovernmentalOrganisationPCCM ProblemCauseCopingMatrixSWIP SouthWesternIntegratedProjectTASO TheAIDS SupportOrganisationWES Waterand EnvironmentalSanitationWSC Waterand SanitationCommittee

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Abstract

ThispaperexaminestheUgandanexperiencein theareaof women’sparticipationinwaterandsanitationservicesand thepolicy environmentthat prevailsin thecountry Thepaperis divided into threeparts. The first sectiongives a synopsisofthepoliciesinUgandaon gender,watersupplyandsanitationservices.Thesecondsectionillustratesthetranslationof thesepoliciesby drawing from a casestudythat wascamedoutamongstwaterusercommitteesandwomen’sgroupsin two SubCountiesof Mbararadistrict, SouthWesternUganda. Thelastpartprovidesa critiqueof policy implicationson women’sparticipationin watersupplyandsanitationservicesin Ugandaand offersinsightsfrom thecasestudyconducted.

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1.0 INTRODUCTION

Ugandaafterseveraldecadesof civil strife andeconomicdeclinehasrealizedafastereconomicgrowthratein the last tenyears. Thishasbeena result ofgoodmacroeconomiestability strategiesfocusingon the restorationof fiscal andmonetarydiscipline,investmentfriendly policy framework,liberalizationof tradeandprivatizationofgovernmentownedenterprises.While maintainingmacroeconomiestability,Governmenthasalsobeenputting greateremphasison addressingtheunderlying:structuralimpedimentsto key economieandsocialsectors. Oneof thewaysofaddressingtheseimpedimentsbasbeenthepromotionof a vibrantsocialservicessector.This hasbeenacornerstoneto this policy. In this paperwe focuson thekeypolicies intheareaofwaterand sanitationservicesandthosethathavefocusedon thepromotionofwomen’sparticipationin key socialsectors.

2.0 POLICIES IN WATER SUPPLY AND SAN ITATION

Government’srecognitionthat cleanand safewateraswell aspropersanitaryconditionsareessentialfor thehealthof thepopulationand in improving thequality oflife hasbeenreflectedin someoftheearliestdocuments,like theNRM TenPoint Programmeonsocialservices. In part it statesthat~

It is ourpolicy to ensurethat within our means,essentialsocialservicesareprovidedfor eveiybody.

FurthertheConstitutionoftheRepublicofUganda(1995)containsbasicpolicystatementsrelatedto waterandenvironmentalsanitationas enlistedbelow:

Objective XIV statesthat

Thestateshail endeavortofuljili thefundamenralrights ofall Ugandansto socialjusticeandeconomicdevelopmentandshall inparticular, ensurethat all Ugandansenjoyrights andopportunitiesandaccessto education,health services,cleanandsafewater, work, decentshelter,adequateclothing,foodsecurity,pensionandretirementbenej7ts

Objective XXI statesthat;

Thestateshali takeall practicalmeasuresto promotegoodwatermanagementsystemsat all levels

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Objective XXVII:

Thestateshailpromotesustainabledevelopmentandpublic awarenessoftheneedto manageland, air andwater resourcesin a balancedandsustainablemannerfor thepresentandfuturegenerations

Article 39 oftheConstitutionStatesthat:

Every Ugandanhasa right to a cleanandhealthyenvironment

In this Constitutionthewomen’sparticipationin watersupplyandsanitationis inferredby it’s gendersensitivityandinclusiveness.The constitutionguarariteeswomen’sequalrights with menandpromotesaffirmative actionto womenin areaswheretheyaremarginalizedby history, traditionor customs.

Thiscommitmentis reflectedin Article 33 (2) oftheConstitutionthat states;

thestateshaliprovidethefacilities andopportunitiesnecessarytoenhancethewelfareofwomento enablethemto realizetheirfulipotentialandadvancement.

TheseConstitutionalprovisionsarethenreemphasizedby theNationalGender Policy(1997) This policy guidesanddirects,at all levelstheplanning,resourceallocationandimplementationof developmentprogrammesto begenderresponsive.It ensuresthatgenderis mainstreamedin thenationaldevelopmentprocessin orderto improvethesocial,legal/civicpolitical, economieandcultural conditionsofthepeoplein particularwomen It formsa legal frameworkfor genderorientedsectoralpoliciesthat havebeendevelopedsince1990.

Oneof thesesectoralpolicies,is in theMinistry of Natural Resources,Gender Policy.This callsfor ensunngthat womenparticipatein communitydecisionmaking in theareaof waterandsanitation.To date,in communities~vherewaterprojectsarebeingimplementedwomenareinciudedin waterusercommittees.Further,in somecomrnunitieswomengroupsare contractedby projectsto carryout specificprojectcomponentslike themakingandseil ofsanplatsto theprojectbeneficiariesandtheneighboringcommunities.

The WaterStatute(1995)pro’. idesfor theuse,protectionandmanagementof waterresourcesand supply Oneof i~smajorobjectivesis to promotetheprovision ofclean,safeandsufficient supplyof v~~terfor dorriesticpurposesto all persons. It alsocallsforensunngthecontrolof polluti~nandpromotionof safestorage,treatment,dischargeanddisposalofwastewhich maypollute wateror otherwiseharmtheenvironmentandhumanhealth

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Another policy is the, Local Government Act (1997). This oneenhancesthe devolution.ofpowerandauthority from the centerto the local authoritiesandlower levelsof localgovernance.It also defines the roles of the different levelsof govemancein theprovision andmanagementof waterrelated servicesandactivities. In this regard theprovisionofwaterservicesandmaintenanceof facilities is theresponsibilityof the localcouncilsin the districtwith supportandguidancefrom thecentralgovernmentagencies.-

TheLocal GovernmentAct also stipulatesthat, atleast30%of therepresentationon theLocal Councilsshouldbewomen. This provisionheips to strengthenandincreasethewomen’svoicesanddecisionmakingpowersin thewatersupplyand sanitationservicessector. However,this critical masshasnot beenreachedaswomencurrentlyform only10%of thecouncilsat all levels.Neverthelessaprovisionexiststhatmandates,the localauthontiesto formulatebye-lawsdependingon thecritical issuesofthedistricts. It isonly hopedthat if genderbecameoneof thecritical issuesthenthis clausecouldbeinvoked

Perhaps,themostinstrumentalpolicy instrumenton watersupplyand sanitationservicesis theUganda Plan ofAction for the Children (UNPAC) 1992.This is an importantdocument in the area of child survival, developmentandprotectionwhich governmentiscommittingresourcesfor implementation.It aimsat the provisionofbasicminimumsocialservicesto asmanyUgandans,in thefields of;

• PrimaryHealthCare• CleanWaterandBasic Sanitation• PrimaryEducationand Adult Literacy• CommunityCareofChildrenin needof help.

It aimsat aceessing75%of thepopulationto safedrinking water.75%of thepopulationto havingaccessto sanitarymeansofexcretadisposal,improvementin meansofdisposalofsolid and liquid wasteandtheeradicationoftheguineaworm disease.It also aimsatthereductionby 50%deathsdueto diarrheaandby 25% of the incidenceof diarrheainunderfive yearold childrenand25%reductionin generaldiarrheaincidencerate.

In orderto enhancethe implementationof UNPAC, governmentis in theprocessofformulatinga NationalSanitationInitiative/Strategy Thepolicy andimplementationstrategyis expectedto be in placeby January1998 BecauseofthedifferentproblemsUgandahasbeengoing through,Uganda’ssanitationsituationhasbeendeterioratingsincethe 1960s. This newsanitationinitiative is gearedtowardsrefocusinggovernment’sefforts in that direction.

In line with the abo\e policjes,theNationalWaterPolicy(1997)promotesan integratedapproachto managethewaterresourcesin ways that aresustainableandmostbeneficialto the peopleof Uganda This integratedapproachis basedon the recognitionof the

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socialvalueof waterwhile at thesametime giving muchmoreattentionto its economie

value. Thepolicy objectivefor watersupplyandsanitationis;

Sustainableprovision ofsafewater within easyreachandhygienicsanitationfacilities, basedon management,responsibilityandownershipby the users,to 75% ofthepopulation in rural areasand100%oftheurbanpopulationby theyear2000withan 80 - 90% effectiveuseandfunctionalityoffacilities.

Thebasicprinciplesof this objectiveinclude:

• Protectionof theenvironment.• Provisionof demanddrivenservices.• Attitudinal andbehavioralchange.

• Full participationof womenat all levels.• Targetingthosesegmentsin societythataredeprivedofcleanwater.

In implementation,provisionand managementofwatersupplyandsanitation,thestrategiesthat havebeenpromotedinelude,

=~Tecimologyandserviceprovision=~‘ Financingsubsidiesandtariffs~ Privatesectorparticipation.=~‘ Managementandsustainabilityaspects.=~Coordinationandcollaboration.

In all theabovestrategies,genderbaseddistortionsandbiasesclearlyarehighhghted.For instancethepolicy statesthat in areasofmanagementandsustainability,

wonien~ involvementin design,construction, operationandmanagementof iniprovedwatersupplyandsanitationfacilitiesshouldbe supportedthroughtraining activities. Thekeycriteria are that womenandmenshouldhaveequalopportunitiestoparticipatefully in all aspectsofcomm.unitymanagement.

Thepoliciesandpolicy statementsenumeratedaboveclearly indicatethat thegovernmentof Ugandats committedto thepromotionof women’sparticipationin watersupplyandsanitationsevices. A closerlook at thesepoliciesshowsthat theyareinterrelated,

interdepende~tandreinforceeachotherin thepromotionof women’sparticipationin thewaterandsa.-iitationsector. The challengeis, how thesepoliciesareinterpretedandimplementec at thecommunityandhouseholdlevelstaking into considerationgenderdimensions

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In thenextsectionwe look at someof-thepracticalissuesthat areat play. Using thedatacollectedfrom acasestudy,wereflecton someof thechallengesthatare at play in thetranslation ofthesepoliciesinto practiceand thegenderimplicationsthatarisetherefrom.

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3.0 WATER AND ENVIROMENTAL SANITATION IN THE SELECTED CASE STUDYAREAS

Level Location Populationprojection(1997) PopulationServed SafeWaterCoverage(%) Numberof Househoids Sanitation

District Mbarara 962,406 278,017 29 181,728 66

(‘initily Rwauipat~i l.1’1,951 82.162 57 26,706 92

Suhcouiiiy fliigamha 26,885 18,500 69 4,888 89

Parish tBuganiba Datanot readily available

Counly Isingiro 177,367 28,996 16 33,512 77

Subcounty Birere 34,160 7,156 21 6,211 74

Parish *Kikokwa Datanotreadilyavailable

Source:DirectorateofWaterDevelopment.

~Pari~Iieswhere iiie case studies were carried Out

NU All /îgw e~a~of Isi Augusi / 997

ThetabledetailsOut the differentstatisticsof theareasvisited. The availabledatacouldonly go up to the level ofthesubcounty.Onenoticesthat thesetwo placeshad variedcoverageofsafewater,Bugambahad apercentagecoverageof 66%andBirereof21%.In both areastherewereefforts to increasethecoverageof safewaterand sanitationservices.In both placesthesanitationcoveragewasquitehigh with Bugambahavirig 89%andBirerecoveragebeing74%. Thedistrictwasalsochosenbecauseit wasoneofthedistnctweretheWES activitieshadtakenroot andhenceit offeredopportunitiesof critically looking at thesituationon theground.Thecasestudy that foliows givesaninsight to thestatisticalscenariothat hasbeenpresentedabove.

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4.0 Case Study Methodology

In orderto collect therelevantinformationonwomen’sparticipationin theWESprogram,thefollowing methodologywasused.

4.1 Sampling

Consideringthetime andfinancialimplications,one district in Ugandawaschosenthathada history of involvement in thewater andsanitationprograms.ThedistrictofMbararain WesternUgandawaschosen. We helda discussionwith theDistrict WaterOfficer andDistrict HealthOfficer, on thepotentialareaswerewecouldfind womenwhohadbeeninvolved in someWES relatedprograms.Thetwo villagesof BugambaandKikokwa werechosen.Two areaswerevisitedand groupdiscussionsheld.

4.2 Participants Pro file

Theparticipantsincludedthedistrict officials, womenandmenwhoweremembersofthewaterusercommittees,Local Council officials and a women’ssanplatgroupin oneof theareasvisited.

4.3 District Discussions

Thesewerecarriedout with theDistrict Waterofficer andtheDistrict HealthInspector.During the discussionswechoosetheareasto visit andalsohadan in-depthinterview.

4.4 Focus Group Discussions

UsingtheFGDs,objectivesof thecasestudywere explainedto theparticipants.Theparticipantsthen startedoff by sharingwith ussomeof theirexperiencesin theWESprogram In addition, throughtheuseof othertechniquesinformationon issuesrelatedtowomen’sandmen’sparticipationin WES wasalsogenerated.

4.4.1 Operation and Maintenance of Water and Sanitation activities byGender

Cardsweredistributedto theparticipantswho thenwrotedown ~e differentactivitiesthat menandwomenwere involvedin during theWES activities -

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A list ofthedifferentactivitieswasgeneratedandtherationalefor activitiesthat wereallocatedto thedifferent sexeswerethendiscussed.A numberofsignificantlessonswerelearnt.

4.4.2 Problem/Challenges, Cause Coping Matrix (PCCM)

To understandthedifferent challengesthat men andwomenfacein theWESprogram,aPCCM wasusedA basketof problemswasfirst generatedby thepartieipants.Using theranking technique,the participantsgeneratedthefive most urgentchallengesthat theyhadin theWES program. They werethendivided into two groups,one for thewomenandtheother for themen.In theirdifferentgroupstheycameup with thecausesof thesechallenges/problemsandthedifferent waysin which theycopewith theseproblemsThroughthis techniqueanumberof insightsweregeneratedthat gaveagenderanalysisof theproblemsofwomenandmenin theWES program.Thetime availableallowedforthesetwo exereises.It is from thesetwo thatwegeneratedthedifferent lessonsthatwould be thebasisfor thebestpraeticesoftheparticipationofwomenandmenin WESactivities.

4.5 Case Study Resuits

4.5.1 District Discussions

Thetwo district officials explainedthat theWESprogramhadreplacedtheSWIPprojeet-.Thedistncthasaeommitteethat specificallyoverseesthesmoothrunningoftheseaetivities.Thecommitteefor WES activitiesis undertheAssistantChiefAdministrativeOfficer and it includestheDistnctPlanningOfficer, CommumtyDevelopmentOfficer, the WaterOfficer and District HealthInspector;all representingthe implementingline seetors.

Thepriority areasthat are focusedon by the WES programat thedistrict level are;thedevelopmentof GravityFlow Schemes,theprotectionof springs,watertanks,constructionof~\aterjars,rocktanksandboreholes.In thesanitationareaspecifically,theprogramsupportsthedevelopmentof institutional latrinesandencourageshouseholdsto useboth theVIP latrinesandtheupgradingofexisting ones.Capacitybuilding andinformationdisseminationis alsoemphasized

2 s~Jpwas a proje:t that was implementedby thego’~ernnientof UgandaandUNICEF in 1~)distr:tsof

SouthWesternUg~daprior to the formulation of the presentGOUt’UNICEF CountryProgra~rnme

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4.5.2 Strong points of the WES program

=~‘ Thedistrict offieersobservedthat thenotionofcommunitymaintenanceat thewatersourcesis averystrong aspectof theWES program. This is beeauseit did empowercommunitiesto takechargeoftheirwaterpointsand thearchaieideologyofeonsideringwatermaintenanceasa governmentrolewasbeingchallenged.

=~ Theereationof the institutionof acaretakerfor thedifferentwaterpointswasseenasa verypositivestep in communitiestaking chargeoftheirwatersourcesandevenredefiningthedifferent communityprioritiesofwhat typeofwaterdevelopmenttheywantandwhat strategiescantheyusein thepromotionof goodsanitation. In thisway theprojectstaffcouldgainan insight in whieh differentwaystheywouldintervenein thecomrnunities.

=~Theintroductionof a watersourceaccountsto generatefundsfor thewaterpointmaintenanceis anothergoodsystem. This in a way is oneof thefirst indicatorsofhowthecommunitiesarestartingto look atwateras a searcecommoditythat theyneedto safeguard.

=~ Communitieshadgoneaheadandlaid downbye-lawsthat weregearedtowardstheprotectionof watersources.

=~ SubcountyLocal Councilshad startedbudgetingfor thewatersources,which wasasign thatwaterhad gainedprominenceasapriority communityneedin manycounties.

~ Therewasalsothe increasedparticipationofwomenin waterservicesandsanitationactivities.

=~ Theweremanyrequestsfrom differentareasto help themto improvetheirwatersources,whichreaffirmedtheWESprogramphilosophyof beingdemanddriven.

4.5.3 Challenges

A numberof challengeswerealsocitedby thedistrict officials

• The capacityto repairboreholeswasstill abig challengebecauseof thehigh costsinvolved. Eventhoughthecommunitieswerecontributingmoneytheirpurchasingpowerfor thedifferentmatenalswasstill low.

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• Sanitationin mostplacesis stili aehallenge.This is becausein someof’the areaswhich areinhabitedby thepastrolists,it is very difficult to havelatrinesbecausethesearemobile communities.

• Theyouth (mostlymale) in mostof thevillageswerenot enthusiasticaboutparticipatingin the WES programs,especiallytheconstructionofpit latrines.

• With theinceptionoftheUniversalPrimaryEducation3policy, thesanitationstatusofmostof theschoolshaddeteriorated.This wasbeeauseof the incrementin thenumberof pupilsandthesubsequentstresson theexistingpit latrinesin schools.

• Thebye-lawsthat arepassedby theLocal Councilshaveprovedvery difficult toimplement.

• Theinvolvementofwomenin theWES programsis stili at avery superfieiallevelThis is becauseof someofthe dominanttraditionalbeliefsthat arebeingheldby boththewomenandmenin cornrnunities

4.6 Experiences from Kikokwa Parish

Kikokwa Parishis in Birere Subcounty,Isingiro county,Mbararadistrict. It surroundsKabereberetradingeentrewith pen-urbanlife style. Kikokwa is l2kms awayfromMbararatown.

4.6.1 Evolution of the WES program

Way backin 1989 in aParishCouncil meeting,theHealthStaff togetherwith SubcountyChief, underSouthwestHealthandWaterIntegratedProject(SWIP) introdueedtheCommunityBasedHealthCare(CBHC) approachfor improving health. Thenewapproachwasweleomeandtheeouncilofficials requestedfor supportfrom thedistrictadministration.

A CBHC committeewas formedcomposedof two womenandfive mento managetheinitiative. Thechairpersonis an influential womanwho hasheld that positionsincetheeornmitteewasforrnedto date Sheis alsoa caretakerof aboreholeandamemberof oneof the tapstands.

This is a newpolicy in theeducationsectorwherethe governmentoff~r~dto pa~(from primary onetose~en)school fees for at leastfour children from eachfamily Thepolic:. is bare1~oneyear did andit’sramificationson different sectorsare just emerging

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CommunityHealthWorkers(CHWs), whowerepredominantlyfemale,wereselected.Eachof themwasresponsiblefor healthimprovementin tenhomesin thevillage.CommitteemembersandCHWsweregiven trainingin basichealthmessages,sanitationpromotion,hygieneeducationandthesafewaterchain. Theywerealsoassistedtocarryouteommunitydiagnosisasbaseline for progressmonitoring purposesand thecommunityhealthimprovementprocedures.CommitteemembersandCHWswere -

guidedto write monthlyreportsincludingachievements,constraintsandpossiblesolutionsto helpin theplanningof thedifferentactivitiesoftheprogramme.

Eight trainersfor thewholesubcountywere seleeted,four ofwhom werewomen. In1992, four ofthetrainersunderwentaTrainingof Trainers(TOTs)course. Theprojectissuedthemwith bicyclesto faeilitatetheir movementandscalesfor child growthmonitoring.

Theabsenceof safewatercameup asaconstraintin everyreport thatwaswritten bytheseCHWs. At thetime, theparishhadonespnngwhichhadbeenprotectedin theearly 1980s. In responseto theparishOut cry, in 1992 thedistrict staffinspectedthewater sourcesin theparish. Theyproposedbuilding areservoirtankat theproteetedspnngto improveon theyield so that watercouldbe gravitatedto the tradingeentre2V2kilometresawayfrom thesouree.

Owing to thealreadyexistingdemand,theproposalwasmorethanacceptable.Workstartedright away. However,thedistrict staff laid downa condition,that watersupplywill only be workedon ifsanitationimprovementreachedat least80%. Sohealtheducationinereasedfrom one to eight celis/villages,sanplatsweresold andmore latrineswereconstructed,disposalofehildren’sfaeeesemphasisedandmonitoringactivitiesinereased.

Whenthedistrict staffweresatisfiedwith theprogress,watersupply constructionworkstartedwith thecollectionoflocally availablematerials,that is, sandandhard coreprovidedby bothwomenandmen. Thecommunitywasalso advisedto openabankaecountfor the scheme.In themeantime,technicalpeoplewereengagedin thefeasibilitystudy

In August,1992,eonstruetionwork started Thetankwasconstructed,trenchesweredug, pipeslaid andthreetap-standswere installed. By theendof 1992,thework hadbeencompleted.Thesehemewascommissionedandcertificateissuedto thecommunity.

Througha usergroupmeeting,it wasdecidedthat theCBHC coinmitteemanagestheGravity Flow Scheme(GFS)aswell In additionto theexistingcoinmitteemembers,theyaddedtwo LC2 councillors,PanshandSubcountychiefs. In additionto that,subcommtteesknownas“tap-standcommittees”wereformedthat werecomposedoftwo womenandthreemenastap-standcaretakers.

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Thecommitteeformulatedbye-lawson useof thesource- to guideusersespeciallychildrenandold women. Theyalsoestablishedanoperationsand maintenanee(O&M)systemwherebyall userhouseholdspay Ug.Shs.1000(USS 1) peryear,andvendorsUg.Shs.l0,000(USS 10) peryearwhich is paid in two instalments.(Householdwhichregularlybuywaterfrom vendorsarenotrequiredto subseribeto 0 andM). Theextensionof thewatersupplyschemeincreasedthenumberofusersfrom eightyninehousehoidsto aboutninehundredhousehoids.

4.6.2 Successes noted:

A numberof suecesseswereattainedas listed below:

o Expansionof theprogrammeto ineludean AIDS controlprogramme(supportedby alocalNGO knownasTAS0).

O Thecommunitiesappreciateanduseonly thecleanwatersources

o Thereis alsoinereasedparticipationof menin thehomesanitation.This wasvisiblethroughsomeofthemenparticipatingin thedisposalofehildren’s exeretain theirhomes

O Establishmentof a healthunit atthe subcountyheadquartersnearby.

o Availability of Family Planningservicesto thecommunity.

O An expandedchild growthmonitoringprogrammewasinitiated

O Reportsshowedareductionin WES relateddiseasesamongthecommunitymembers.

O Thewaterusereornmunitiesandthehousedid ensurethat therewasadherenceto thesafewater chain. For instance,individualswith dirty clothesandcontainerswerenotallowedto fetchwateratthewatersources.

4.6.3 Constraints

Theconstraintsregisteredinciuded

=‘ Naturalpopulationgrowthwhich hasmademonitoring of theprojectactivitiestedioussincetherewas no simultaneousinereasein thenumberoftrainedpersonnel.

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=~ Partlybecauseof thepopulationincrease,therewas aconsequentialdropin the -

latrinecoverage80%to 75% which hada big implicationboth for thesanitationandwaterprogrammes. -

=~WhentheSWTPprojectwound-upandWES tookovertherewaslaxity in thesupervisoryandmaterialssupport for thecommunitiesweretheprojecthadworkedThis led to theabandonmentofsomeprojectactivities.

~ Therewas also adropin someofthe lessonsfrom thesanitationeducationand thiswasevidentin the laxity of somehomesin thedisposalofehildren’sfaeces.

=~At onewatersourcetherewas alsoamarkedgenderdivisionof labourin thecolleetionofwater. Participantsobservedthat this watersoureesin theearlymorningit wasusedby vendorsmostlywho areall men. In theafternoonits mostlywomenand in theeveningits mostlyehildrenwhentheschoolsareelosed. Theeveningswere alsonotedastimeswhenthesoureeswereerowdedhencea time consumingperiodof thedayaswell onethat wasproneto generatingconflict aspeoplewait orstrugglefor theirturns to fetchwater.

4.7 Experiences from Bugamba Parish

4.7.1 Evolution of the WES Activities

In 1986,a field officer for watersupplyanda memberofBugambaParishCommunity,identifieda watersoureewhich couldbe gravitatedto servethepanshwith safewater.He contactedthedistrictheadquartersanddiscussedthematterwith thewateroffice. Thepanshwasaskedto makea formal requestby filling a form, whichthey did As therewasno response,in 1987 anotherrequestwas made,this time, by theHeadmasterofBugambaSecondarySchool,a schoolwithin BugambaParish.

In themeantime,theSouthwestHealthandWaterIntegratedProject(SWIP), in line withthedecentralisationpolicy, an arrangementto bringservicesnearertheconsumers,andconsciousof womeninvolvementin theprogramme,requestedthedistricts todecentralisesanplatcastingyardsand, wherepossible,entrustthework to organisedv.omengroups.

BugambaBakyalaTuyimukye, an alreadyexistingwomen’sgrouperigagedin agricultureasincome generatingactivity andhealthpromotionactivites,wasapDroachedbyprogrammeanddistrict officials andv~asinterestedin diversifying their incomegerieratingactivities andimproving sanitationoftheir latrinesthrou~hthe productionofsanplats. Initially thegroupwas to be trainedandprovidedwith ma~enalsnot locally

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availablesuchascement,wire meshetc., soasto build capitalmoneyandeventuallybecomeindependent.Theslabwould also besoldat Ug. Shs. 1000 (S 1).

The~grouptook-uptheideaandmadeaproposalto thedistrict. Thedistrict respondedbyrequestingthegroupto sendonememberto be trainedin Mbararawho on returnwouldbe ableto trainothersin slabcastingskills. Thegroupto identifiedayoung man,outsidethegroup,to go for the training in Mbararaandpasson theskill on return. Theyalsoapproaehedthesubcountyofficials to utilise thenearbysubcountypremisesfor thesanplatproduetion.

Indeedon return,themantrainedthetwentymembersof thegroup in shifis on alternativedays(Mondays,WednesdaysandSaturdays).Evenaftertrainingthem,hecontinuedtoworkwith them, but drawingamonthly salary.

Thewomenstartedproductionof sanplatsin 1993 on alternativedaysin small groupsTheywould producetwelvesanplatsper day. Thequestionthat arosewasthemarketfortheirproduets. In order inereasedemandand be listenedto by communitymemberstheywent throughthelocal leaders(LCs) to conductahygieneeducationandmobilisehouseholdsto purchasesanplatsat subsidisedprices. Salesstartedandtheyopenedabankaceountwhieh theyarestili operatingto date.

In thesameyear(1993)thedistrict alsorespondedto the long standingapplicationforconstruetionofa GravityFlow Scheme.A GravityFlow SchemeWaterand SanitationCommittee(WSC)wasformedcomposedof 7 members:

• 2 from ParishHealthCommitteeMembers• 2 from BugambaWomenGroup Members• 2 from SoureeFinanceCommitteeMembers• 1 from Local Council (LC) Chairman.

N B The LC3 Chairrnanis the ChairmanSourceFmanceCommitteeandalso Secretaryfor theSchemeCommittee

Theschemewasto coverfive cells/villageswith atotal of nineteentapstands. Othermanagementtap standcommitteeswereformedto coverthewholescheme.Eachtapstandcommitteewascomposedof sevenmembers(surprisinglytheparticipantsin thefocusgroupwerenot sureof how manywerewomen’) Theseusergroupcommitteemembersconducteda houseto housemobilisation,encouraginghouseholdswith nolatnnesandsanplatsto acquirethem. Thewomen’sgroupalsocashedon thisopportunityto markettheirsanplats.

As regardsoperationandmaintenanee(0 & M), cornmunitymemberswereto paytowardsthescheme \VomenpaidUg. Shs.300 (USS 3 cents)andmenUg. Shs. 1000(USS 1) perheadfor maintenanceper tap. A bank accountwasopenedwith Ug. Shs20,000(USS 20).

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In 1994, theconstruetionactivitiesof theschemestarted.Both womenandmenwereengagedin unskilledlaboursuchascollectionof locally availableconstnietionmaterialssuchassand,hard-core,brieks,clearingsite,diggingof trenchesandattendingmeetings.However,thewomencookedfor theworkersandthemenwereengagedin a moreskilledtaskssuchasprotectingsources,building thetanks,laying pipesandinstallingtaps. Menalsodecidedon thesitesbeeause,astheyput it, “eachwomanwantedthetapnearherkitehen”, so mendecidedon themore“neutral” points.

Thewomen’sgroupwentaheadwith castingof sanplats.To-datetheyhaveproducedover900 (ninehundred)sanplats.They alsoincreasedtheirsaleofsanplatsfrom US$ 1to USS 24. It wasreportedthat all womengroupmembers,sanitationcommitteesandinstitutionsin theparishnowhaveslabs/sanplats.

At theend of 1995,SWIPwoundup. Thewomen’sgroupregularsupplyof matenalsslackened.Sotheproductionreducedand at onetime cameto ahalt. Thegroupisstrugglingto reviveit by purchasingsomeofthematerialsthat theyneed.

Thewater sehemeis completethoughnot yet commissioned.Whenaskedaboutwhattheyconsidertheir successes,womengroupmembersstatedthefollowing;

4.7.2 Benefits of the sanplat project

• Thereis a profit of Ug Shs600,000(USS 600)whichmembersarecurrentlyusingasacredit sehemefor their small scaleincomegeneratingactivitiessuchasbee-keeping,piggery,diaryfarmingaswell asaretail shop. This is revolvingfund for theuseofall themembersin thecommunity.

• The demandfor sanplatsis quitehigh, neighbouringparishes,subcountiesandevenotherdistrictssuehasNtungamodistrict hadstartedpurchasingtheirproducts.

• Thewomenhadalsoacquirednewskills in sanplatproductionthat theywereabletouseevenafterthe projecthadwoundup.

• Thewomenwerealso ableto challengesomeofthetraditionalnotionsaboutgenderrelationssincethey hadacquireda skill that wastraditionallythoughtof beingmasculine

• Theincomesof womenandtheirhousehoidshad also increasedasa resultof thesanplatproject

• Therewas dernandfor newskills, for the ~roupto acquireskills in watertechnologysuchas eonsTucting~~aterjars

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• In thecaseof UgandatheGenderPolicyof theMinistry ofNaturalResoureespointsOut that womenhavegot to be involvedin thedesignandimplementationofall waterprojeets.However,thechallengeis how do thedifferent implementersofsuchpoliciescarry themout. Is the issueonly thevisibility ofwomenin project? In

- additionto visibility, thereshouldbeapolicy dimensionthat emphasizestheengenderingofall theaspectsofapolicy. Themain thrustwouldbe to showtheinevitability ofhavinggenderascentra!to anywaterandsanitationpoliey. Women’scontributionin this casewould not beseenas“addedvalue” but theabsenceofit “asno value” at all!

• Ugandahasnot yetput in placeasanitationpolicy, effortsareunderwayto putone inplace. In thecasestudy, it wasrevealedthatsanitationwasa big problemwithin thepastrolistcommunities Thereis a generalchallengeofhow to relateissuesofsanitationto suchgroups,but it is importantto notethatin suchsituationsthewomenbeara biggerbrunt , becauseevenin thesemobile communitiestheyarethe onesthatarevery closeto ensuringhouseholdsanitation. This meansthat astrategythattargetsimproving pastrolistssanitationwould haveto explicitly targetthewomenwhousuallyaretheonesthat handlethe animalproductsthat arefood for thepastrolistsandarein chargeof children’shealth. Hence,this challengedoescali for agender-sensitiveactionthat canemploy thewomen’sspacein advocatingfor healthysanitationpractiees.On antherlevelshould alsobe theneedto find appropriatestrategiesfor mobilizationyoungmalesin sanitationimprovement.

• The link betweenpolicies is anotherimportantpolicy lessonthatneedsto bederived.In thecaseof Uganda,theinceptionof UniversalPrimaryEducationpolicy hadaverybig impaeton thesanitationstatuson mostof theschoolsin thecountry.Thiswas becauseoftheincrementin thenumberof pupilswith no increasein theexistingtoiletsin schools. Further,in someschoolsthis situationwasevenmadeworsebecausethereis a laxity in theprovisionofdifferent toilets for theboysandthegirls,ifthey existat all. This causedsomeof thegirls to abandonschoolsbecauseofthishostileenvironment4.Suchsituationscertainly needsto be followed up andrectified.It would be importantto seewaterandsanitationissuesascrosscuttingthroughdifferent policiesand hencetheneedto harmonizethemin orderto overcomethenegativeeffectsthatmayanse

This ~asreportedin oneof thelocal newspaperdailies (TheNewVision i October 1997) The newsarticlequoteda UNICEF/WHO report that had found thatone therewasan icreaseddrop out rateof 45%betweenthe classespnmaryfive andprimaryseven

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• In caseof theprojectin Mbarara,the suddenclosureof SWIP affectedthewomen’sgroupadversely.This wasbecausetherewasno sustainabilitymechanismthatwasbuilt in thegroup’sactivitiesto ensurea soft landing. This would imply thatpoliciesthat areput in placeto ensuretheparticipationof womenin projectsneedto look athow easyit is for a groupto continuewithout thesupportof theproject. Thiswouldentail changingthe philosophyofprojectsto look atthewholespectrumof aspectssocialaspectsthat mayimpedethesuccessfulcontinuationofthewomen’sparticipation.

• Thestrategyofwomen’sparticipationrisksconcentrationon a few women,who arealready“enlightened”. This frustratestheconcernof havingacnticalmassofwomenin WES activities andat thesametime thefewwomenareoverburdenedby theresponsibilitiesthat theyhaveto undertakeandmay endup compromisingtheperformances.Thecasestudyshowsthat thewomenwho belongto thewomen’sgrouparethesamewomenwho belongto thewomen’scouncils,thewaterusercommitteesand local commumties.

• Thewomenwho havebeenintegratedin theWES activitieshavegainedalot of selfesteemandarearticulateandconfidentin theway theyhandleissues.

• Thepolicy ofdecentralisationis increasinglybearingfruit, this is evidentby the waytheLCs aretaking chargeof theactivities in their communmes.

• Whilesthepoliciesin placedoesencouragewomen’sparticipationit alsoassumesthat womenareahomogenousgroup. This hasdangersaswasrealisedfrom thecasestudy. The femaleheadedhousehoidswererequiredto contributeasmuchasotherhousehoidsyetthesehousehoidsin mostcaseshadoneeconomicallyactivepersonwho sometimesdoesnot haveaccessto the resourceslike theotherhousehoids.Thisacalls for a an clearerunderstandingofgenderat the communitylevel throughsensitisation.

4.9 Conciusion

This paperhasendeavouredto look at thepertinentissuesrelatedto water,sanitationandgenderwith thepolicy environmentin Uganda It hasbeens~io\vn,that therearea numberof policiesguidelinesthat explicitly seekto addressis~uesofincreased~vomen~sparticipation in waterandsanitationactivities Howe~er, theunansweredchallengeis howto translatethesepolicy instrumentsinto practicalparticipation.

Throuahthecasestudy, sorneof thepolicy challengeshavebeenansweredthroughthesuccessthat havebeennoted

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Thecasestudyhasshownusthat certainlytherearepositivedimensionthat explicitlyarisefrom theparticipationofwomen-inwaterand sanitationprojects: Fromthesanplatproject,it cameout clearlythat womenwerevery instrumentalin thesmoothrunningoftheproject. Whatneedsto becritically analysedis how to ensurethatpolicies thatspeil out women’sparticipationareableto movebeyondrhetoricandtopracticethat doesnot only stopat mentioningwomenbut also takesintoconsiderationthedifferentgenderrelationsthatsurroundwomen’spartieipation Inthis paperwehavenot offeredanypracticethatwill be thebest,but wehopethatthroughtheanalysisofthedifferentelementsthat arebroughtout in thecasestudy,amodusoperandicanbe generated.

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References

GovernmentofUganda(1997) Local GovernmentAct, GovernmentPrinters,Entebbe,Uganda.

Ministry of NaturalResources(1997)NationalWaterPolicy,Ministry ofNatura!Resources,Kampala,Uganda.

Ministry of NaturalResources(1997)Water Statute,GovernmentPrinters,Entebbe,Uganda

Ministry of GenderandCommunityDevelopment(1997) NationalGenderPolicy,GovernmentPrinters,Entebbe,Uganda.

Ministry ofNaturalResourees(1995)SectoralGenderPolicy,Ministry ofNaturalResources,Kampala,Uganda.

NationalResistanceMovementSecretariat,(1986)NRM Ten Point Program, NRMSeeretariat,Kampala,Uganda.

TheNew Vision Newspaper~ October1997.

UgandaGovernment(1992)Uganda National Plan ofAction for Children.

UgandaGovernment(1996)Constitution of theRepublic ofUganda,GovernmentPrinters,Entebbe,Uganda.

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