Language : ENGLISH Original : French RWANDA NATIONAL RURAL DRINKING WATER SUPPLY AND SANITATION PROGRAMME (PNEAR) (PHASE II: SECOND SUB-PROGRAMME - 2009-2012) APPRAISAL REPORT Date: February 2009 Appraisal Team Team Leader : E.A. MBAYE, OWAS.2, 3066 Team Members : M. M. KHOALI, OWAS.2, 3438 C. AHOSSI, ORPF.1, 2718 S. BAUDIN, Consultant Sector Director : A. RAKOTOBE, OWAS Regional Director : A. ORDU, OREA ; Peer Reviewers R.N. BA, OSAN, 2590 Team Members : B. BENSASSI, OWAS.2, 3299 M. EL ARKOUBI, OWAS.1, 3465 P. HORUGAVYE, OWAS.1, 2543 AFRICAN DEVELOPMENT BANK GROUP
Transcript
Language : ENGLISH Original : French
RWANDA NATIONAL RURAL DRINKING WATER SUPPLY AND
SANITATION PROGRAMME (PNEAR) (PHASE II: SECOND SUB-PROGRAMME - 2009-2012)
APPRAISAL REPORT Date: February 2009
Appraisal Team
Team Leader : E.A. MBAYE, OWAS.2, 3066 Team Members : M. M. KHOALI, OWAS.2, 3438 C. AHOSSI, ORPF.1, 2718 S. BAUDIN, Consultant Sector Director : A. RAKOTOBE, OWAS Regional Director : A. ORDU, OREA
;
Peer Reviewers
R.N. BA, OSAN, 2590 Team Members : B. BENSASSI, OWAS.2, 3299 M. EL ARKOUBI, OWAS.1, 3465 P. HORUGAVYE, OWAS.1, 2543
AFRICAN DEVELOPMENT BANK GROUP
TABLE OF CONTENTS
I. STRATEGIC ORIENTATION AND JUSTIFICATION 1 1.1 Sub-programme Linkages with Country Strategy and Objectives 1 1.2 Justification for Bank Intervention 1 1.3 Aid Coordination 1 II DESCRIPTION OF THE SUB-PROGRAMME 2 2.1 Sub-programme Components 2 2.2 Technical Options Selected 3 2.3 Sub-programme Type 3 2.4 Sub-programme Cost and Financing Arrangements 4 2.5 Sub-programme Areas and Beneficiaries 6 2.6 Participatory Approach to Sub-Programme Identification, Design and
Implementation 6 2.7 Consideration of Bank Group Experience and Lessons Learnt in
Sub-programme Design 6 2.8 Monitoring/Evaluation and Key Performance Indicators 7 III SUB-PROGRAMME FEASIBILITY 8 3.1 Economic and Financial Performance 8 3.2 Environmental and Social Impact 9 IV IMPLEMENTATION 10 4.1 Implementation Arrangements 10 4.2 Implementation Schedule, and Procurement and Disbursement Procedures 11 4.3 Governance 13 4.4 Sustainability 13 4.5 Risks and Mitigation Measures 14 4.6 Knowledge Development 15 V. LEGAL FRAMEWORK 15 5.1 Legal Instrument 15 5.2 Compliance with Bank Policies 16 VI. RECOMMENDATION 16 Annex I. Comparative Socioeconomic Indicators of Rwanda Annex II. Table of ADB Portfolio in Rwanda Annex III. Key Projects Financed by the Bank and Other Development Partners of Rwanda Annex IV. Map of Sub-Programme Area Annex A. Country’s Development Agenda, Sector Overview and Donor Support Annex B. Support for Key Arguments of the Report:
Annex B6. Auditing Annex B7. Economic and Financial Analysis Annex B8 Environmental and Social Analysis
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CURRENCY EQUIVALENTS (Rate as of February 2009)
Currency Unit : RWF UA 1 : RWF 821.830 UA 1 : €1.16
WEIGHTS AND MEASURES Metric System
FISCAL YEAR 1 July – 30 June
ACRONYMS AND ABBREVIATIONS
ADF African Development Fund ARR Regulatory Agency of Rwanda ABEDA Arab Bank for Economic Development in Africa CDC Community Development Committee CDF Common Development Fund COFORWA Compagnie fontainiers du Rwanda RSCSP Results-Based Country Strategy Paper EDPRSP Economic Development and Poverty Reduction Strategy Paper FAO Food and Agriculture Organization GTZ German Technical Cooperation Agency IFAD International Fund for Agricultural Development IWRM Integrated Water Resource Management LWF Lutheran World Organization MINAGRI Ministry of Agriculture and Animal Resources MINALOC Ministry of Local Administration MINECOFIN Ministry of Finance and Economic Planning MIGEPROF Ministry of Gender and Promotion of the Family MININFRA Ministry of Infrastructure MINIRENA Ministry of Natural Resources MINISANTE Ministry of Health NEPAD New Partnership for Africa’s Development NGO Non Governmental Organization PCU Programme Coordination Unit PDC Community Development Plan PNEAR National Rural Drinking Water and Sanitation Programme PRSP Poverty Reduction Strategy Paper RWASCO Rwanda Water and Sanitation Corporation (SREA) RWASCO Rwandan Water and Sanitation Company SME Small and Medium-size Enterprises UNO United Nations Organization WSS Water Supply and Sanitation
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AFRICAN DEVELOMENT FUND
BP 323 – 1002 Tunis Belvédère Tel: 71 333 511
SUB-PROGRAMME INFORMATION
Client Information RECIPIENT : Government of Rwanda EXECUTING AGENCY : Ministry of Infrastructure BP – 24, Kigali - RWANDA FAX: (250) 252 58 26 19 TEL: (250) 252 58 26 18 / 21 Email: [email protected] Financing Plan
Source Amount (UA) Instrument ADF
10.000 million
ADF Grant
Trust Fund Initiative 6.000 million RWSSI Trust Fund Grant Beneficiaries 1.011 million - GVT 3.254 million -
TOTAL COST 20.265 million -
Duration: Key Stages (expected)
Approval of Concept Note
February, 2009
Project approval May - June, 2009 Effectiveness July 2009 Last disbursement December, 2013 Completion December, 2012
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Executive Summary 1. This Rural Drinking Water Supply and Sanitation (RWSS) Sub-programme covers 15 districts1 in three Rwandan provinces (North, West and South) out of the four in the country. The main outputs of this sub-programme expected at the end of the scheduled 30 months of implementation are: (i) 16,000 new individual latrines for the most vulnerable families; (ii) 130 new multi-compartment latrines and 100 storm water harvesting reservoirs constructed in village public infrastructures (schools, health centres and other public places); (iii) 500 masons trained in latrine construction techniques; (iv) 250 female outreach workers and 100 school teachers trained in hygiene and prevention in villages; (v) a large drinking water supply network over 150 km; (vi) ten (10) medium DWS schemes totalling 275 km of networks constructed; (vii) 1000 drinking water supply sources developed and fitted with laundry tubs; (viii) 200 district borehole drillers of the sub-programme, trained in the maintenance of water facilities put in place; (ix) 10 private operators supported and trained in the operation and maintenance of complex water supply systems; and (x) training, outreach and sensitization campaigns conducted in 216 localities of the three provinces of the sub-programme. 2. The cost estimate of the sub-programme, exclusive of tax, is UA 20.265 million, comprising provision for physical contingencies and annual price escalation. The construction of structures and implementation of activities of the sub-programme will help to meet the water and sanitation infrastructure needs of about 792,000 persons throughout the three provinces, including nearly 642,000 individuals directly concerned with drinking water supply, and 150,000 with household and public sanitation. 3. Given the nature of the structures put in place, the sub-programme will: (i) improve the availability and quality of drinking water; (ii) reduce water fetching chores, particularly for women; (iii) reduce water costs; (iv) reduce water-borne diseases; and (v) promote water-related income-generating activities. Furthermore, the Ubudéhé2 approach recommended for community development works on drinking water supply sources and construction of household latrines will enable the beneficiary populations to fully participate in the construction of the structures. 4. In addition to the improvement of drinking water supply to the targeted populations, the sub-programme also addresses a major concern relating to the fact that the vast majority of the country’s rural localities do not yet have appropriate systems for the collection and evacuation of wastewater, excreta and solid wastes. This cannot be without consequences for the health of the populations concerned. 5. While the implementation of this sub-programme forms part of an ongoing consultative process with the country’s major donors in the water sector, it also constitutes the second phase of the Bank’s Rural Drinking Water Supply and Sanitation Initiative in Rwanda. Furthermore, it is part and parcel of the National Rural Drinking Water Supply and Sanitation Programme (PNEAR), and draws on Rwanda’s Vision for 2020. The national monitoring-evaluation system which the Bank helped to put in place during the first phase of PNEAR (2005 – 2008) will help to analyze the performance of the present sub-programme, and draw the relevant lessons for future operations of the Bank and the other sector donors.
2 This approach, recommended by the Government for community works, consists in having the communities execute the works themselves, with technical and financial assistance by the projects concerned. Consequently, this is a means of building the technical capacities of the grassroots communities and generating incomes for them as part of poverty reduction as recommended in the country’s Economic Development and Poverty Reduction Paper (EDPRS).
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RESULTS-BASED LOGICAL FRAMEWORK NAME : Rwanda – PNEAR 2020; Second Rural Drinking Water Supply and Sanitation Sub-Programme DATE OF ESTABLISHMENT : March 2009 COMPLETION DATE : 31 December 2012
HIERARCHY OF OBJECTIVES
EXPECTED OUTCOMES REACH (Beneficiaries)
PERFORMANCE INDICATORS
INDICATIVE TARGETS AND SCHEDULE
ASSUMPTION/ RISKS
SECTOR GOAL Provide rural communities with sustainable drinking water supply and sanitation services to improve their living conditions and health.
LONG-TERM RESULTS By 2015 1) Achievement of MDGs for drinking water; 2) Achievement of MDGs for domestic sanitation; 3) Reduced infant mortality rate;
4) Reduction in the incidence of poverty.
Rural populations of Rwanda (8.77 million people)
1) Achievement of MDGs for water and sanitation for Rwanda by 2015; 2) Rural poverty index; 3) Under-5 mortality rate. Sources : Statistics and Reports : DEA, ANEPAR, PNEAR and National Statistical Agency
By 2015 1) Increase in rate of access to drinking water from 47 to 71% ; 2) Increase in the rate of sanitation coverage from 10 to 54%; 3) Decline in infant mortality rate from 123 to 80 per thousand; 4) Reduced incidence of poverty from 60 to 40%.
(Sector goal to overall goal) :
OBJECTIVES OF SUB-PROGRAMME - Improve drinking water supply services in 216 rural localities of 3 provinces (North, West and South) ; - Improve the supply of household sanitation services in 216 rural localities, and community sanitation services in 15 districts of 3 provinces.
MEDIUM-TERM RESULTS
By 2012 1) Increase in rate of access to drinking water for the population targeted by the sub-programme; 2) Increase in rate of sanitation coverage in the three provinces; 3) Reduction in average rate of prevalence of water-borne diseases and faecal peril in 3 provinces. .
All the rural populations targeted in the three provinces in the sub-programme (5.05 million people)
1) Rate of access to drinking water; 2) Rate of access to adequate sanitation; 3) Average rate of prevalence of water-borne diseases and faecal peril in the 3 provinces ; 4) Average daily per capita water consumption in the 3 provinces; 5) Time taken by women and children to fetch water. Sources : Statistics and Reports : DEA, ANEPAR, PNEAR and National Statistical Agency and Ministry of Health
By 2012 1) Increase in rate of access to drinking water in rural areas from 47% to 61%, 60% and 60% respectively in the 3 provinces of the North, West and South; 2) Increase in rate of sanitation coverage from 10 to16% in the 3 provinces ; 3) Reduction in average rate of prevalence of water-borne diseases and faecal peril in the 3 regions from 34 to 26% ; 4) Increase in daily per capita water consumption in the 3 provinces from 5 to 20 litres; 5) Reduction in time taken by women and children to fetch water from 4 h 30 mn to1 h 30 mn.
i) The capacity of local authorities to effectively fulfil their responsibilities under the decentralization policy; ii) Non-application of institutional provisions of the sector policy;
iii) Failure of beneficiaries to contribute; iv) Non extension of private management to sub-programme structures.
ACTIVITIES / INPUTS - WS facilities provided or rehabilitated in 216 rural localities of the 3 provinces of the sub-programme; - Household and public sanitation facilities constructed in 216 localities and15 rural districts of 3 provinces. - Establishment of the Rural Water Agency (ANEPAR) ; - Recruitment of Consultants and Auditors for the supervision of works, outreach/ sensitization (IEC campaigns) and audits ; - Recruitment of contractors for construction works.
FINANCIAL RESOURCES ADF Grant : UA 10 000 000 RWSSI TF Grant : UA 6 000 000 GVT & Beneficiaries : UA 4 265 000 TOTAL : UA 20 265 000
SHORT TERM OUTPUTS 2010 1) Construction of a large water pumping system to supply about 112,000 persons 2) Construction of 10 new gravity pipe- water systems to supply 280,000 people 3) Development of 1000 water sources to supply water for 250,000 people. 4) Recruit and train 1011 WUAs and WUA managers 5) 16,000 individual, household sanitation facilities constructed 6) 130 public latrines constructed 7) 500 masons and 100 school teachers trained; 250 female hygiene outreach workers recruited.
Rural populations directly or collectively served in the three provinces: (i) 642000 persons directly supplied with drinking water; (ii) 150000 people directly equipped for household sanitation; and (iii) 5.05 million people collectively concerned with IEC campaigns. - Contractors, Consultancy firms, NGO, etc. - Village public infrastructure - Structures concerned (DEA, ANEPAR and PNEAR,)
1) Number of WS facilities and water points constructed; 2) Number of household and public sanitation facilities provided; 3) Number of awareness campaigns conducted for the beneficiary communities of the facilities; 4) Number of persons trained at the intervention structures and village WSS management associations. Sources : Statistics and reports : DEA, ANEPAR, PNEAR and National Statistical Agency
In the short term 1) Rate of construction of large water supply structures (100%); 2) Rate of construction of new WS gravity systems (50%); 3) Rate of construction of springs to be developed (70%);. 4) Rate of creation and training of WUAs and WUA managers (100%); 5) Rate of construction of household sanitation (50%); 6) Rate of construction of public sanitation structures (50%); 7) 500 masons and 100 school teachers trained; 8) 250 female outreach workers trained, and recruited to promote environmental hygiene; 9) Recruitment of women as standpipe keepers in at least 30% of 1011 WUAs created; 10) At least 30% of the 1011 WUAs created are managed by women trained following the IEC campaigns of the sub-programme.
-The contributions of the populations are collected on time.
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YearMonth M J J A S O N D J F M A M J J A S O N D J F M A M J J A S O N D J F M A M J J A S O N D
DescriptionAPPROVAL OF SUB-PROGRAMME
*Approval of Grant by ADF
* Signing of Grant Agreement: GVT / ADF
EFFECTIVENESS* Ratification of Grant by GVT* Fulfilment of General Conditions GVT / ADFCONDITIONS FIRST DISBURSEMENT* Fulfilment of Conditions and Establishment of PCU* Fulfilment of Other ConditionsACTIVITY 1 : MAJOR DWS WORKS* Preparation and launching of ICB documents* Bid analysis* Approval of bid evaluation results* Signing of contract and mobilization* Execution of Works* Last payment EnterpriseACTIVITY 2: WORKS 10 MEDIUM DWS WORKS * Preparation and launching of ICB documents* Bid analysis* Approval of bid evaluation results* Signing of contract and mobilization* Execution of Works* Last payment EnterpriseACTIVITY 3 : DEVELOPMENT OF DWS SOURCES* Preparation Works by CDF and Sectors* Supply of materials* Execution of Works* Last payment for WorksACTIVITY 4 : SANITATION WORKS* Preparation and Launching of ICB for aedicula works* Bid analysis* Approval of bid evaluation results* Signing of contract and mobilization* Execution of Works (latrines and aediculas)* Last payment EnterpriseACTIVITY 5 : WORKS INSPECTION* Preparation and invitation to bid* Bid analysis* Approval of bid evaluation results* Signing of contract and mobilization* Delivery of services* Last payment consulting engineersACTIVITY 6: OUTREACH/SENSITIZATION* Preparation and Launching 2 IB DWS & Sanitation* Bid analysis* Approval of bid evaluation results* Signing of contracts and mobilization* Delivery of services* Last payment 2 Service ProvidersACTIVITY 7 : AUDIT OF SUB-PROGRAMME* Recruitment of Audit Firm* Approval* Signing of Audit Contract* Auditing of the accounts* Payment of AuditorACTIVITY 8 : EQUIPMENT FOR PCU FOR SUPPORT STRUCTURES OF SUB/PROGRAMME* Preparation and Launching of BD & Invitation to Bid* Bid analysis* Approval of bid evaluation results* Signing of contracts * Orders and deliveries* Payment of suppliersACTIVITY 9 : MANAGEMENT OFSUB-PROGRAMME* Management and Supervision of Works* Monitoring-Evaluation of Sub-Programme* Submission of Report on Sub-Programme
RWANDA : SECOND PNEAR SUB-PROGRAMMESUB-PROGRAMME IMPLEMENTATION SCHEDULE
2012201120102009
UNDB
1 Liste
2 Listes
UNDB
RWANDA NATIONAL RURAL DRINKING WATER SUPPLY AND SANITATION
PROGRAMME (PNEAR) (PHASE II: SECOND SUB-PROGRAMME - 2009-2012)
APPRAISAL REPORT Management hereby submits this report concerning a grant proposal of UA 10 million from the ADF and UA 6 million from the RWSS Initiative Trust Fund of the Bank to Rwanda for the financing of the second PNEAR sub-programme. I. Strategic Orientation and Justification 1.1 Sub-Programme Linkages with Country Strategy and Objectives 1.1.1 This sub-programme is fully consistent with the Government’s sector strategy and policy. Indeed, in addition to being an integral part of the national programme (PNEAR), it is also aligned with: (i) Rwanda’s Vision for 2020 which, under integrated water resource management (IWRM) seeks to enable total access to drinking water for the rural populations by 2020 ; (ii) the new orientations of the Government’s sector policy that seeks optimal use of water resources and adequate access to water and sanitation services for all; and (iii) the current economic development and poverty reduction strategy – EDPRS (2008 – 2012), some of whose key pillars give priority to access to adequate services and sanitation for the populations, as well as the use of water to promote income-generating activities to alleviate poverty. 1.2 Justification for Bank Intervention 1.2.1 Apart from being in line with the EDPRS, the RBCSP (2008 – 2011) is also in harmony with the Bank’s Vision, particularly its Strategic Plan. Consequently, its primary objective is to provide support to the Government in the fight against poverty, under the following two pillars: (I) Pillar I: development of infrastructures, including those for adequate access to drinking water and sanitation services. This is fully consistent with the Bank’s Rural Water Supply and Sanitation Initiative (RWSSI). (II) Pillar II: promotion of competitiveness and development of enterprises so as to enhance their productivity and, subsequently, improve the standard of living of the populations and reduce poverty. This sub-programme is therefore in keeping with the country’s priorities, particularly as outlined in Pillar I. Furthermore, the satisfactory implementation of Phase I of PNEAR is a further boost for the Bank in favour of the implementation of this sub-programme. Indeed, the outputs of Phase I have resulted in access by 474,000 people to drinking water, representing 90% more than the initially estimated number, and 14,600 to sanitation services, representing a further 22%. 1.3 Aid Coordination
ECONOMY Size Sector or sub-sector GDP Exports Agriculture 44% 40% Industries 7% 60% Services 42% - Tourism 7% - Stakeholders – Annual Public Expenditures Year 2007 Government Donors US$ Millions 54.1 187.8 % 22.4 77.6
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Comments on aid coordination 1.3.1 The adherence of the major donors3 of the sector to the RWSS Initiative approach of the Bank is a major factor of success. Furthermore, all the donors in the country were closely associated with the design of the National RWSS Programme for 2020 by the Government (PNEAR – 2020). Several meetings in which NGOs operating in the sector also participated were held. All the participants adhered not only to the principles of the Bank’s Initiative, but also to the provisions and objectives of PNEAR. In this regard, it should be noted that the ADB is currently playing the role of lead donor in the water and sanitation sector in Rwanda, and as such co-chairs, with the supervisory Ministry, the meetings of the sector consultative framework set up by the Government. This accounts for the high expectations on the Bank for its support to the country in the achievement of the PNEAR objectives. II. Description of the Sub-Programme 2.1 Sub-programme Components 2.1.1 The sub-programme has the following components:
Number Name of Component Cost Estimate in UA Million and %
Description of Components
A Development of WSS infrastructure. 18.937- (93%) - Construction of water and sanitation structures.
B Institutional support to intervention structures of sub-programme.
0.512-(3%) - Support for training of staff and standpipe repairers.
C Programme management. 0.816-(4%)
- Operating costs of PCU and audit.
The sub-programme, which is classified under environmental category II, does not fall in one of the five (5) project categories defined by the relevant Presidential Directive. 3 Main donors of the water and sanitation sector in Rwanda: ADB (lead), World Bank, ABEDA, European Union, IFAD,
UNICEF, UNDP, Japanese, Austrian, German and Belgium Cooperation Agencies.
Stakeholders – Annual Public Expenditures (average) **
Government Donors
22% ADB 20%
EU 17%
WB 8%
UNICEF KFW
8% 6%
JICA 6% Other Donors 13%
Level of aid coordination Existence of thematic working groups Yes Existence of an overall sector programme Yes Role of ADB in aid coordination*** L **** L: Lead.
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2.. Technical Options Selected 2.2.1 The technical design of the present sub-programme is based on: (i) the referential technical supply options selected for the PNEAR, (ii) a nationwide core planning to prepare the PNEAR investment plan for achieving the MDGs by 2015, and fully satisfying the water and sanitation needs of the rural populations of the country by 2020, and (iii) the demand-driven programming of works, with the participation of users and local elected representatives, and in consultation with the Government’s technical services. 2.2.2 For drinking water, the referential or technical package of water supply options includes: (i) connection of the requesting locality to a multi-village pipe-water supply network (AEMV) to be constructed, with a pumping system and reservoirs and networks of variable capacity depending on the number and size of localities to be served; (ii) connection of the requesting locality to a gravity multi-village pipe-water supply network (AEMV) to be constructed from a water source located on a crest; (iii) connection of the locality to an existing network by extending the latter to the village to be supplied; (iv) supply of water to the locality from a borehole fitted with a hand pump in areas where surface water is scarce and where the rocky geological context allows for only low output boreholes; and (v) supply to a locality from a developed water source, either through a direct drawing of water or through a nearby reservoir where the flow from the source is weak. 2.2.3 The criteria for selecting a technical option for a locality take into account: (i) the needs expressed at the grassroots level of the community itself (demand approach) ; (ii) current situation of its access to water; (iii) its projected population by 2015 and, beyond, by 2020 ; (iv) the level of its adherence to the current system of private management of water facilities to ensure sustainability of the operation; (v) its location in relation to the radius of influence of the existing water supply network; and (vi) the proximity of other similar localities with which it could form a sufficient concentration area to justify a new AEMV. The connection of a locality to an existing DWS system is the first option explored, with the other options being assessed only where a connection by extension of the network is not technically possible or justified. 2.2.4 With regard to household sanitation, the referential or technical package of sanitation options comprise: (i) the VIP latrine or hand flush toilette (TCM); (ii) laundry tub drainage well; and (iii) hand wash basin. These are standard low-cost facilities that provide reasonable sustainability and hygiene guarantees. 2.2.5 With regard to community sanitation, the public lavatory model is made up of a standard multiple cubicle structure (5 to 6 cubicles) with hand flush toilettes (TCM) and separate male-female sections, including urinals and 2 hand wash points. A single standard plan will be used for all the facilities of the sub-programme. 2.3 Sub-programme Type 2.3.1 Unlike the agricultural, education and health sectors, there is not as yet a sector budget support (SWAP) as financing instrument for the water and sanitation sector in Rwanda. However, the Government has commissioned a World Bank-funded study to explore ways and means of gaining access to a sector SWAP. Once the study is completed, the findings will be discussed by the Government and all the technical and financial partners for ultimate
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validation and definition of their conditions of implementation. Consequently, the financing mechanism jointly adopted could be applied for the next financing phases of the national programme (PNEAR). This present sub-programme will use the mechanisms already existing in the country that were also used for PNEAR Phase I (see paragraphs 2.7.1 and 4.2.4). 2.4 Sub-programme Cost and Financing Arrangements 2.4.1 The cost estimate of the sub-programme, exclusive of tax, is UA 20.265 million, comprising UA 7.136 million in foreign currency (35%) and UA 13.129 million in local currency (65%). It includes provisions for physical contingencies (10%) and annual price escalation (2% for foreign currency and 5% for local currency). The tables in the Annexes present a summary of the costs of the sub-programme by component and expenditure category, as well as the expenditure schedules. 2.4.2 The sub-programme will be financed by: (i) the ADF to the tune of UA 10 million or 49%; (ii) the RWSSI Trust Fund in the amount of UA 6 million (equivalent to EUR 6.960 million at the February 2009 rate of UA 1 = €1.16) or 30%; (iii) the Government to the tune of UA 3.254 million or 16%, and (iv) the beneficiary communities to the tune of UA 1.011 million or 5%. The following tables provide a breakdown by component, expenditure category, and source of finance; the relevant detailed costs by component are presented in Annex B2.
Table 2.1 Sub-programme Costs of by Component
RWF Million UA Million Component
LC FE Total LC FE Total
A. Basic Infrastructure Development Household Sanitation Works 2880.000 0.000 2880.000 3.504 0.000 3.504 Public Sanitation Works 1045.000 0.000 1045.000 1.272 0.000 1.272 Development Works for 1000 drinking water sources 1285.000 0.000 1285.000 1.564 0.000 1.564 10 Medium DWS Works 1282.000 1923.000 3205.000 1.560 2.340 3.900 Large WS Works 431.600 1726.400 2158.000 0.525 2.101 2.626 Studies, Supervision and Control of Works 260.541 607.930 868.471 0.317 0.740 1.057 Outreach and Sensitization Campaigns for DWS Structures 357.435 357.434 714.869 0.435 0.435 0.870 IEC Campaigns for Sanitation Structures 554.510 554.510 1109.020 0.674 0.674 1.348 Sub-total 8095.716 5169.644 13265.360 9.851 6.290 16.141
B. Support for Intervention Structures of the Sub-programme - Support for Fifteen Sub-programme Districts 217.600 33.468 251.068 0.265 0.041 0.306 - Support for training of stand-pipe repairers for maintenance of
facilities 90.000 1.782 91.782 0.109 0.002 0.111 - Capacity building for central structures 40.400 0.000 40.400 0.049 0.000 0.049 Sub-total 348.000 35.250 383.250 0.423 0.043 0.466
Table 2.3 Sub-Programme Cost by Expenditure Category
Table 2.4
Expenditure Schedule by Component Component 2009 2010 2011 Total
A. Development of Basic Infrastructures Household Sanitation Works 0.000 2.074 2.178 4.252 Public Sanitation Works 0.000 0.753 0.790 1.543 Development of 1000 DWS sources 0.000 0.926 0.972 1.897 10 Medium DWS Works 0.000 2.699 1.858 4.557 Large Water Supply Works 0.000 1.501 1.540 3.042 Studies, Supervision and Control of Works 0.000 0.889 0.277 1.166
Outreach and Sensitization Campaigns on DWS Structures 0.013 0.548 0.415 0.976 IEC Campaigns for Sanitation Structures 0.263 0.636 0.605 1.504 Sub-total Development of Basic Infrastructures 0.276 10.026 8.635 18.937
B. Support for Intervention Structures of the Sub-programme
- Support for Fifteen Sub-programme Districts 0.251 0.038 0.040 0.329
- Support for training stand-pipe repairers for maintenance of structures 0.102 0.014 0.014 0.130 - Capacity building of central structures 0.053 0.000 0.000 0.053 Sub-total Institutional Support 0.406 0.052 0.054 0.512
C. Sub-programme management
Sub-programme Coordination Unit (PCU) 0.036 0.350 0.368 0.754
Annual auditing of PCU and Sub-programme accounts 0.019 0.021 0.022 0.062 Sub-Total Su—programme Management 0.055 0.371 0.390 0.816 TOTAL COST OF SUB-PROGRAMME 0.737 10.449 9.079 20.265
4 This amount is equivalent to € 6.960 million, at February 2009 rate of UA1 = €1.16.
UA Million Sources of Finance
LC FE Total
% Total
ADF (Grant) 7.948 2.052 10.000 49 RWSSI Trust Fund (Grant) 0.915 5.085 6.0004 30 Beneficiaries 1.011 0.000 1.011 5 Government 3.254 0.000 3.254 16 TOTAL COST
13.128 7.137 20.265 100.000
Expenditure Categories RWF Million UA Million
LC FE Total LC FE Total
A. GOODS 22.500 35.250 57.750 0.027 0.043 0.070 B. WORKS 6923.600 3649.400 10573.000 8.425 4.440 12.865 C. SERVICES 1542.616 1520.244 3062.860 1.877 1.850 3.727 D. OPERATING COSTS 530.241 0.000 530.241 0.645 0.000 0.645 Base Cost 9018.957 5204.894 14223.851 10.974 6.333 17.307
2.5. Sub-Programme Area and Beneficiaries 2.5.1 The beneficiaries of the sub-programme are the populations of 15 districts5 of the three provinces of the North, West and South, representing a total of 5.05 million inhabitants out of the 9.7 million in the country. The choice of these areas is justified by the following three reasons: (i) state of access to DWSS services: indeed, currently the rate of access by the communities to drinking water, all supply options considered, averages 47% in the provinces, compared to the national average of 51%. Moreover, the rate of access per DWS network indicates that as a result of under-equipment, about 20% of the populations of the three provinces still resort to vulnerable water sources of dubious quality for their supply; (ii) the need to enhance the impact of the ADB’s sectoral operations in the provinces where it was already operating during the first phase of PNEAR (2005-2008), and where significant needs are yet to be met in the area of water and sanitation. This need to increase the Bank’s sectoral actions in these provinces also supports the Government’s desire to assign to each donor of the sector a well-determined area of the territory to avoid any overlapping of operations, and lastly (iii) the high priority given by the Government to the poverty reduction programme in these provinces that are also some of the most densely populated (with a high proportion of the population (60%) below the poverty line), and to which the sub-programme will make a significant contribution in the water and sanitation sector to promote income-generating activities, especially with water. 2.6. Participatory Approach to Sub-Programme Identification, Design and
Implementation 2.6.1 The participatory approach adopted by the Government, through effective involvement of communities in the design and implementation of the national programme, will enhance their feeling of ownership and thereby guarantee sustainability of the structures. Field visits undertaken during the appraisal mission provided an opportunity to interact with the communities and observe the anchoring of this approach at their level. Furthermore, the decentralization policy pursued by Rwanda is favourable. Indeed, the preparation of Community Development Plans (CDP) for the districts enabled the communities to acquire experience from this participatory identification of their needs, the search for solutions to their problems and in the area of planning. Thus, they will participate in: (i) validation of the location of DWS structures; (ii) determination of the beneficiaries of household sanitation facilities (exclusively reserved for economically weak households); (iii) supply of local labour and materials for works; and (iv) selection of management method for the infrastructures. Lastly, they will be members of the water points monitoring committees. 2.7 Consideration of Bank Group Experience and Lessons Learnt in Sub-programme
Design 2.7.1 The previous commitments of the Bank in the water and sanitation sector in the country, particularly those of Phase 1 of PNEAR, have provided the following lessons: (i) effective management of DWSS infrastructural systems by private operators and public/private 5 Musanze, Burera, Rulindo, Gicumbi, Gakenke, Rubavu, Nyabihu, Rutsiro, Ngororero, Karongi, Nyamasheke, Rusizi,
Muhanga, Ruhango and Nyanza.
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partnership in rural areas. This is evidenced by the rapid growth and entrenchment of this type of water supply management systems in rural areas to the detriment of conventional methods. Indeed, water supply schemes managed by private operators increased from 7% in 2003 to nearly 30% at end 2007, the ultimate goal being to achieve 100%. Consequently, the Government decided to extend this management method to all structures in rural areas. Thus, to improve and consolidate the positive achievements of this approach, the sub-programme will strengthen the management capacity of the private sector operators; (ii) the use of the Common Development Fund (CDF6) as a financing bridge at district level has not only contributed to encouraging and buttressing the Government’s decentralization policy, but also to accelerating the construction of structures, while fostering the participation of beneficiary communities and their effective ownership of the structures provided. Indeed, it guarantees sustainability of the servicing of the facilities. In view of this conclusive experience, the CDF will be used again under the present sub-programme to provide a financing bridge and in the development works of DWS sources, as well as the construction of household and public latrines, representing 38% of the total financing; (iii) inefficiency due to multiplicity of execution agencies for the various operations included in the national programme by various donors; it is for this reason that the Government has decided to put in place the national water and sanitation agency to unify and harmonize donor procedures in the sector; and lastly (iv) inadequate preparation of some of the Bank’s projects in the country; however, in view of the use of the already existing coordination unit of Phase 1 and the availability of bidding documents for the various studies, there should be no delay in the start of the present sub-programme. 2.8. Monitoring- Evaluation and Major Performance Indicators 2.8.1 A PNEAR monitoring-evaluation system, including easily quantifiable performance indicators, was put in place under Phase 1. This system defines a set of criteria for up to 2015 and 2020 aimed at random assessment of the performance of the various sub-programmes implemented during the five cycles of the PNEAR. At the end of each year, it will be used to review the sub-programme, together with the Government and its technical and financial partners (donors and NGOs). During such reviews, an assessment of the various interventions will conducted and, where necessary, relevant adjustments will be made. Furthermore, the following indicators will be applied to the sub-programme areas:
6 The Common Development Fund was put in place by the Government in 2002 to implement and support its
decentralization policy. The Government allocates 10% of the national annual budget, in addition to contributions from various donors, to the financing of the various development projects throughout the country’s districts.
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III. Feasibility of the Sub-Programme 3.1 Economic and Financial Performance
Table 3.1
Key Financial and Economic Data IRR and Financial NPV (15% ; RWF 16.2 billion)
ERR and Economic NPV (24% ; RWF 19.8 billion)
3.1.1 Financial Analysis. The financial analysis indicates that the private operators for the management of water points are effectively viable. Assuming a real discount rate of 10%, the net present value (NPV) generated by all the water points to be put in place is RWF 16.2 billion. A sensitivity test on water points yields a minimum price guaranteeing the cost-effectiveness of operation: this is RWF 493 /m3 of water sold, representing a minimum jerry can (25 litres) selling price of RWF12. The current prices are RWF15/jerry can equivalent to RWF 600/m3. The detailed results are presented in Annex B7. 3.1.2 Economic Analysis. The economic analysis measures the benefits generated by the sub-programme for the country for various aspects such as health, education or savings in time. Assuming a 12% economic opportunity cost of the investments, the analysis indicates an economic NPV of RWF 19.8 billion, translating into significant impact and benefits for the entire country. The detailed results are given in Annex B7. 3.1.3 The benefits generated by the sub-programme are many. These include direct benefits related to the water and sanitation structures, and express the value created for the beneficiaries by the new water structure or improvement in access to drinking water and sanitation. Another key benefit generated is the time saved by the drinking water supply and evacuation of excreta and waste water. Consequently, for the education system, the community and pupils’ parents the savings in costs related to reduction in school absenteeism or decreased cases of repeat and failure constitute some of the economic benefits accruing from the sub-programme. Lastly, the
Indicators of effectiveness of sub-programme outputs by 2012 Existence and effectiveness of a water resource monitoring system Existence and effectiveness of a DWSS infrastructure construction monitoring system
Number of water points and water supply schemes created (1011) Number of adequate sanitation systems provided (16 130) Failure rate which falls below the current rate of 3% Number of water points subjected to drinking water quality analysis (1011) Rate of access to drinking water increases from 47 to 60% on average in the 3 regions (642,000 persons served) Rate of access to individual sanitation increases from 10 to 16% (150 000 beneficiaries) Number of masons trained (500) Number of women trained and integrated into the 1011 WUAs created as members Number of female managers in the 1011 WUAs created (30%)
Number of women outreach workers recruited for environmental hygiene (250) Number of private operators (10) strengthened and put in place. Indicators of effectiveness of sub-programme in terms of impact on development
Rate of decrease of prevalence of water-borne diseases from the current average threshold of 34% to 26% by 2012 Reduction of infant mortality rate from the current average level of 123 per thousand to 80 per thousand by 2012 Number of private first-rate operators involved in the sector, particularly in the maintenance of water supply
structures Average per capita consumption of drinking water attaining the national standard of 20 L/day/person by 2012
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reduced number of cases of water-borne diseases and their effects on the health system (time of the medical personnel, immobilization of the medical system and medicines) and the communities (medical expenses paid for, time lost during consultations and examinations, related transportation costs, lost working time) generate significant economic benefits for the entire country. 3.1.4 Sensitivity: The differences noted between the NPV previously estimated with the basic assumption and the NPV obtained with the sensitivity test using the variables mentioned above show that the basic assumption used for the financial and the economic analyses is reasonable. More specifically, the simulation shows that even in the most unfavourable situations, the current net financial and economic values are largely positive as the Tables in Annex B7 show. These results show that the sub-programme generates significant economic benefits for the country. The detailed results are given in Annex B7. 3.2. Environmental and Social Impact 3.2.1 Environmental Aspects: Given its significance for health, its size and its multiple positive environmental and social impacts, the sub-programme is classified under the Bank’s Environmental and Social Category II. In accordance with the Bank’s guidelines and policies, an Environmental and Social Management Plan will be prepared and implemented concurrently with the implementation of the sub-programme, in order to mitigate possible negative effects. The evaluation conducted during the mission indicated that the environmental benefits of the sub-programme will be significant for the communities. Indeed, the protection of the intervention area will be strengthened through implementation of measures such as systematic reforestation of catchment areas located alongside the sources of water collection and introduction of periodic analyses of the quality of water of developed water sources. Furthermore, the availability and proximity of water, the autonomous and public sanitation systems, and the education and hygiene campaigns will result in: (i) greater attention paid to the hygiene and cleanliness of the domestic living environment; and (ii) increased involvement of women and children in the improvement of the cleanliness and development of inhabited and surrounding village spaces (cleaning and maintenance, creation of nurseries, windbreak plantations, development of school grounds, etc). 3.2.2 Climate Change. For many years, Rwanda has been subjected to external phenomena such as: (i) flood-causing heavy rains; (ii) climatic variables, notably El Nino and La Nina; and (iii) drought caused by 16% rain deficit. These phenomena have multiple repercussions on water resources, such as reduced river flows and lake levels, as well as drying up of some water sources in the east, south-east and parts of the central plateau. Consequently, the sub-programme has made provision for the construction of storm water harvesting reservoirs in water-stress areas. Since the water sector is the most critical sector because of its impact on the other sectors, the National Adaptation Action Programme has made the integrated management of water resource a priority action (Annex B8). 3.2.3 Social Aspects. The permanent access by the populations to water and household and public sanitation facilities, which will increase from 2000 in the Phase 1 to 16,130 in this phase, will positively impact on the hygiene and health conditions of 792,000 beneficiaries (52% women), and help curb the prevalence of common water-borne diseases such as malaria, dysenteries, skin diseases and cholera. These positive health impacts will result in savings in health expenses, improved productivity and, consequently, a significant reduction in poverty. Moreover, social cohesion will be strengthened through the installation of the large pipe-water scheme that will pass through several districts, such that the communities concerned will join the common users’ associations. The Ubudéhé community approach, which promotes
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remunerated employment of beneficiaries in the construction of some simple community schemes such as developed water sources and latrines, will also increase the incomes of the people and significantly reduce poverty. Besides, the various training programmes for masons, standpipe repairers and private operators will help them to acquire the requisite skills to enable them earn a living in similar projects. Lastly, the design of the proposed latrines will be adapted for use by disabled persons. 3.2.4 Gender Aspects. One of the major impacts of the sub-programme for women and children will be the time saved, about 3 hours, in water fetching as a result of proximity of water collection points to homes. Furthermore, the installation of laundry tubs at 1000 developed water sources will help women to avoid the constraint of carrying water for laundry. All this will foster greater involvement of women in income-generating activities, particularly market gardening, and lead to improved school attendance and performance, particularly for girls whose success rate is very low compared to boys (41% against 59% at primary level). Furthermore, the approach adopted, geared towards the promotion of gender equality and women’s employment in water management, will help to address the specific constraints that hamper women’s integration into the private water operation trade. Thus, the sub-programme will provide steady employment to women, notably as standpipe repairers (recruitment of at least 30% of women in the 1011 users’ associations created) and private operators for the running and maintenance of water supply structures. 3.2.5 The sub-programme will enhance the opportunities provided by the Government through the Minister of Gender and Promotion of the Family (MIGEPROF), specifically the National Women’s Council that has a network of women’s associations countrywide. Indeed, the IEC activities that will accompany the physical outputs will boost the empowerment of rural women through water management, particularly those residing in the sub-programme areas. Consequently, the envisaged actions concern: (i) the recruitment of 250 female outreach workers trained in IEC techniques who will lead the sensitization and outreach campaigns on the hygiene of individual sanitation structures ; (ii) the active involvement of women in outreach activities for 1011 water users’ associations (WUAs) and their training in the management and maintenance of water points; (iii) sensitization activities for women’s organizations in the selected sites in order to stimulate their members’ candidacy for managerial functions in the DWS networks (among the 1011 posts to be created) and standpipe operations; (iv) advocacy with sector and district authorities for more women under the sub-programme ; and lastly (v) deep involvement in awareness campaigns organized by the MIGEPROF that has solid experience in the area. Furthermore, it should be noted that the availability of water will contribute to creating income-generating activities, such as market gardening, which is primarily a female activity in rural areas. Forced Resettlement: The sub-programme activities do not require the forced resettlement of populations. IV. Implementation 4.1. Implementation Arrangements 4.1.1 The Sub-Programme Executing Agency is the Ministry of Infrastructure (MININFRA). This Ministry is finalizing the establishment of a National Water and Sanitation Agency within its services. In the current interim phase of establishing the agency, and in order to avoid any delays in the sub-programme implementation, the same Coordination Unit (PCU)
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that supervised PNEAR I, will coordinate the implementation until the agency is effectively established. The Government will include members of the PCU in the agency, so as to ensure continuity of implementation of the sub-programme. 4.1.2 This coordination unit, headed by a project manager, will be responsible for: (i) the management, coordination and planning of the operations of the sub-programme on behalf of the national agency; (ii) monitoring and control of the implementation of the sub-programme; (iii) the accounts and monitoring of disbursements; (iv) the auditing of the sub-programme activities; and (v) information and secretariat of the Steering Committee. It will have the following members: a project manager (Hydraulic, civil or rural engineer or equivalent) and six other experts (a water supply engineering specialist, a sanitation engineer, a procurement expert, a monitoring-evaluation officer, an environmentalist, and a financial officer), as well as support staff. For purposes of implantation of community works by the Common Development Fund (CDF) as in Phase 1 of PNEAR, MININFRA will sign an agreement with this structure. 4.1.3 Once the establishment and operationality of the national agency becomes effective, it will be responsible for coordinating, within a unified intervention framework, the implementation of the entire national rural programme (PNEAR) and urban activities in the sector until completion in 2020. It will also assist the Government to carry out appropriate planning of the sector activities by harmonizing the approaches, standards and technologies in water supply and sanitation. The agency will be mainly responsible for: (i) supervising decentralized structures in the formulation, preparation and implementation of their projects; (ii) facilitating sensitization, and social mobilization and intermediation; (iii) assisting in establishing a system of management of DWSS structures at district level by seeking the cooperation of support organizations such as NGOs, local consulting firms and private operators; (iv) seeking and promoting partnerships with other donors, NGOs and public organizations so as to create synergies in project implementation and thereby avoid duplications, as well as establishing a multitude of implementation units in the various projects implemented under the PNEAR and in urban areas; (v) coordinating the various stakeholders of the sector; (vi) monitoring and evaluating the activities of the national programme and those carried out in urban areas in general up to the end of Rwanda Vision 2020. As support to the Government’s effort to set up the national agency and during the early years of operation of the agency, the ADF will build its capacities through the financing provided for this sub-programme. Moreover, technical assistance embracing a wide range of skills will be recruited, where necessary, to assist the agency in carrying out the activities under the sub-programme, while ensuring monitoring/evaluation of PNEAR on the whole. 4.2 Implementation Schedule, and Procurement and Disbursement Procedures 4.2.1 Implementation Schedule: The sub-programme will be implemented over a period of 30 months starting from July 2009. The works will begin in March 2010 and cover 15 months, and end in May 2011 for the drinking water component, and cover 22 months up to December 2011 for household sanitation. As regards monitoring of the implementation, the Bank will undertake a launching mission, as well as regular supervision missions, in accordance with the provisions in force. The Bank’s Regional Office based in Kigali (RWFO) will take advantage of its proximity to ensure close monitoring of the Sub-Programme. This approach will facilitate the circulation of information between the PCU, national technical departments and the Bank, thereby accelerate the start-up and implementation of the sub-programme, in accordance with the provisions of ADB’s RWSS Initiative. The indicative schedule of implementation of the sub-programme is as follows:
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Activity Responsible Date /Period
Approval of the grant ADF May – June 2009 Effectiveness ADF/GVT July 2009 Establishment of the coordination team ADF/GVT already effective (PCU Phase 1 PNEAR) Preparation and launching of adverts & BDs PCU/ADF June 2009 to March 2010 Signing of contracts PCU January 2010 Start up of works control by consulting firm PCU February 2010 Works PCU/Enterprises March 2010 - December 2011 End of sub-programme PCU December 2012 4.2.2 Procurement Procedures: The procurement of goods, works and consulting services financed from the Bank’s resources will be made in accordance with its Rules and procedures for the procurement of goods and works (May 2008 edition) or, as appropriate, Rules and procedures for the use of consultants (May 2008 edition), using the Bank’s standard documents. The Project Coordination Unit (PCU) will be responsible for the procurement of goods/works/service contracts, consultancy services, training and, where applicable, will provide technical assistance to the decentralized public procurement entities in the districts in the sub-programme area for the procurement of community works and services, as described in detail in Annex B5. The conclusions of the assessment of the capacity of the PCU to implement the project procurement procedures are presented in Annex B5. 4.2.3 All procurements of goods and works by national competitive bidding and community works will be made in accordance with the provisions of Law No. 12/2007 of 27/3/2007 on public procurement of Rwanda, as reviewed and deemed adequate by the Bank. Furthermore, in order to consolidate the Government’s decentralization policy and in accordance with provisions of the public procurement law, each of the 15 districts of the sub-programme will, within the limits of the volume of works in its area, manage the procurement process for the execution of the works, with the support of the PCU. The ex-post review procedure is authorized under specific conditions defined in Annex B4. No pre-qualification will be required for the procurement of goods and works. 4.2.4 Disbursement Procedures: Under the implementation of the sub-programme, disbursements will be by three methods: the special account, direct payment and, where necessary, reimbursement. Evidence of the opening of two (2) special accounts with a bank acceptable to the ADB will be a condition of the grant. The two accounts to receive the resources of the ADF and RWSSI Trust Fund will be as follows: (i) the first account opened by the PCU to receive resources to cover the operating costs of the PCU, support to the sub-programme districts, auditing of the sub-programme accounts and training of PCU staff, districts and standpipe repairers; (ii) the second account opened by the Common Development Fund (CDF) will receive funds for financing household sanitation works (household latrines), developed water sources (community works using the Ubudéhé approach), and construction of public latrines and storm water harvesting reservoirs. This process, which is the same as the one used during the financing of the first phase of PNEAR, has the advantage of providing funds directly to the beneficiaries at the local level. Besides, the CDF, whose financing of districts for 2008 amounts to about UA 27 million (40% by the Government and 60% by donors, including the ADB), already has a long experience to facilitate rapid construction of the structure for the beneficiary populations. In the final analysis, about 50% of the sub-programme resources will be disbursed through the special accounts, and this will help to accelerate implementation of the project.
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4.2.5 On the other hand, the Bank will use the direct payment method for procurements relating to: (i) large and medium DWS works; and (ii) services for the control and supervision of works and the IEC outreach/sensitization campaigns on drinking water and sanitation. For all the other activities, the Bank will use the special account method through transfers into the special accounts mentioned above and opened and managed by the PCU and the CDF respectively. 4.3 Governance 4.3.1 The Government of Rwanda has put in place a zero tolerance policy on corruption, and allegations concerning public officials are systematically investigated and prosecuted in the law courts. Rwanda occupies a better ranking than its neighbours in the Transparency International Corruption Perceptions Index as well as the Ibrahim Index of Governance in Africa. The joint governance assessment (JGA), conducted by the government and donors, shows that progress has been made, although much still remains to be achieved, particularly in the area of institutional capacity building. A recent governance profile of Rwanda, prepared by the ADB Group, reached similar conclusions. 4.4 Sustainability 4.4.1 One of the major factors of sustainability of rural water supply services can be measured by the ever increasing desire of the government to entrust the management and operation of the water facilities to private operators. This form of management increased from 7% in 2003 to nearly 30% at end 2007. And in view of the positive results achieved, the Government has made a firm commitment to extend this type of management to all the water supply structures in the country. Consequently, the country’s private sector enterprises are beginning to acquire considerable experience for these kinds of works and services and, by the same token, are being strengthened. Furthermore, the availability of sufficient spare parts for the maintenance of equipment will sustain the achievements even more. It should be noted that another positive strengthening factor lies in the fact that the Government is encouraging local banks to grant lines of credit to private enterprises operating in the sector. Moreover, the intensity of the works and duration of the National Programme (by 2020) allow for beneficial development of spare parts activities for the sector. 4.4.2 Furthermore, the adoption by the Government of the legal and institutional framework, the law on water resource management, the water and sanitation sector policy paper, as well as the Sanitation Code will make the sector more attractive for donors and potential private operators. 4.4.3 Cooperation with other donors: The adherence of major donors7 of the sector to the Bank’s RWSS Initiative is also another factor for the success and sustainability of activities carried out in the sector. Furthermore, all the donors present in the country were closely associated by the Government with the preparation of the National RDWSS programme 2020 (PNEAR – 2020). Several meetings, including NGOs active in the sector, were held. The participants not only adhered to the principles of the Bank’s Initiative, but also to the provisions and objectives of the PNEAR. In this regard, it should be noted that the ADB is 7 The major donors in the water and sanitation sector in Rwanda: ADB (lead), World Bank, ABEDA, European Union, IFAD,
UNICEF, UNDP, Japanese, Austrian, German and Belgian Cooperation Agencies.
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currently playing the role of lead donor in the water and sanitation sector in Rwanda, and in this regard, is co-chair, together with the supervisory Ministry, of the sector consultative meetings organized by the Government. This accounts for the high expectations from the Bank in terms of the support it could provide to the country to achieve the objectives of the PNEAR. 4.5. Risks and Mitigation Measures 4.5.1 Risks : Four major risks have been identified for the implementation of the sub-programme: (i) the capacity of local authorities to effectively fulfil their responsibilities under the Government’s decentralization policy, particularly the effective transfer of management responsibilities for water structures to local authorities, thereby excluding any negative interferences by the Government or its local representatives in the selection of beneficiary populations or in the management of the structures; (ii) the non-application of the institutional provisions in the sector policy documents adopted by the Government to rehabilitate the sector and make it more attractive; (iii) failure by the beneficiary populations to contribute; and lastly (iv) non-extension of the private management approach to the structures of the sub-programme. 4.5.2 Mitigation measures: (i) With regard to the capacity of the local authorities to effectively fulfil their responsibilities under the decentralization policy, while avoiding interference in the selection and management of the equipment, it should be noted that, as in the national programme (PNEAR), under Component B, the capacities of grassroots communities will be strengthened in planning, management of small water and sanitation schemes, and procurement procedures. Furthermore, the village water users’ associations will benefit from training campaigns in the management of the DWS structures and sensitization on social mobilization and hygiene education, (ii) with regard to non-application of institutional provisions in the sector policy documents, it should be noted with satisfaction that the adoption by the Government of the legal and institutional framework of the law on water resources management, the water and sanitation sector policy document, as well the Sanitation Code, and the commitment it has made to sector donors for the rapid operationalization of the National Water and Sanitation Agency to ensure effective implementation of these regulatory texts, augur well for a more attractive future for the sector that would also be more conducive for donors and private operators; (iii) with regard to the risk of failure of beneficiaries to contribute, the levels proposed are acceptable in view of the past and ongoing experiences in the sector, averaging 3% for drinking water structures and 20% for household sanitation technical package structures. In this regard, the requested contribution from the populations should not constitute a handicap for the sub-programme, given the financial capacities of the said populations, particularly since for drinking water, the contribution is not part of the investment for the construction of the structures, but constitutes an advance in the form of a revolving fund to cover the running costs during the initial months of operation in order to avoid any stoppage that would adversely affect the beneficiary populations. Furthermore, for household sanitation, the beneficiaries will make contributions in kind by providing unskilled labour or local materials to be used in the construction of the latrines. The cash contribution by the beneficiaries for sanitation will be subsidized by the municipal authority of the district. Indeed, the current regulations of the country provide that only the population below the poverty line can benefit from a subsidy for the construction of household sanitation facilities; (iv) finally, with regard to the risk relating to non-extension of private management to water structures of the sub-programme, it should be noted that in view of the positive results obtained following adoption of this method of management and operation, the Government took the firm decision to enact a law extending the scheme to both new and old water supply
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schemes. This accounts for the sharp rise in this kind of management from 7% in 2003 to nearly 30% at end 2007. Furthermore, in order to strengthen this type of management, the Government is encouraging local banks to grant credits to private enterprises operating in the sector. 4.6 Knowledge Building 4.6.1 It will be necessary to build capacities in order to enhance the efficiency of the operators and ensure sustainability of the DRWSS services. Establishing the sub-programme is all the more crucial in rural areas as there is no planning and programming reference framework: water supply has been developed for several years based on a series of independently implemented schemes. Admittedly, substantial results were obtained in the area of infrastructure development, but there is no indicator on the actual rate of access to water since data published in previous years showed wide discrepancies. Through the financing of the first phase of the national programme, the ADB supported the country to undertake an inventory of infrastructures that would not only help to build the necessary knowledge, but also update the rates of access by the populations to water and sanitation for all the structures provided under the PNEAR. 4.6.2 In addition to building on the knowledge developed during Phase 1 of PNEAR, the present sub-programme will allow for: (i) the training of leaders of the 1011 water users’ associations (WUAs) to ensure rational and sustainable management of the DWSS structures constructed; (ii) the training of 200 standpipe repairers to ensure maintenance of the water structures; (iii) the training of 500 masons in household latrine construction; (iv) building of the knowledge of 10 private operators in the operation and maintenance of rural drinking water networks; (v) the training of sector workers of the 15 districts of the sub-programme in computerized updating of the national monitoring/evaluation system put in place during the 1st phase of PNEAR; and (vi) introduction to environmental maintenance techniques and those of sanitation structures for 250 female outreach workers and 100 school teachers to ensure sustainability of sensitization activities on hygiene and environmental cleanliness in the localities concerned. Furthermore, the training programmes developed under the present sub-programme will target village grassroots community capacity building in the planning and management of small water and sanitation schemes and procurement procedures to enable them to fulfil their responsibilities under the current decentralization policy. V. Legal Framework 5.1. Legal Instrument 5.1.1 Conditions precedent to the effectiveness of the grant. Effectiveness of the grant agreement shall be subject to fulfilment, by the Donee, of the conditions defined in Section 5.0.1 of the General Conditions. 5.1.2 Conditions precedent to the first disbursement of the grant. The ADF shall make the first disbursement of the grant resources only if, in addition to effectiveness of the Financing Agreement, the Donee fulfils, to the satisfaction of the ADF, the following commitments and conditions: Commitments
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The Donee undertakes to:
a) operationalize, not later than 31 December 2010, the National Water Supply and Sanitation Agency being put in place;
b) implement the harmonized administrative, accounting and financial management
procedures manual of the national programme not later than 31 March 2010; c) extend to all the drinking water supply structures of the present sub-programme,
the system of management by private concessionaires at the end of the project. Conditions precedent to the first disbursement
i) Provide the ADF with evidence of the opening of two special accounts by the PCU and CDF with “Banque Nationale du Rwanda” (BNR) to receive the grant resources earmarked for institutional support, auditing of the sub-programme, the operating costs of the PCU, community water and sanitation works, and construction of public latrines and reservoirs to harvest storm water;
ii) Provide the ADF with evidence of the opening of an account with BNR to receive
the Government’s counterpart contribution to the financing. 5.2 Compliance with Bank Policies
(X) The sub-programme complies with all the Bank’s relevant policies. ( ) It is recommended that the following waivers to the Bank’s policies should be approved. The
sub-programme is consistent with all other relevant policies. Special Conditions (where applicable): (not applicable) VI. RECOMMENDATION Management recommends that the Board of Directors should approve the ADF grant proposal amounting to UA 10.00 million and a grant of UA 6.00 million from the Bank’s Rural Water Supply and Sanitation Initiative (RWSSI) Trust Fund to the Government of Rwanda for the purposes of the sub-programme and subject to the conditions defined in the present report.
Appendix I
1990 2008 *Area ( '000 Km²) 30 323 80 976Total Population (millions) 7,3 10,0 985,7 5 523,4Population growth (annual %) -0,1 2,9 2,3 1,4Life expectancy at birth, total (years) 32 47 55 66Mortality rate, infant (per 1,000 live births) 127,3 111,0 83,9 53,1Physicians per 100,000 People … 2,7 39,6 78,0Births attended by skilled health staff (% of total) 28,0 38,7 51,2 59,0Immunization, measles (% of children ages 12-23 months) 55,0 99,0 83,1 81,0School enrollment, primary (% gross) 69,6 147,4 99,6 106,0Ratio of girls to boys in primary education (%) 98 101 92 100,0Illiteracy rate, adult total (% of people ages 15 and above) … … 33,2 26,6Access to Safe Water (% of Population) 65,0 65,0 64,3 84,0Access to Sanitation (% of Population) 29,0 23,0 37,6 53,0Human Develop. (HDI) Rank (Over 179 Countries) … 165 … …Human Poverty Index (% of Population) … 37,3 38,7 …
