46342 Community Selection and Responses UNDP - World Bank AStudy of Issuesand Solutions Water and Sanitation The NWFP Community Infrastructure Project Program UNDP- World Bonk Water and Sanitation Program - South Asia Region Case Study Community Selection and Responses A Study of Issues and Solufions NWFP Communrty lnfmstructure Prolact, Pokiston MehreenHosoin Tayyaba Samina MohammadAkbar W+ qnd &w& 'hgrqrn ,- en, the inltiith of rha World Bonk he Unh' Naiiom '%e~cpm~,~:kgma~pNoR) b I o t & d ~ , crgendesducfnghe helntemdfionalD and tkn m d of &&I* wm dt;ivrmrnenrd&iidbM . ,~. in ih*&n&. With iis prlidpon in nrrri,hon hventy-e@ltt- m o n f i die '%gramSuppBrn nMmd,mdl,wul effW lo help wmunilies of s..suco resoureas &bin ~tioble,:aeoe&b l m p ~ e d w ~ r . . ~ n , d s .sswiw. a t i ~ n fhb publfcofim )rcs haan mode pcaible hanks to financing provided by the SOC ond efforts of the following pem and InsiiMions: The W P Communitylnfmtrudure Project-PrNectManagementUnit Th&Cp.m+ndnk?s of Hmor &n?, W ~ i .&A, r Kat, York, Ahmoddbad, hrntour, lnzertiando,.Teri, hkhel, Ijod.aird' KOB KO~OOMI. thanks:!^ K M i ~ u t I o hRek.ha~ , C I Ja ~ Rain Rehon Anhod for their ql.uoblesuggwtions ond cpmmenk d 6,dndbQ~nJanylforhisoILIWaanceih thegrOphicdmien ofthk pubbmnon. H you hnvssomecommentsor need coples of thk publicofion, pleuse contact us at he fdlquingoddrrn: yY&< and Sonrtation.P m p m SouthAsla - World sank 2@-AShohmh-~hrnhud&G$/1 Islornobad, Pakistan. TI.: p2-51)819781-6 Fa: (92-51) 826362 E-moil: sd~o@wor!dbonk.org The UN@:w$$ mkW+r and Soniktion P r o g mr e s m all ri'ghts, under protocol 2 of ihe Uniustsal f o n u e m d Avthor'i R i g h However, for the pnrsent document, permission k given lo mpfroducs thls more&l either parttaIlp or tohrlly for gducoiiond, scientific, or for sociol ond economic dsvelopmant purposss, BvtnGtfqrcommerciale.ds,alwovsqnd when the~ q p l e t e sourceiscited. 5 Exennhrr Summary 6 Background 7 Summaryof Flndlngs 9 Scheme Identitication& SelectionRules 16 Conclusions81Recommendations Listingof Acronyms CAP Community Action Plan - CIP community InfrastructureProied - LGE&RD Local Government Election & Rural DevelopmentDepartment - M&E-Monitoringand Evaluation MIS Management InformationSystem - MNA -MemberofNationalAssembly MPA-Member of ProvincialAssembly NWFP No~+hWest Frontier Province - PC-1- PlanningCommission Proforma 1 P&CD Planning& Community Development - PHED -Public Health EngineeringDeportment PM-ProcessMonitoring PMU -ProjectManagement Unit SC- Steering Committee SDC -SwissAgency for Developmentand Cooperation UNDP -United Nations DevelopmentProgram Executive Summary - - - - - I In o commu.nity-based and demand-led lmding to the waste of significant ~ ~ u ~ e s pqect, h e appraptio%ness [to participate in i.nveskd.bybathgovernmentand communities. the pwject) of fhe coymunif!es identw and ' selected, the rel~~riw.of selarfion criisn'o, and An impodont issue highlighbd by the Study Is the prolea'shhibfytobe%bls.and odapfive in t h e n 4 for consistentsector poliues based on &@ding to chinunity demand and kt ' o dear of rules, to ollow demond led priorities, has tmpnxto+ consequencw for the prc+cls k, opemle effectively without success or foilu& of ''#pfodlliies pro~Idedby compafing withothers whichemplopsibtidies. :thepr~ectectect~ I W B ' D ~ m&iliioti~np j o a ~ ~ ~ O I . ~ plvotol ode 'in imp&@ the cofimunws This Study is based on tha experience with 0 'undesbnding of the p*rjed wles, the proieds new type of monitoring, hucessMonikn(ng p6teg.r.bed%,their&nse of ownership and carried out in co~l.o,borotionwith the PKyact e@nfually tha sustctinabflfty of facilities Management Unit (PMU), and focuses on key provided. lessons learnt during community seiecticn and scheme identification in ihe Community The Study hasshown thatambiguipasiyr projed lofrashu&n Proid (ClP). It dmuqwnk how NI~s,. &rive far hbitious targets, and the the Proiea has adopted os o =SUN of PTOECIIIS unbalanced rewum all~:otian, Ieod ta Monitoring, ond b w proiect ~ l e shove bsan cor~lp~romisingthe quality pf' community refined to improve and enhance the mobilimtion.-This .riff&& 'he ability d the particiwtoryond demand driven elements. The projed to respend to tb tnw nee& of the study indicates hot the CIP experience is likely community, iind moy 'wenfvally resuh in the to both stirnulate o debate on sector policies, 10% of communny confidence. If protect andinRuencethedevelopmentofsuch policies, moflrt6fi,ng@ms,.ore not in ploce, such issues might not be identified in a h e l y manner, Background h ,993 ,*.e &"smment I of itw N o h wet The Projed is being implemented in 4 ptpsas Fm%ttkr ~ . n &(Wpj initieted, with mvering 12 communifles in h 1. 14 fimncisl 05u'sknce o m the .World Sunk and caunities eoch in Phcses \Iand Ill,with 15 Swiw Pgen fw Oiwalopmeni and communifiw covered in bIV. While the ,,coopdon , +te tc+nmunib number of m u n i H e s covercad in eoch phase I,*ctum: Pmftxt (ET); on innavidiye, is lid, ond communities hove to be denwind-dtiveh' p#ird wp&ed to. ben& priodibxl, digible communities may atso be s6riie 4&p000 pe~ptein 55 u b n and rum1 included in a later phase. The pmiect cyde in communities in the provinceover o pen'od of 5 each communiiy consistsof years. Coordind by the Local Government, Eldons and Rud Dedopment Deporhnent i. identifimfion, (t@E&RD), the P+ is implemented by o if. prepomtion, Pm@ctMonogemed Unit (PMU). iii. confirmation, iv. implementationoqd v. operotion wnd maintenonce. Given the potteins @ infemction behen cbmmun.if@ and,g&vem.ment,S E agreed ta support Rocass bfonitoring (?U)'o.sa w y of A recumng issue has beenthe mherenttension manitoring key pm&d p-ses. If wos hoped between meeting the Proieds physic01 tnrges that PM&kl &ne& timely qudlifafive and and monoging sanetimes complex communify q~ntikrYrve inf~rm,oti~hwhich would be pmesses. A high mte of community "drop & ~ommunimted 0iK1 influence h e decisionsof w 0.e. selected communities which are lo& pmied mo@(18ementffnd wult in dwnges in excluded from implementution), wos noticed PW~& prWs% which would i m p m prqed eody in the Pr~iect, ond wus a cause of im&m.Mon. considerable concern. A drop out rate of 37 percent (7 out of 19)in Phase Iand 48 pe@ (16 out of 33) in Phase Ii was obsed. CIP employs pdicipatdcy, demanddriven Clearly, them were problems with the way In strdtagies tc, idenfib needs and upgrade which commun%es were selected. The 'drop infimtWm& in m r urbun ond rum1 WmhUn,We%.%is. bndudes investmentsin wafer out" issue wos of particular lhkt'e3f to tha Project, since if dotes to the critical proem sup&, d.miiwge, Rood p&edibn, streets and of scheme/cwnmunlty identifimtion o d footpaths, sonitatian, solid we& munogetnetit selection, the appropriubness of the visniD and convnuniiy facikties. Diverging employed, and other key o ~ c t of the social ' s considerobll, fam tmdifionol supplydriven mobiliitionprocess. apprc#+~, ond qpyo'tingin an unclearpolicy en~i,~ment,CIP is being dosely &served. by 'bothwpportersonddetro&rs. Summary of Findings The Iirst three. pwnlemz are due to clegr about &dim cnterb, and their own shortcomings in 'P~iei?'rules and prircesses. eligibility. Inipmvhg thpe &I-, ,md proc.eww cooM l~werihe dropoutmte w d ensure hot The hrth problem, while nut entirely in he cornmunitis are ef(d\rdp rnabrlized and P+ds cciifrul, could be pariiy sdlved by a ~luabteresau.mes not w a d . bamples of more effective woy to assess cornrnunify Bm$A rubes & ~ hmmdn uncleor a@ tb iuilqbiii* and readiness to porticipoie in the relatedto:the p q n w of ~xi~flnginhaetrudure Protect. Commlrnifles with gmtgr commitment m 0 commuh.ity ikonipunity ~eledsx1cdfeflo and n dom less likelyto lose their epthusimm ~ndim~ o c6qmunity should tack basic thot arid to endue h e long wit More phydml. . m h . ~ , c t v ~but,here is no dtirily qorifing e impiemenfotioncommences; tlje .wr$of 'infrostcu&re which ~ i g h tbe pmsen$.);od to~eiinglop iwetfte Qfnmunities, Ttte fifh and siwth issues relate to on (there ora m,&tpx8edcjMrdingwhot..migtrt' inconsistent policy envimnrnent, and h e mCDnsm:N&P wniuriii). An impolkrnt presence of ather progmrns and proiecb whidr ie ti, the lackof .clarityamongn ,@l,m ma9offersubsidiesand*softePeligibilitytam. PwjM st& regarding r4.w and selelection Communities are more likely to wait for these ,which might w t t !in.the seledion.of programs, unless demand is vary strong. If rommunRie-swkii~harenetallgibls ocwrdingto these 60ftprogmrnsaxist in parallel to a the wles. +donewer,coh.niuniti@ote also not whose ~ l e sindude cast-sharing, it om undermine ik obiedves. A dttilogue at the pdie level''isi'mportbnttb ensure thdto more mishrit policy envimnmem is adapted with wped ta subsidies and parfi.cipatw opprardas. The kst issue identifiad, relates to the. effed1venem of the seledion process in respondkng to trua 'community" demand, ond *e, ws :@poci%fo build oworeness ond mdbi1iz.e communniq. At times oppkcations heve been &miffed by one or small gmups of individuds without the consensus of the communWj: A s . h entire community,has to mnrnbute 20 pPxent of the mpitol c s t of &hiniun,@ in*cistructure, their lock of invahment at *is stow can lqad @ infernal eommuniiy ~conflids>As CIP commuiities ore large'[with populdtions of several thousand], hy ,,&prie of diverse groups,and my lock the *ion of mlbr communities. Eff- sociol mobitizgtion .con addrw ?me W o l wnflids, but @he* might be beorid the copncity.ondmndoie of the Pmiecf toaddress. Scheme Identification& Selection Rules Commu~tierm n participatein the Pro[& if the prepadon stage wos, however, evidence rh*~ h-Ova at lest 500 households or a of further shorkomings in the community populotjon above 3 Q C O t ' l ~ ~ i ~stdtus, r i l e Jeledion pnxwr. As he SC, whch is erpeckd i.e: less d~m-~RP: 2,00Qh~fh/h~u&o~di to meet quartpdy, only mat vary irregulally, lock of basic i-ctu~ and if h y are Proiect zkrfS would how to tush 10 prepam for willing to contribute 20 p e w t of the cost of these irregular and unscheduled meetings. As sxot~ddry f&t$ory infmshu&re 0.e. the SC has ihe nuthority to approve the .coh.ii~,n~inhtiwk"&). seledion of communities, Pror0@ #off have rushed to p-rn l i i for the SC meetings Dvfing Phs* I, @m.mbi?iti& vi& ohan which ore plannedin on ad hoc manher. Such s~IQ& directly bytf?a Projed on an 6d h w short-N% hove led to the recommendation of bass,. ~eswlting in on &emally- driven ineligiblecmmunifles. rebtihshtp *th the cpmmunfis. Inthis Pbse f9 comm&ities~mre.idenfified,'out of whlch 7 In he obsance of a functional M&E and MIS ~m later @d.uded, a dropwf mk. of 37 system the Proiectdid not hove:a,wayto.identity pe,wt. Two cmimunlfi&s., w a excluded for ~ problems or diagnose the &sons for hem. not m@ting the selektipn niterio,.d dye Thmugh diagnostic digussions wih the PM !ensngthy procedures/ccompeting progmms, and Teom, the Prc@iYsPIonning & Commwiiy one eammunity lost inhi& itnd dropped hn Development ( P W ) Dimiomte identifiedhe nslf. main mums of *dtop-& as: inadquota fehnical/finondol +bit?, s c a d Using firtdings .ham P@ rfi.6.Role revised ik settlement paiiems and pwr coordinoiiim iwnmpnity ideirt&~#mond sekion stmtegy. bafweengovernment linedepartmenis. In I!,,adverKs+neri@ ts pbcd in nempopers, whih mode he m s s more The PMect responded to PM observations and 'hnspwent and' allowed cammunRies to recommendations by nvising heir pmduws eupress demund through "'applyingn for and mnding an Mhronce facrm consisting of a p~titipotioninh P70ied. Planner, Assistant D i r e and 'Soclol Organi_m to visit some communities. This As a W!f cjf his new acommuriimfionn 'teom'viGted30communities,which re& in .&tegy, 150 6ommu.nHiei applieil from all, the campletion of 14 Community Action Plans potis'dh pmviwe, After an iniliol weening, (CAPS)and the dropout of 16 communitiss; 2 33 communHi'& wgm mommended to the dm to competing progmms, 3 bsccwse of ProieZTj 51i3ering Commitfee (Sq; Following foilurn to meet sdectim criteio (on dsklledl oppmval by the SC, h e prepomrion stage fild verification), 9 due to lock oi techrid, &aon. An ~ $ drop out of 3 gmmunitki rn 9 social and/or finoncid feosibilii, a d 2 communities lost tnkred and dm& 0~ fhiamserw. It wos found on indgatibn that second phuie.W lo& of writion to d.ue to pfmntiiline and stoffing cMIsfrarnfs he imporfont M.nical faasibility issues, wifh entiretewn mreQvisitdthe field; ohen part of tedmicol doff not being involved in the the. team or only me.indiwiduol would visit seledion process. Thik highli$le he importonqe .mmmunifies, of coordinatim hem* social and tech.qical aspeas of a pmjea. Svprlsin,$'l(ytjfhe dr :out mtb in pt\.w1.1 x)os' In ph~e;iJthe.community identiflEDtlm team :e.Jen Wkr j" fPIWS I :hi@ visited.33commu,~(short lipledbrnfhe , unm ,a i 'hnsmr.ap'@q&i~.daclodidenfifi~oh'b~.i - lidof 150cammunrwsdha oppiied) s&tterad %iss;@peam,~&,&mter.intuitiw~, but furher thmvghout tki? ~Pmvhnce.,hfottunatery, time +he impethca of a g d .+ti8con$hiifi resulted in,o humed and gthn&,l 'hmfi.$~fda% supe6ci61 ondipis. The m u r e of physical, . Wrgets, lock of ~coodlnaiionbetween sdol 'led.f&cor asepttm~ ee:ncji &wovt. andi&niq~l units of the P'miect,md the fact I +hotthscommwnity & v e l ~ ~ r n ,unityor; nat ~ t Th,d dppput rcrte iiv he twc fully stoffed ond quipped, a f f W the qu.olify ; . I : , . .. !tithI .p$*~ $ii 'b.~.h$&t~the kidtho*?n ot fhe ~q&unity idenfifimivii and sebs.tion h. I:.fewibiliiystudies I,. :i&niii?a1 praq. ,winre @dualed by .,eqi,ineerr while in Phase. II, @igvidiqg the -,raes (stpff & logistics) tb porticulorly affects communrties where difficult sstoblish,. W r ond more can)l'nuoos contod physical mnditiom qeon higher costs and with the communitik. Ihe cornad more compfex projects, os for example in +he rneth&iogies [in one koqe ffotfnal meeting) southern part of the Province (wherethere is employed, w@nof the: beat machoniqm for also a higherincidenceof poverty). +ng r n ~ p ~ wmmunicoting gnd ~ effecf@o$withthe communitv. Agoin, the time Thecommunityis expectedto pay20 percentof opd itiwurce eenshnints, combimedwrth ~l lad( the costof communitywo&s Inlnzerbnndo ond of undednding of a d paar Mining in C h o h ihscommunitiesmet 011 oiher seldon patticipatory meth&ogies, mu,hed in t(la crfteria and were willing to pay up to 40 Pm'@ odbpn'i-ig his less ,&.an sofisfoctbry instead of the cequid 20 p m n t shore of m&@dogy. wmmunih( works. However, rules on the roiios of cask of primary ond secondor, bn onalysisof the principl c~usesof %rap out" infmshucfure, which were ipteprekd os being follows. inflexible by Project M,dM not ollow these communitiestoporticipotein the Proiect. TableIll: D m W dueio ldenkfimfion/ Seldon Stmkgy-rc1 &+&on CdWa a) LsmihrHonsinIdenHIcdon/ Lack of dar8y on such rule, pwr SotdonSimteqyand OdacHMl donimeniation and poor comm.micntion M l d a mqmt ihot obligations and mpmnaibilities remained uncleor to both Man$ Pro(&. WILLS OD the @?io of costs of primory communNy. This d f a d in t h exdwdon # a ~ drid cammuniiy &. ore o critical irsur. number of communities, 40wifh a diM~ Primary.w d w ore hunk infm&dure (e.g: momflwible inwtprwan af mlm, might hov6 moia.re&, tuba wallsetcJond recjui* a high been good condidoks for pficipofin. 5 4 1 degreeqf&i@! expertiseta Get$&.These communi%es.ailher.opiwdout (wthey were only or+ btjing imple*n&d t h w h contrclcton. interesfed in o 6er)rrin mix i f irkmfmctum) or Community wok include simpler works such wcu. not sdedd.. CmmonHies wilting lo 0s street pavement, dminage etc. These ore pcrtiiapde and $-tare ogts, for exampk, v.@ heing i~piamsihd by the coinniunity ti+dudsddOeto erisfinginfmtructui& Tsri, hemselves (it should be ooti!d th@ H w r Khani). Hyever, dropsuts due k, Wrnu"ims ore nol wid QM) ~t~ndor15 d .&dim criteria did demaw somewhat in p d . thqt o$fitm:cto~ore mid to Pt\ose H, (19 parcent p pard to 19 pe+s& A erecurir works, due to owrnment.~les)lRules in Phase I), d n l y due to h e r informaw* Me that the cost of 'mary WMks should be and dari(lcotlon of rules on exibtiq about fiO peycmt of !+e cDst of mmmunily infroshudure. works, 'Tkiir rule Iim* fhe noture and $coped primay % o h thdt i;tn 'be un,&rtgken, thus dl~if~tllifYii~g.