Proceedingsp 3141 7 UNDP - World Bank Watrl Band Workshop on Water and Urban Environmental Sanitation (UES) Sanitation Plclse Program ~~~Policy Issues Program 4thNovember, 1998, Peshawar, NWFP, Pakistan. South Asia Region 11~~b W~~~~~~~~~~~~~~ II The workshop formed part of an Operational Staff call for Unified Urban Sanitatbn ongoing consultative process for P I UES (collection, treatment and Olicy disposal of solid and liquid waste: solid waste management,al household sanitation, sewerage sullage and storm water drainage) H I n m hi 11 policy development at Federal and Provincial levels in Pakistan, which is being facilitated by 4 ------r- RWSG-SA. It was a sequel to a _ 1 j national seminar on UES in March i k. 1998 which consulted * stakeholders at the senior level. Both meetings aimed to identify . - - - I _ operational problems in service , / _. provision so that these would : inform the policy-making process. 7' -" A process of brainstorming was 0_fi used to identify problems at i p L ground level; participants then , - -rX; discussed in working groups how - , a _ jr these might be resolved. This Participants at the workshop identified serious problems with UES resulted in recommendations in services in NWFP and called for a new, unified provincial policy. four main areas (details inside): This should lead to development of an effective UES strategy comprising: Participants included a wide range of operational staff with representatives from * Capacity-building for service providers municipalities, line departments * Effective use and enforcement of planning controls (including Public Health * Use of affordable and appropriate technologies Engineering, Housing and * Effective management of resources Physical Planning, Education and * Improved management information systems and data Health) and NGOs plus a number of donor representatives and * Education and awareness campaigns to promote user involvement ofcdotnortrepresentatives andand better hygienic practices consultants. The event was a joint venture by RWSG-SA and the IUCN-SPCS Participants also recommended that a clearly defined, participatory Unit which facilitates a regular process be established for policy development. To this end an forum for discussion of urban Action Plan was proposed, comprising the following environmental problems in the province. It is hoped that the participatory process for policy In the short-term: development will now progress in * Situation Analysis of the sector in NWFP NWFP and draw in a wider range * Consultation with other departments also involved in urban issues of stakeholders at every level. * Consultation with the general public This briefing note provides a * Joint meeting of stakeholders summary of the key issues and * Involvement of donors and better donor co-ordination recommendations arising from * Dissemination of the workshop statement to politicians the workshop, as a reference for stakeholders and a stimulus In the longer term: to the policy debate both in the frontier and nation-wide. * Pilot projects (2-3 towns of different size) . Dissemination of guidance on good practices throughout the sector Workshop Objectives Further details of the workshop recommendations are given inside. * To identify operational problems This is an abridged report; a fuller version is also available. in UES service delivery * To explore options for positive change. NWFP is experiencing rapid urban growth, especially in low-income areas and associated problems with sanitation WORKSHOP ON infrastructure. The government is Urbm E[nvkiomntal Sa itati on y ol qfr NWFJP struggling to provide services but the _.&m. tmajIr.4ba.419911ks1ar scale of the problems is enormous, and _ af- RWSG SA.WJC SKS Urit oW WROXANOfP given increasingly limited resources we need to look for new and innovative solutions for providing services to the urban poor. The government of NWFP is fully committed to the policy development - process and very much welcomes today's . workshop which should help us begin to _ . find solutions for improved service _ . delivery in our province. The purpose is _ Il to identify and explore the operational i@- /> problems in UES service delivery in - NWFP - in other words, the everyday Urban Sanitation Services in NWFP. difficulties and frustrations which you face on the ground in providing services. The urban population of Pakistan accounts for 35% of the country's total The policy-making process has to of 135 million. While the annual growth is 3% in the population as a respond to the realities of working in the whole the rate is 5% in urban areas, indicating a distinct rural to urban field and it is essential that we gain a true shift. An additional factor in NWFP is the huge Afghan refugee picture both of the problems and of your population. ideas for resolving them; that is, what kind of support do you need from the At present, most towns in NWFP lack basic sanitation infrastructure such policy level to help you find solutions to as drainage networks and safe excreta disposal. This and the the multitude of problems. contamination of shallow aquifers by wastewater from leaking or unlined Extract from opening address by drains, septic tanks and ponds combine to pose a serious risk to public Mr. Farid Khan, Secretary for Local health. Government and Rural Development, Government of Solid waste management in most towns is also rudimentary with only NWFP half of the waste collected while the rest is left to accumulate in open areas. Much of it is dumped indiscriminately in open drains and sewers where it causes blockages and flooding. No special measures are taken for the separation and safe disposal of hazardous waste and disposal facilities are often inadequate even for ordinary domestic waste. These problems are most acute in low-income and informal settlements .: '. which are expanding in the absence of any effective planning controls. There are no charges for solid waste collection and disposal in NWFP A * . - * and in several towns water revenues meet only 30-40% of the operation -.v L^P.- -- _7and maintenance costs. Though on average 80% of the urban population has access to a piped water supply, this is often irregular - often less than six hours per day - and suffers from both leakage and , '~ -~ =,*,$\contamination due to poor maintenance and the lack of treatment ;> t>.%_ _ _ facilities. Local Innovations in the Sector: The Community Infrastructure Project, Peshawar. This project aims to improve the living standard of low-income 11 011. it§. communities through initiatives in awareness-raising about health, hygiene and sanitation, community development and infrastructure upgrading. The project is implemented by government agencies and is the first of its kind in NWFP to involve communities not only in planning, designing and implementing the project but in contributions towards both capital costs and maintenance. The project is relatively new and it is too early to draw any policy conclusions from its outcome but it provides good opportunities to learn about the process of community involvement. I~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ Current Operational Problems in UES. A multitude of problems were identified in all aspects of UES and categorised as shown below. Those in the upper tier are primary problems which exacerbate those in the row below. Problems in the wider environment are beyond the remit of UES but the others could be overcome if effective policy was developed and adopted. There was a strong feeling in the group that lack of coherent policy is at the heart of current problems. Problems in Wider Planning and Policy Institutions Environment Co-ordination No policy No policy ~~Lack of sanitation staff Local climate Multiple agencies Municipal government handling UES does not exist Staff Inadequately trained Poverty No co-ordination No legal status Sanitary workers not Low literacy rate between agencies for katchi abadis accountable to sanitary inspectors Rural to urban migration Roles not defined Private sector not utilised Inappropriate use of No proper planning not utilised sanitary inspectors time Users not consulted Need to formulate and Need for institutional implement laws development Absence of maps, Centralisation Information, database Problems in Haphazardc- Political interference Institutionalization of a Haphazard construction - Poiia nefrneproject program controls not enforced Lack of accountability and transparency Poor monitoring and evaluation Inappropriate funds allocation ULCs not empowered to manage UES fully Technology and Solid Waste Community Infrastructure Management Inadequate community Appropriate/low-cost No proper garbage system involvement technologies not used Lack of treatment! No community Unserviceable machinery Recycling responsibility for O+M Improper drainage Pollution from No community System commercial entities organisation Shortage of funds for No land for disposal Community needs equipment awareness and motivation No ownership of services - O+M No care for others' rights in construction List Of Participants Examples of Operational Problems. ULCs Participants highlighted several problems as being very significant: Mohabat Shah Afridi, Municipal Committee, Akora Khattak Lack of Co-ordiation. . Between stakeholders affects all aspects of UES service provision. Agencies BashirAhmad make plans without reference to one another, and resources are not shared; Municipal Council, Haripur the result is duplication, waste and fragmented services. Dr. Mughal Baz, Municipal Corporation, Peshawar Co-ordination problems at every level. It has been estimated that as many as 24 government agencies are involved in UES in Atal-ul-Haq, NWFP. The lack of co-ordination between them goes to the highest level of management. Municipal Committee, Takhat Bhai This was illustrated by the Administrator for Peshawar Municipal Corporation who said Salim Javed that, while he had heard that a master plan for the city had been prepared, he had never Municipal Committee, Tank seen it. Gul SaifullahnKhan Lack of Management Information. Municipal oriteLManagers of UES services have inadequate databases for planning and Hashmatullah Khan organising their work, and much information which exists is not shared Municipal Committee, Mardan among agencies. Lack of access to reliable maps is a major problem for Hussain Khan municipal authorities. Municipal Committee, Hangu lhsanullah Khan Inadequate involvement of stakeholders. Municipal Committee, Chitral The public are not consulted in the planning and delivery of services and little is expected of them in terms of cost-sharing. Their involvement and Mohammad Hanif Khan co-operation in maintaining services is therefore very limited. The public Municipal Committee, Dera Ismail Khan should be seen not as beneficiaries but users with both rights and Khurshid Ali Khan obligations. A mass awareness campaign is needed to encourage their Municipal Committee, Bannu involvement and promote better hygiene. Warid Khan Municipal Council, Mardan Community confusion. Qazi Mushtaq, The result of poor communication with users became clear in one town when public bins Municipal Council Haripur for solid waste were first provided in the streets. No explanation of their purpose was MunicipalCouncil, Harpugiven and some people posted letters in them! Javed-ur-Rehman Qureshi Municipal Committee, Haripur There is also inadequate private sector involvement, due partly to a lack Abdul Rashid of successful pilots providing models of good practice in NWFP. Private Municipal Committee, Charsadda sector involvement could be beneficial, but must be regulated. Abdul Rehman Municipal Committee, Kohat NGOs Are playing a role in UES in some towns but more needs to be done to create mutual trust and confidence between NGOs and government Gul Rehman departments. Cantonment Board Office, Nowshera Akhtar Shah Inadequate Financial Resources. Municipal Corporation, Peshawar Funding for UES is inadequate but this is partly due to ineffective resource Mohammad Saddiq, management; funds are sometimes allocated to wasteful and inappropriate Municipal Council, Mansehra schemes when cheaper, simpler technical options could be used. Extra resources could therefore be generated through efficiency gains and wiser lnayut-ur-Rehman Saddozai deployment of funds. The lack of cost recovery through user charges or Municipal Cormittee, Dera Ismail Khan user investments exacerbates the problem. Charges should be applied, S. Hadi Hussain Shah though it may be difficult to assess users' capacity to pay. Municipal Corporation, Peshawar Mohamniad Yousuf, Municipalities' limited autonomy in revenue raising is a further constraint. Municipal Corporation, Peshawar Human Resource Management Muhammad Zahoor, Not only funds but staff are ineffectively deployed, with some allocated to Municipal Council, Dera Ismail Khan inappropriate duties while other important tasks are left understaffed. Many Line Agencies staff lack the technical training necessary for their job, and lines of authority Mohammad Ilyas, PHED, Peshawar are badly defined, with sanitary workers unaccountable to sanitary inspectors. All of these problems contribute to inefficient service delivery. Muhammad lqbal, LGRDD, Peshawar Siraj Anwar Khan, Peshawar Development Authority l ~~~---7 Wisal Khan, Peshawar Development Authority Options for Change. Two major themes in discussion were the need for better management Shahid Mahmood, PHED, Peshawar and co-ordination of service providers, and for increased involvement of stakeholders. The latter would necessitate links between the formal and Naeem Akhtar Naeed informal sectors particularly between katchi abadis and official services. Model arrangements to meet these needs were presented to stimulate Rashid Rehan, PHED, Peshawar further discussion. Irshad Safi, PHED Peshawar Improved co-ordination between agencies. Ehsan Ullah Model 1: Devt. Authority, Dera Ismail Khan One option would be to transfer all UES-related functions to one agency, including planning, infrastructure development, operation and Special Projects maintenance of services, ownership of government land, and the Zafar Iqbal, IUCN, Peshawar raising of local taxes and user charges. Abdul Rashid Khan Community. Infrastructure Project, Peshawar Model 2: Arshad Saman Khan, IUCN, Peshawar An alternative would be to leave line structures largely unchanged but establish a sanitation co-ordinating committee or Board under the Asghar Khan municipality; in a big city this may need geographical or technical sub- Community. Infrastructure Project, Peshawar committees. All relevant sector agencies in the town: government, NGO and private sector would have a representative on the Asif H Khan, IUCN, Peshawar committee. The role of the committee would be to: Atif Humayun Khan Env. Protection Agency, Peshawar * Assess the town's sanitation needs and prioritise interventions/ investments accordingly. Gul Najam Jamy, IUCN, Peshawar * Facilitate production of a Sanitation Development Plan Joachim Mgratz, IUCN, Peshawar * Harmonise the inputs of the various players: government, NGO and private sector Project Management Unit, Peshawar * Oversee the adoption of appropriate and consistent standards/ NGOs/ Universities technology Noman Ahmed, * Facilitate and provide a focus for user-provider dialogue Dawood College of Engineering and * No new investment without prior approval of committee Technology, Karachi Yasmin Doran, AWARE, Peshawar Many participants felt that model 2 had a lot of merit and was more Yasmin Doran, AWARE, Peshawar realistic for NWFP than model 1. Abid Ullah Jan, Sarhad Rural Support Corp., Peshawar Linking the Formal and Informal Sectors. Zaka Ullah Khan, Pak-CDP, Peshawar Zaka .lah Khan,PakCDPPeshawarMany people live in informal settlements and this is likely to Shaukat Sharar, continue. Excluding them from services would therefore exclude a Env. Protection Society, Saidu Sharif large part of the population. Most people in informal settlements already invest in sanitation without government assistance, but if Donors 'official' sewerage is laid it usually ignores community-built facilities Dr. Mohammad Abid, and it may be impossible to connect the two. Similarly, informal Dept. for International Devt., Islamabad operators dealing with solid waste collection and recycling are used Mohammad Akbar, RWSG-SA, by the community but their work is not recognised by, or co- Community Infrastructure Project, Peshawar ordinated with, official services. Raja Rehan Arshad, RWSG-SA, A way forward is needed for the upgrading of informal settlements Islamabad despite minimal government resources and part of the solution Sara Fatima Azfar, RWSG-SA, Islamabad could lie in finding and encouraging roles for the community and private sector, formal or informal. Jeremy Colin, RWSG-SA, Islamabad One way of dealing with this is to distinguish between house and lane Allah Javaya, RWSG-SA, level facilities, known as internal development, and trunk services and Sindh Pilot Project, Karachi. disposal, known as external development. An idea which has been Tayyaba Samina, RWSG-SA, proposed at national level is that users should pay the capital costs of Community Infrastructure Project, Peshawar internal development with the government responsible for external services. This concept was developed in the Orangi Pilot Project in Shaukat Shafi, Karachi where many thousands of households have built their own lane Swiss Agency for Devt. & Cooperation, lbd. sewers. However, care is needed to ensure proper planning and co- ordination between internal and external infrastructure. The NGO Pak- Consultants I Other CDP is experimenting with this model in a pilot project in Peshawar city. Abbas Hasan, Islamabad.___ _. Recommendations from Working Groups. Policy. 1. Develop a unified urban sanitation policy with a broad framework at federal level and specific policies at provincial level. 2. Recognize local government as the third tier under the constitution and provide a positive role for elected representatives. 3. Devolve power to local government for the planning and co-ordination of all UES functions via a committee with representatives from all service providers (government, NGO, private sector). 4. Define roles and responsibilities: make communities responsible for the development of house and lane-level sanitation (including capital costs), with agency as facilitator. 5. Introduce cost sharing for operation and maintenance. Apply user charges according to capacity to pay. 6. Accept the informal and private sectors as partners and facilitate them 7. Introduce mandatory planning processes at town/district level and empower local government to enforce development controls and bye-laws. 8. Enact legislation to operationalize the policy. Operational Strategy. Working with Communities. * Hold regular elections for local bodies * Make basic health and hygiene education part of the school curriculum. * Initiate a mass awareness campaign on policy and sanitation issues * Institutionalise community participation in all stages of service provision. . Involve women effectively. Technology and Solid Waste Management. . Research, consult users and adopt affordable, appropriate technologies. . Encourage privatization of solid waste disposal . Work with stakeholders in selecting waste disposal sites * Consider solid waste as a resource and market it Management and Planning at the Municipal Level. . Build local government capacity to fulfil its functions. . Formulate and enforce master plans at all urban levels. . Discourage new katchi abadis; try to ensure minimum services are provided in existing settlements. . Enhance the revenue-generation capacity of local government and ensure effective management of the resources generated. . Develop effective monitoring and evaluation mechanisms. . Ensure all necessary maps and other management data are available. [I _.___ Extract from Remarks by Mr. Mohammad The Policy Development Process. Yousuf, Administrator Peshawar MC. The provincial government recogniz Participants stated that a clearly defined, participatory process should The provincial government recognizes be established for UES policy development in NWFP. This should be environmental sanitation. In order to publicized widely in order to involve all players and should be develop the policy and reform institutionalized to give itformal status and encourage the adoption operational level issues there is a need of recommendations by policy makers. to formulate a policy development process, which should ensure As a first step, a number of short-term actions were suggested which consultation with stakeholders at the should form part of the policy development process: national, provincial, local and community levels. * Conduct a Situation Analysis of the sector in NWFP. This Forums should be organized on policy should review all aspects of the current situation in UES in the and explore further some of the issues frontier: social, health, technical, economic, financial, environme- discussed today, including: ntal, etc. and provide the basis for informed planning and debate. * the potential for communities to RWSG-SA has recently commissioned a situation analysis of the participate in consultation and cost- UES sector nation-wide, with separate studies for each province. sharing The report for NWFP will be available shortly and should meet the * the role of political representatives need identified by participants. * need to focus on developing a civic sense * Consult related departments which were not represented at the * appropriate technology workshop. * appropriate skill/capacity building * the concept of privatized solid waste * Consult the general public on their views on UES problems, collection ( there are no good the changes needed and the role they are willing to play in UES examples of this in NWFP) services. This could be done via a structured questionnaire and * people's unwillingness to pay more focus/ interest group discussions. Journalists could also be a taxes channel for feedback from the community. IUCN- The World Conservation Union * Hold a joint meeting of stakeholders: government, NGOs, Sarhad Provincial Conservation private sector and users to discuss the needs and views of each Strategy Unit and look for ways of improving co-operation and co-ordination. In The IUCN-SPCS Support Project aims particular, it should enable policy-makers to appreciate the issues to facilitate the implementation of the and needs at operational level. Sarhad Provincial Conservation Strategy (SPCS) a policy framework * Involve donors and achieve better donor co-ordination so that for sustainable development of NWFP. policy development becomes a unified process. The core areas of SPCS are: Poverty Alleviation and Population, Good Governance, Environmental Education, . Disseminate the workshop statement to politicians and Urban Environment, Natural Resource arrange study tours for them to provide an appreciation of Management, Sustainable Industrial current problems and issues, and to learn about good practice. Development, Cultural Heritage Conservation and Sustainable Tourism, In the longer term, the following were also recommended: and Institutional Development. Regional Water and Sanitation * Develop pilot projects (2-3 towns of different size) in order to Group - South Asia develop models of good practice in UES service provision and The mission of the Program is to help management. poor people gain sustained access to improved water and sanitation services. * Disseminate guidance on good practices throughout the sector. Its current strategy in Pakistan is focussed on three areas: For further information. * Policy development, If you have any comments, queries or suggestions concerning the * Development and promotion of good meeting or the policy development process, please contact: practices, Gul Najam Jamy Raja Rehan Arshad * Dissemination of sectoral learning. Director, IUCN-SPCS Unit RWSG-SA, Team Leader In addition to the dialogue on policy Planning, Environment & World Bank, PO Box 1025 development, current initiatives include Development Department Shahrah-e-Jamhuriat compilation of a database of sector Civil Secretariat, Police Road Ramna (G-5/1) organisations and projects, and work Peshawar Islamabad. on pilot projects for city-wide planning Tel: 091 9210550, 271728 Tel: 051-819781-6 based on the 'Strategic Sanitation Fax: 091 275093 Fax: 051-826326 Approach' E-mail: Land@Focal.Pwr.Sdnpk.Undp.Org E-mail:sansar@worldbank.org