WSUP MADAGASCAR
OUTLINING A SANITATION STRATEGIC PLAN FOR THE AGGLOMERATION OF ANTANANARIVO
PHASE 1: ASSESSMENT OF THE SANITATION SITUATION
APRIL 2010
20 127 R1
WSUP MADAGASCAR OUTLINING A SANITATION STRATEGIC PLAN FOR THE AGGLOMERATION OF ANTANANARIVO PHASE 1: ASSESSMENT OF THE SANITATION SITUATION
TABLE OF CONTENTS
OBJECT OF THE MISSION ...... I
1. SYNTHESIS AND CONCLUSIONS ...... II 1.1. OVERALL SITUATION IN TERMS OF SANITATION ...... II 1.2. STRATEGIC ISSUES IN THE AREA OF SANITATION ...... III 2. BACKGROUND OF THE TOWN OF ANTANANARIVO AND ITS SUBURBS ...... 1 2.1. PHYSICAL ENVIRONMENT OF THE TOWN AND ITS SUBURBS ...... 1 2.2. PHYSICAL CONDITIONS ...... 2 2.2.1. CLIMATOLOGY ...... 2 2.2.2. GEOMORPHOLOGY ...... 2 2.2.3. GEOLOGY ...... 3 2.2.4. HYDROGEOLOGY ...... 4 2.2.5. SYNTHESIS ...... 4 2.3. SOCIAL AND ECONOMIC DATA ...... 5
3. LEGAL AND INSTITUTIONAL FRAMEWORKS ...... 7 3.1. LEGAL FRAMEWORK ...... 7 3.1.1. KEY LEGAL TEXTS RELATING TO SANITATION ...... 7 3.1.2. CONTRIBUTION OF THE WATER CODE TO THE LEGAL FRAMEWORK OF SANITATION ...... 7 3.1.3. CONTRIBUTION OF ACT # 95-035 AUTHORIZING THE CREATION OF ORGANIZATIONS IN CHARGE OF URBAN SANITATION AND SETTING USER’S FEES FOR URBAN SANITATION, IMPLEMENTING DECREE 93-173, IMPLEMENTING DECREE 2009-1199, TO THE LEGAL FRAMEWORK OF SANITATION ...... 8 3.1.4. CONTRIBUTION OF DECREE 2008-881 ORGANIZING THE URBAN SANITATION OF THE TOWN OF ANTANANARIVO TO THE LEGAL FRAMEWORK OF SANITATION ...... 9 3.1.5. CONTRIBUTION OF DECREE # 63 -192 OF MARCH 27, 1963 SETTING THE TOWN PLANNING AND HABITAT CODE AMENDED BY DECREE #69-335 AS PART OF THE LEGAL FRAMEWORK OF SANITATION ...... 10 3.1.6. CONTRIBUTION OF DECREE 2008-319 CREATING THE NATIONAL SANITATION POLICY AND STRATEGY (NSPS) PAPER TO THE LEGAL FRAMEWORK OF SANITATION ...... 10 3.1.7. CONTRIBUTION OF ACT # 95-034 AUTHORIZING THE CREATION OF ORGANIZATIONS IN CHARGE OF THE PROTECTION AGAINST FLOODS AND SETTING THE USER’S FEE FOR PROTECTION AGAINST FLOODS AND DECREE #2002-979 AS PART OF THE LEGAL FRAMEWORK OF SANITATION ...... 11 3.2. INSTITUTIONAL FRAMEWORK ...... 11 3.2.1. DISTRIBUTION OF ROLES AND RESPONSIBILITIES ...... 12 3.2.2. INVESTMENTS AND MANAGEMENT RESPONSIBILITIES ...... 15 3.3. CONCLUSION AND RECOMMENDATIONS ...... 18
4. NATIONAL POLICIES AND STRATEGIES ...... 20 4.1. BACKGROUND ...... 20
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4.2. CONTRIBUTION OF THE SAFE WATER AND SANITATION POLICY AND STRATEGY STATEMENT TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 20 4.3. CONTRIBUTION OF THE TOWN PLANNING CODE TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 21 4.4. CONTRIBUTION OF THE WATER CODE AND IMPLEMENTING DECREES TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 21 4.5. CONTRIBUTION OF ACT #95-035 AND IMPLEMENTING DECREE TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 21 4.6. CONTRIBUTION OF APIPA ACT AND DECREE OF IMPLEMENTATION TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 22 4.7. CONTRIBUTION OF THE NATIONAL DIORANO-WASH STRATEGY OF 2009 TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 22 4.8. CONTRIBUTION OF THE NATIONAL SANITATION POLICY AND STRATEGY (NSPS) TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY ...... 22 4.9. CONCLUSION AND RECOMMENDATION ...... 23
5. COORDINATION OF STAKEHOLDERS ...... 24 5.1. BACKGROUND ...... 24 5.2. COORDINATION THROUGH IMPLEMENTATION OF NSPS ...... 24 5.3. COORDINATION THROUGH THE DIORANO-WASH PLATFORM ...... 26 5.4. CONCLUSION AND RECOMMENDATIONS ...... 27
6. ASSESSMENT OF THE SANITATION SERVICES SITUATION ...... 28 6.1. BASIC SANITATION ...... 28 6.1.1. ACCESS TO EXCRETA MANAGEMENT SYSTEMS ...... 28 6.1.2. DRAIN CONDITIONS ...... 32 6.1.3. DISPOSAL OF DRAINAGE MATTERS ...... 33 6.1.4. FINANCING THE SERVICE...... 34 6.1.5. CONCLUSION AND RECOMMENDATIONS ...... 35 6.2. WASTEWATER ...... 36 6.2.1. THE CURRENT COLLECTION SYSTEM ...... 36 6.2.2. MAIN PROBLEMS ENCOUNTERED ...... 36 6.2.3. FINANCIAL AND INSTITUTIONAL ASPECTS ...... 37 6.2.4. RECOMMENDATIONS FOR INTERVENTION ...... 37 6.3. DOMESTIC WASTE ...... 39 6.3.1. CURRENT WASTE MANAGEMENT SYSTEMS ...... 39 6.3.2. MAIN PROBLEMS ...... 46 6.3.3. FINANCIAL AND INSTITUTIONAL ...... 48 6.3.4. RECOMMENDATIONS FOR INTERVENTION ...... 48 6.4. STORM-WATER ...... 51 6.4.1. CURRENT DRAINAGE SYSTEMS ...... 51 6.4.2. PRIORITY AREAS IN TERMS OF DRAINAGE ...... 56 6.4.3. FINANCIAL AND INSTITUTIONAL ASPECTS ...... 59 6.4.4. RECOMMENDATIONS FOR INTERVENTION ...... 59
7. FINANCIAL RESOURCES MOBILIZABLE FOR SANITATION SERVICES60 7.1. REMINDER ON TEXTS RELATING TO SAMVA ...... 60
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7.2. FINANCIAL RESOURCES MOBILIZED AND MOBILIZABLE FOR SANITATION SERVICES . 61 7.2.2. IMPROVEMENT OF FINANCIAL RESOURCES ...... 62 1.1. DOMESTIC WASTE MANAGEMENT AT THE LEVEL OF THE CUA ...... 1 1.1.1. COLLECTION OF DOMESTIC WASTE ...... 1 1.1.2. DISPOSAL CONDITIONS ...... 9 1.1.3. ASSESSMENT OF FOKONTANYS UNSERVED IN TERMS OF WASTE COLLECTION INFRASTRUCTURE ...... 15 1.1.4. FINANCING THE SERVICE...... 20 1.2. DOMESTIC WASTE MANAGEMENT IN THE COMMUNES OF THE FIFTAMA ...... 22 1.2.1. HOUSEHOLD ACCESS TO THE SERVICE ...... 22 1.2.2. COLLECTION OF DOMESTIC WASTES ...... 25 1.2.3. DISPOSAL CONDITIONS ...... 33 1.2.4. ASSESSMENT OF THE SITUATION IN COMMUNES WITHOUT ANY WASTE MANAGEMENT SERVICE ...... 41 1.2.5. FINANCING THE SERVICE...... 43 1.3. ONGOING PROGRAMS IN THE AREA OF DOMESTIC WASTE MANAGEMENT ...... 43 1.3.1. IMPROVING THE SAFETY OF THE LANDFILL IN ANDRALANITRA ...... 43 1.3.2. INTEGRATED MANAGEMENT OF SOLID WASTE (IMSW) IN THE GREATER ANTANANARIVO .. 43 1.3.3. IMPROVING THE MANAGEMENT OF DOMESTIC WASTE IN AMPITATAFIKA ...... 43
Annex 1 – Terms of reference of the mission Annex 2 – List of individuals / institutions consulted Annex 3 – Assessment of the situation of domestic waste collection services Annex 4 – Report on the Phase 1 Workshop held on April 13, 2010
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LIST OF TABLES
Table # 1 -Impacts of physical constraints on the sanitation of the town of Antananarivo ...... 4 Table # 2 -Types of toilettes (CUA) ...... 29 Table # 3 -Location of the landfills and dumps ...... 46 Table # 4 -Incidences of the physical constraints on the drainage of the urban ...... 53
LIST OF GRAPHS
Graph # 1 -Normal climate data in Antananarivo ...... 2 Graph # 2 -Geomorphology of Antananarivo ...... 3 Graph # 3 -Sanitation sector: institutions and responsibilities ...... 12 Graph # 4 -Principles of the sanitation sector’s financing mode ...... 15 Graph # 5 -Institutional organization in charge of implementing NSPS ...... 25 Graph # 6 -WASH structure ...... 26 Graph # 7 -Typologie des systèmes de gestion des excréta ...... 28 Graph # 8 -Accès aux différents systèmes de gestion des excréta ...... 30 Graph # 9 -Types of latrines used – peripheral Communes ...... 31 Graph # 10 -Estimation de la part des fosses sèches vidangeables en 2003 ...... 31 Graph # 11 -Drainage methods - CUA ...... 32 Graph # 12 -Modes de vidange – Communes périphériques ...... 33 Graph # 13 -Fréquence de vidange – Communes périphériques ...... 33 Graph # 14 -Disposal sites of the drain waste – Peripheral Communes ...... 34 Graph # 15 -Zoning of the Communes per type of waste management service ...... 40 Graph # 16 -Collection capacity of the current dumpsters in the CUA ...... 42 Graph # 17 -Rate of non-served fokontany in collective dumpsters in the CUA ...... 43 Graph # 18 -Rate of non-served populations in collective dumpsters in the CUA ...... 43 Graph # 19 -Collection capacity of the current dumpsters in the peripheral Communes ...... 44 Graph # 20 -Location of the waste disposal sites ...... 45 Graph # 21 -Major upland catchment basins of the CUA ...... 52 Graph # 22 -Pattern of urban growth of the urban Southern plain (BPPA, 2000) ...... 54 Graph # 23 -The drainage system of the urban plain ...... 55 Graph # 24 -Major critical areas in terms of drainage ...... 57
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ABBREVIATIONS AND ACRONYMS
AGETIPA Agency in charge of public interest works and development ANDEA National water and sanitation authority APIPA Authority in charge of protecting the plain of Antananarivo against inundations BMH Municipal office of hygiene BNGRC National office for risk and disaster management BPPA Office of the project to develop the plain of Antananarivo BPPAR Office of the projects to promote and develop regions CUA Urban commune of Antananarivo DTMI/CUA Technical directorate of infrastructures maintenance in the CUA DW Domestic Waste EPIC State-owned industrial and commercial establishment FIFTAMA Group of communes peripheral to Antananarivo HJRA Hospital Joseph Ravoahangy Andrianavalona IFPB Land and property tax IMSW Integrated Management of Solid Waste INSTAT National institute of statistics ITCZ Inter-Tropical Convergence Zone KP Kilometric Point NGO Non Governmental Organization NR National Road NSPS National Sanitation Policy and Strategy ONE National Environment Office OPCI-GIDS Inter-commune cooperation public organization for integrated management of solid waste PIRD Ikopa perimeter – right bank RE User’s fee on excreta REU User’s fee on sewage ROM User’s fee on domestic waste SAMVA Autonomous maintenance service of Antananarivo SICZ Sub-Indian Convergence Zone SSAP Sectoral Strategy and Actions Plan for Water and Sanitation TAFB Tax attached to built property WSUP Water &Sanitation for the Urban Poor
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OBJECT OF THE MISSION
The development of a sanitation strategic plan is meant to answer an increasingly urgent need perceived by all and address general concerns relating to the protection of public health and the environment and the improvement of the populations’ comfort. The low rate of access to sanitation and its sluggish increase, as observed in the town of Antananarivo and its suburbs, show that addressing these concerns through tangible and effective actions has been far from easy, as a result of numerous constraints (technical, institutional, financial, etc.). The planning approach, which long prevailed in the field of sanitation in Madagascar and focused on setting up of infrastructures, contributed to this situation. As opposed to this, the strategic approach focuses on creating a global environment that is favorable to gradual but steady development of sanitation services as a whole. The mission’s key objective is to identify the strategic issues relating to sanitation (Phase 1) based on an assessment of the sanitation situation in the Urban Commune of Antananarivo and the peripheral communes of FIFTAMA with a focus on the populations’ access to services, and then to outline a strategic plan for granting sustainable access to sanitation services to the town and its suburbs’ populations as a whole (Phase 2). The present report sets forth the key results of the assessment of the sanitation situation in the town and its suburbs. It specifically describes the strategic issues identified, along with intervention recommendations for the different components of sanitation.
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1. SYNTHESIS AND CONCLUSIONS
1.1. OVERALL SITUATION IN TERMS OF SANITATION
Individual sanitation is the type of sanitation that prevails in the Urban Commune of Antananarivo and in the twenty-nine (29) peripheral communes that make up OPCI FIFTAMA. The large majority of the populations of the town and its suburbs use traditional latrines of the dry pit type, i.e. ¾ of CUA’s inhabitants and 95% of those of FIFTAMA communes. As a result of the municipal services’ poor capacity, the drainage of pits is mainly ensured by private operators who are essentially informal small businessmen working under unhygienic conditions (direct handling of fecal matters). In the absence of appropriate disposal areas for the drainage products and industries to process or valorize these products, the habit is to directly dispose of them in the wilds. In CUA, drainage products are directly disposed of into river Ikopa. Regarding Domestic Wastes (DW) management, CUA has an independent service (SAMVA) that covers all six (06) arrondissements. However, forty (40) fokontanys or so, representing 17% of the commune’s total population – a large part of which lives in the urban plain –do not yet have access to this service. More than half of FIFTAMA communes (19 communes out of 29) have DW services managed under municipal control. These services’ coverage rates range between 30% and 60%. All communes having a DW service also have sites for disposing wastes (disposal areas or dumps). CUA is the only commune equipped with a collective sewerage system which serves 17% of its population and is 175km long in total, 20km of which are exclusive to waste waters (separate system). The wastewaters collected by the separate system are directly discharged in river Ikopa without prior treatment. Elsewhere, wastewaters are directly evacuated in storm systems or spread on the ground, in areas where the housing density allows for it. Forty (40) fokontanys or so of CUA are regularly faced with flooding problems. Most of these fokontanys are located in the urban plain, where drainage is subject to heavy physical constraints. In the FIFTAMA communes, the slums along river Ikopa are the only areas that are faced with flooding problems, as the most of urbanization in these communes concentrates on hills.
Health conditions in the fokontanys of the urban plain that are liable to flooding are especially critical, as a result of the combined effects of liability to flooding, prominent use of traditional latrines, poor access to sanitation services (domestic wastes and wastewaters), and the high population density. Sanitation interventions should target these fokontanys in priority.
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From an institutional point of view, the supply of sanitation services involves several actors. The distribution of roles and responsibilities among these actors is not always clearly understood, although the different texts in force (acts, decrees, policies, and strategies) should allow for delineating them. Moreover, there is lack of support measures to the implementation of the policies and strategies, as demonstrated by the communes’ extremely poor capacity to mobilize the necessary resources to finance existing sanitation services.
1.2. STRATEGIC ISSUES IN THE AREA OF SANITATION The assessment conducted allowed for identifying technical and non technical priority interventions for the different components of sanitation. The conclusions of the assessment show that following issues are of strategic scope:
A. Capacity building of the communes The provision of sanitation services is currently under the communes’ direct responsibility. The gaps and malfunctions observed in existing sanitation services’ result mostly from the communes’ incapacity to fully take on their role as owner and contracting authority, especially as regards the mobilization of financial resources.
B. Management of excreta Current practices expose the town and its suburb to real major fecal hazards. As individual sanitation is and will remain the predominant sanitation mode, it appears essential to develop a strategic plan specifically for the management of excreta, based on the “Sani market” approach, for the town and its suburbs.
C. Promotion of hygiene Prevailing practices reflect that the populations’ awareness of the health risks associated with wastes (liquid and solid) is poor, as indicated by their low demand for hygienic equipment. Due to the prevalence of individual sanitation, the development of access to sanitation services will be directly dependent on the households’ willingness to invest in equipment and pay the associated maintenance costs. Promoting of hygiene (information, education, and communication) appears fundamental to developing the households’ willingness to invest in sanitation.
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2. BACKGROUND OF THE TOWN OF ANTANANARIVO AND ITS SUBURBS
2.1. PHYSICAL ENVIRONMENT OF THE TOWN AND ITS SUBURBS Historically, the town of Antananarivo, capital of Madagascar, originated from its rice plain. The original town was perched on the hill of Analamanga, one of the twelve (12) sacred hills of the Merina Kingdom and grew into a site that could accommodate 200,000 inhabitants. The population’s growth extended the town in the immediate surroundings of the hill of Antananarivo (meaning “town of thousands”), which are commonly known as the “internal area” and cover a surface area of 6,500ha, as well as in peripheral sectors, which are known as the external “area”. Together, the two (02) areas make up the Greater Antananarivo or Greater Tana – the Urban Transport Plan’s study area. The main features of the internal area’s relief include: • a plain in course of urbanization between river Ikopa and Channel Andriantany, that has been subject to a large hydraulic project of drainage and protection against floods; • two (02) zones separated by the marsh of Masay with heavily finger outlines: to the south, the Rova, Analakely, and the heights of the University and to the north, the residential areas of Ivandry, Analamahitsy, and Androhibe; • a distinctive relief characterized by four parallel ridges aligned from North to South, namely the ridges of the Rova, the University, Ankatso/Ambatobe, and Ambohibe/Ilafy. Each ridge is connected with the next one by a sort of small spur (or pass) that separates valleys into catchment areas that face each other and drain either to the north or to the south. The first developments were undertaken at the ridges’ level then they spread on the spurs, and currently, they are stretching to the valleys. Access roads were often developed after – instead of before –the extensions occurred. The external area includes five (05) distinct sectors served by the five (05) national roads (NR) departing from the Capital, namely: • NR4 in the northwestern sector; • NR1 in the western sector; • NR7 in the southern sector; • NR2 in the eastern sector; • NR3 in the northeastern sector
These sectors include plains liable to floods and low-altitude reliefs.
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2.2. PHYSICAL CONDITIONS
2.2.1. CLIMATOLOGY Antananarivo is located on the Highlands, where the humid tropical climate, characterized by clear seasonality of rainfall and temperatures, prevails. The inter-annual average rainfall and temperatures are respectively in the region of 1,300mm and 17.3°. On average, there are 153 days of rain per year. Monthly average rainfall and temperatures are shown in Graph #1, allowing us to see that most of the rainfall is recorded between the months of October and April, the period coinciding with the warm season. Maximal rainfall is recorded in January. There is little variations as regards average temperatures (between 14°C and 21°C), unlike rainfall.
Graph # 1 - NORMAL CLIMATE DATA IN ANTANANARIVO
2.2.2. GEOMORPHOLOGY Antananarivo is located on the Malagasy Highlands, whose predominant geomorphologic features include a hilly area consisting of lateritic hills and low areas comprised of alluvial plains (where rivers usually flow) and occasional marshes. The map of Antananarivo in Graph #2 shows these two (02) types of relief, along with the town’s river system comprised of river Ikopa and its main tributaries – namely Mamba, on the right bank and Sisaony and Andromba, on the left bank. This system converges upstream of the rocky sills located further to the North, approximately 25km from town (Bevomanga and Tendro/Farahantsana). These sills control the alluvial plains’ overall level by holding off the waters’ overall flow. The influence of geomorphology on the direction of the wastewater and storm waters’ flow comes from the steep slopes on hillsides combined with the very low gradient slopes in the plains. Whether on the surface or underground, waters always flow from hill to plain.
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Graph # 2 - GEOMORPHOLOGY OF ANTANANARIVO
2.2.3. GEOLOGY Two (02) sorts of geological formations are found in the region of Antananarivo, namely: • magmatic and metamorphic rocks: granite, gneiss, migmatite; • alluviums of the plain made up of clay, peats, and sandy clays. The soils on magmatic and metamorphic rocks are “red laterites” and lateritic clays. In alluvial plains, soils are made up of plastic clays and peats (used for farming rice and making bricks), as well as alluvial sandy clays.
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Laterites and lateritic clays are argillaceous formations with a high total porosity (44% to 50% according to Castany) and very low permeability (10-9m/s according to Castany). This accounts for the fact that lateritic and argillaceous soils can absorb very large quantities of water and release them at an extremely low velocity of flow.
2.2.4. HYDROGEOLOGY The following ground waters are found in the region of Antananarivo: • under lateritic hills, from top to bottom: – unconfined groundwater in kaolinic sandy clays; – semi-confined groundwater in phaneritic or micaceous arena; • under the alluvial plain, from top to bottom: – confined groundwater in washed-out sand; – confined groundwater in phaneritic or micaceous arena. Ground waters in weathering formations (kaolinic sandy clays and micaceous arena) are generally located in rather argillaceous aquifers. Their porosity is high (around 40%) whereas permeability is low (5.10-5m²/s to 10-4m²/s). It follows that these formations absorb a large amount of water and release it at an extremely low velocity of flow. The alluvial groundwater is captive and water is in load. The groundwater’s level is very close to the surface and at times, especially during the rainy season, it emerges to the surface, creating more or less permanent marshes and water puddles.
2.2.5. S YNTHESIS The table hereafter summarizes the main physical constraints on sanitation and their impacts.
Table # 1 - IMPACTS OF PHYSICAL CONSTRAINTS ON THE SANITATION OF THE TOWN OF ANTANANARIVO
Constraints Impacts on sanitation
(1) Almost flat alluvial plain With (5): Large gravitating sewerage (2) Single outfall located far from infrastructures (long large-section Geomorphology storm waters pipes) (3) Polderization of the urban With (6): Risk of jamming of the plain gravity-flow drainage (4) High level of the groundwater Channels, basins, and pits must be Hydrogeology during the rainy season, in plains dug at limited depth
(5) Intensity of rain (Oct-Dec) Need for high-conveyance pipes for evacuation at peak flow
Climatology (6) Long rainy periods (Jan-Apr) Restriction of gravity-flow drainage in Ikopa (7) The rainy and warm season coincide
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Constraints Impacts on sanitation
Health issue: liability to flooding, DW collection, and wastewater management are closely related
2.3. SOCIAL AND ECONOMIC DATA In 2003, the labor force counted approximately 560,000 people, 9% of which were employed by the public administration, 2% by public companies, 33% by the formal private sector, and 56% by the informal sector1. The formal private sector mainly comprises services and industries dominated by the textile industry, operating as free zones and located for the most part, in the South of town (Tanjombato) and in the northern and western sectors (Ankorondrano and Andraharo). In 2004, the rate of unemployment in Antananarivo amounted to 5.9% (INSTAT/DSM EPM 2004). According to INSTAT’s2 data, average annual salaries in Antananarivo, in 2004, amounted to: • MGA4,000,000/year for executives; • MGA1,600,000/year for qualified employees; • MGA650,000/year for employees without qualifications. In broad outline, three (03) types of households can be singled out: Average- to high-income households: this population is generally connected with the safe water network and has a water-borne sewerage system or a septic tank, is sensitive to the improvement of sanitation and more generally, to the improvement of the urban living environment. Low- to average-income households: most of this population uses public standpipes and dry pits. It is sensitive to the improvement of sanitation, but in the sense of better management of public infrastructures (public standpipes, washstands, etc.) and increase of their density (the lack of infrastructures causes waste of time and overcrowding). Extremely low-income households: this population lives in precarious to extremely precarious conditions and has little knowledge of life in urban areas, as it has recently emigrated from rural areas. The population living in CUA essentially works in industries and service rendering, with less than 20% working in the sector of agriculture. On the other hand, populations in the peripheral communes are more rural, with more than half of the population working in the primary sector.
1 Source: The Louis Berger Group, Inc. Urban Transport Plan– City of Antananarivo. 2003. 2 Source: Periodic household survey 2004 – published in January 2006 by INSTAT.
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However, some peripheral communes show more urban features (especially in the surroundings of free zones): Tanjombato, Ivato aéroport and Ivato Firaisana, Ampitatafika, Ankadikely, and Andoharanofotsy. Given the high rates of population growth in the peripheral areas, there is tendency towards urbanization: decrease of agricultural activities and increase of urban activities. The residential areas in the town of Antananarivo extended towards communes where settlement was easy (conterminous communes, trunk roads, etc.). These communes were: either naturally intended as extensions of the dwelling areas of the urban commune of Antananarivo (cité Itaosy, etc.); or occupied in a less organized manner by a middle or well-to-do social class of the population of Antananarivo, who wished to live in a clearly separate space and dwelling, taking advantage of the then low cost of land acquisition. (Case increasingly frequent, the population comes from the commune itself). Regarding habitat, five (05) types can be identified in the town of Antananarivo, in very broad outline: Precarious habitat: dwellings are made with simple bricks (often unbaked bricks), with no development around the house (mud floor and no wastewater or storm water drainage system); Local habitat of the modern type: dwellings are made with coated baked brick walls, the property is often fenced in a wall and has a wastewater and storm water drainage system (which is often basic in most cases); Traditional habitat: two-storey dwelling made with baked bricks, the property is often fenced in a wall and has a wastewater and storm water drainage system (which are also basic in most cases); Residences and housing developments: these buildings are mostly made in breezeblocks and are often equipped with a full wastewater and storm water drainage system; Villas: modern, solid constructions most often equipped with a self-contained drainage system of the septic tank type. Precarious habitats are isolated in agricultural areas, in the middle of the plain liable to flooding. In other words, they are mainly located out of urbanized areas. In the past fifteen (15) years, several free zones established themselves in Madagascar, with most of them choosing to settle in suburban areas where they could find sufficient space as well as access to basic public services (water, electricity, telecommunications, administrative services, etc.) and be in the proximity of abundant hand labor. Lastly, the communes located along trunk roads naturally form entrance areas to the capital, giving rise to a particular extremely dense and thread-like type of neighborhoods with an open background. The case of the commune of Sabotsy Namehana, where immigrants represent 65% of the population clearly illustrates the significance of such population movements. Furthermore, the migrating population is mainly comprised of youth, i.e. people of reproductive age, which accounts for the high rates of population growth.
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3. LEGAL AND INSTITUTIONAL FRAMEWORKS
3.1. LEGAL FRAMEWORK
3.1.1. KEY LEGAL TEXTS RELATING TO SANITATION The Malagasy Government conducted an assessment of the water, sanitation, and hygiene sector in 1991, as part of the development of the “Sectoral strategy and action plans for water and sanitation” (SSAP) paper, which led, among others, to the writing up of the “Water and sanitation sectoral policy statement” in 1997, Act #98-029 creating the Water Code in 1998, followed by thirteen (13) implementing decrees in 2003. These texts covered both safe water and sanitation. As the importance of sanitation became widely acknowledged, the National Sanitation Policy and Strategy (NSPS) paper was adopted through Decree #2008-319, in November 2008. These reference documents on sanitation supplement the legal texts in place since 1963, namely: • Decree # 63 -192 of March 27, 1963 establishing the Town Planning and Habitat Code, amended by Decree # 69-335 in 1969; • Act # 95-035 authorizing the creation of organizations in charge of urban sanitation and setting user’s fee for urban sanitation in 1995; • Decree # 96-173 reorganizing the Autonomous maintenance service of the town of Antananarivo (SAMVA), in 1996; • Decree 2008-881 organizing urban sanitation of the town of Antananarivo in 2008; • Decree #2009-1166 restructuring and reorganizing the Autonomous maintenance service of the town of Antananarivo; • Act # 95-034 authorizing the creation of organizations in charge of the protection against floods and setting the royalties for protection against floods; • Decree # 2002-979 reorienting the Authority of Protection of the Plain of Antananarivo against Floods; • Decree on the classification of surface waters and wastewater treatment technologies (e.g.: CNRIT).
3.1.2. CONTRIBUTION OF THE WATER CODE TO THE LEGAL FRAMEWORK OF SANITATION Regarding the sanitation sector, the Water Code provides the following specifications and guidelines on:
• The protection of the water resources’ quality, especially protection against water pollutions (Article 12: “Any individual or corporation, whether public or private, who exercises an activity that generates pollution or could pose hazards for water resources or
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the environment’s hygiene, must consider all necessary actions to eliminate or prevent such observed or potential hazard.” • The populations’ obligation to dispose of wastes (Article 15 “Any individual or corporation, who produces or holds wastes that may have harmful effects on soil or flora and fauna, pollute the air or waters, be harmful to human health and the environment, is bound to ensure their disposal or treatment”… such disposal “must be done under the communes’ responsibility” (Article 16). • The definition of sanitation “Sanitation is, as defined in the present Code, any measure aimed at removing causes of insalubrities, so as to satisfy to the needs relevant to the protection of water resources, the convenience of neighborhood, the populations’ health and safety, public health, agriculture, and the protection of nature and the environment” and definition of collective sanitation: “collective treatment of domestic wastewaters refers to the consumers’ evacuation and treatment of wastewaters after their distribution by safe water supply systems” […] “wastewaters of domestic origin as well as storm water must go through collective sanitation”.
• The communes’ role in wastewater disposal: “Each jurisdiction is responsible for … ensuring the disposal of waters of all kinds” […] “access to collective treatment of domestic wastewaters … [is]… a public service under the commune’s responsibility”.
• The possibility of resorting to individual wastewater treatment: “Individual sanitation may be authorized if the implementation of a collective infrastructure would entail excessive constraints from an economic or technical point of view or may prove harmful to the quality of receiving surface waters.” • The need to protect watersheds: “To protect rivers, lakes, ponds, and any water surfaces and streams, and ground waters, disposal of insalubrious matters or any object that may cause quantitative or qualitative degradation of the water resource’s characteristics in catchment areas is forbidden.”
• The responsibilities of the National Water and Sanitation Authority: “The National Water and Sanitation Authority shall carry out its mission in close collaboration with the different relevant departments.” The said Authority also has mandate to “monitor and assess the effectiveness of sanitation and water resource pollution prevention measures.”
3.1.3. CONTRIBUTION OF ACT # 95-035 AUTHORIZING THE CREATION OF ORGANIZATIONS IN CHARGE OF URBAN SANITATION AND SETTING USER’S FEES FOR URBAN SANITATION, IMPLEMENTING DECREE 93-173, IMPLEMENTING DECREE 2009-1199, TO THE LEGAL FRAMEWORK OF SANITATION This Act and its implementing decrees: • authorize, throughout the land of the Republic, at the communes’ level: – the creation of organizations in charge of urban sanitation, – the collection of user’s fees for urban sanitation (Article 1 of the Act); • state that urban sanitation is ensured: – by the Autonomous Maintenance Service of the City of Antananarivo (SAMVA,) in the commune of Antananarivo; – by a public organization in communes that choose to set up one (Article 2 of the Act);
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• create the Autonomous Maintenance Service of the City of Antananarivo (SAMVA), a state- owned industrial and commercial establishment in charge of operating and maintaining the sanitation structures and equipment of the City of Antananarivo for all three components, i.e. wastewaters, domestic wastes, and drainage products” (Decree 96-173, Article 1 – confirmed by Decree 2009-1166 Article 1); • organize the user’s fee system relevant to wastewaters, domestic wastes, the control of individual sanitation, and drainage operations (articles 3, 4, 5 of Decree 96-173); • require that the construction and drainage of individual sanitation infrastructures be performed by private operators approved by the commune (Article 20 of Decree 96-173).
3.1.4. CONTRIBUTION OF DECREE 2008-881 ORGANIZING THE URBAN SANITATION OF THE TOWN OF ANTANANARIVO TO THE LEGAL FRAMEWORK OF SANITATION This decree specifies (Article 1) that “Urban sanitation, as relevant to the wastewater and storm water component, falls to the Ministry in charge of Water” and authorizes the transfer (Article 3) of “networks, structures, office and workshop premises, maintenance equipment and materials, etc.” to the Ministry of water. This poses an issue regarding the distribution of responsibilities (see box).
Decree 2008-881 gives rise to confusion as regards the sanitation sector’s legal framework, for the following reasons: On one hand, it is an Act (90-035) that lays down that “urban sanitation is to be ensured by SAMVA” – which entails that Decree 2008-881, through Article 1 set forth above, departs from a principle laid down by an act. Moreover, the Water Code, which also is an act, states that “access to collective treatment of domestic wastewaters … (is) … a municipal public service”, that (Article 40) “urban… communes are the owners and contracting authorities of the systems … of collective treatment of domestic wastewaters”, and that (Article 46) “the operation of the systems may be delegated to managers through a management, leasing, or concession contract or exceptionally, be performed by the contracting authorities under direct control of the Communes”. The framework Decree 2003-193 defines in Article 2: that management delegation is an act “through which the Owner and Contracting Authority entrusts the setting up and/or operation of safe water supply and sanitation systems to a third party, called Deputy Manager”, and that “Properties to be returned include all assets essential to the operation of the public service – such as production and/or treatment structures and equipment, pipes, connections, and users’ files – that must be handed over to the Contracting Authority at the end of the Management Delegation Contract. Properties to be returned include … the assets that the Contracting Authority put at the Deputy Manager’s disposal at the beginning of the contract …” But then, Article 4 of Decree 96-173 states that the “Town Council of Antananarivo Renivohitra puts the structures and equipment at SAMVA’s disposal…” This appears to be in line with the articles of the Water Code and Framework Decree mentioned above, whereas Decree 2008-881, through Article 3 stating that a “report on the transfer of the networks, structures, office and workshop premises, maintenance equipment and materials between SAMVA and the Ministry in charge of water will be drawn up” is clearly in contradiction with both Act 95-035 and Decree 96-173, as well as with the provisions of the Water Code and Decree mentioned above. This malfunction in the legal framework’s implementation is proved by the fact that Decree 2008-1166, through Article 24, repeals Decree 2008-881.
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3.1.5. CONTRIBUTION OF DECREE # 63 -192 OF MARCH 27, 1963 SETTING THE TOWN PLANNING AND HABITAT CODE AMENDED BY DECREE #69-335 AS PART OF THE LEGAL FRAMEWORK OF SANITATION This decree commands that the construction of housing be subject to the delivery of a construction permit which will be delivered only if provision is made for a sanitation system. According to the Town Planning Code (Art. 106), the construction permit is delivered by the Mayor, on behalf of the Government, after assent of the representative of the town planning architectural service. The construction permit is delivered only when “Art. 138 - … sanitation of any dwelling construction and any premise that may serve professional, rest, or leisure purposes during daytime or nighttime, as well as the evacuation, purification, and disposal of industrial wastewaters, [are] ensured in conditions complying with the regulations in force, sanitation projects forecasts, […] and specific requirements laid down in Articles 133 and 142 hereafter”.
Correct implementation of Decree 63-192 would allow for requiring all dwellings to be equipped with a latrine complying with standards. The measure for improving the legal framework would consist in linking this decree with the Ministry in charge of decentralization and land development.
3.1.6. CONTRIBUTION OF DECREE 2008-319 CREATING THE NATIONAL SANITATION POLICY AND STRATEGY (NSPS) PAPER TO THE LEGAL FRAMEWORK OF SANITATION Regarding the sanitation sector, NSPS provides specifications and guidelines on: • The paper’s scope which “essentially pertains to the management of solid wastes of the domestic type, excreta (latrinization and drainage matters), wastewaters, and storm waters”; • The clarification of the distribution of responsibilities and setting up of a pragmatic and operational institutional organization, through: – assignment of specific responsibilities to the different Ministries. They will take on these responsibilities at the central level and at the level of regional decentralized services; – confirmation of the key role that Regions are to hold in the programming, implementation, and supervision of sanitation over their territory, in consultation with the line Ministries the Communes; – confirmation of the Communes’ responsibility and promotion of the tools put at their disposal for managing sanitation; – confirmation that the beneficiary population shall be the only contributor to the operations’ funding through specific user fees: domestic waste fees (DWF), wastewater fees (WWF) and maybe other taxes that need to be defined; that it is expected to finance individual infrastructures as well as finance operations investments and even collective infrastructures in the long run, to ensure maximal autonomy of the sanitation service; • The delegation of management, so as to have the service contracted to and enable the Commune to fully take on its role as contracting authority;
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• The role of private companies, associations, and NGOs who have received the Commune’s or the Region’s approval to conduct local interventions for the drainage of pits or the storage and disposal of drainage matters.
3.1.7. CONTRIBUTION OF ACT # 95-034 AUTHORIZING THE CREATION OF ORGANIZATIONS IN CHARGE OF THE PROTECTION AGAINST FLOODS AND SETTING THE USER’S FEE FOR PROTECTION AGAINST FLOODS AND DECREE #2002-979 AS PART OF THE LEGAL FRAMEWORK OF SANITATION This Act authorizes, over the land of the Republic, at the communes’ level: • the creation of organizations for the protection against floods; • the collection of user fees for protection against floods (Article 1); and • it lays down the organization of the collection of user fees, especially those that Act #95- 034 dated October 03, 1995 authorizes the relevant communes to collect for APIPA. The provisions relating to user fees will be laid down in an agreement between the relevant communes and APIPA.
It appears necessary to provide clarification on the administrative management of APIPA: Through Article 03 of Decree 2002-979, “APIPA is placed under the technical and administrative management of the Ministry in charge of land management and under the financial management of the Ministry in charge of finances”. Through Decree #2008 – 829 dated September 02, 2009 laying down the Ministry of Water’s mandate, APIPA becomes an organization under this Ministry’s management. Due to the convention on the collection and reallocation of user fees between the commune and APIPA, as well as the article pertaining to the management means’ transfers, there appears to be confusion regarding APIPA’s placement under the management of the Ministry in charge of water. As such, the same confusion of responsibilities between the Contracting Authority, the Representative of the Contracting Authority, and the Deputy Manager, as observed in SAMVA’s case, is encountered again.
3.2. INSTITUTIONAL FRAMEWORK The different texts allowed for: • Setting the distribution of roles and responsibilities, showing, from the institutional and organizational points of view, the distribution of the missions delegated to the different actors for all aspects of sanitation; • Specifying responsibilities regarding investments and the management of the different aspects of sanitation, including the definition and distribution of responsibilities in the collection and management of sanitation user’s fees. A table illustrating those two points and pertaining to basic sanitation (or excreta management [at the family and community levels, drainage, storage, treatment], wastes or management of solid wastes [collection, storage, treatment], the drainage or management of wastewaters, domestic wastewaters, industrial wastewaters, and storm waters [collection, transportation, treatment, disposal]) is provided in the present report, presented per sector from upstream to downstream, i.e. from the user’s level to the intermediate level or collection and transportation, and finally, to the storage level or final disposal.
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3.2.1. DISTRIBUTION OF ROLES AND RESPONSIBILITIES The distribution of roles and responsibilities is described following:
Graph # 3 - SANITATION SECTOR: INSTITUTIONS AND RESPONSIBILITIES
As such, roles and responsibilities are distributed as follows:
3.2.1.1. CENTRAL ADMINISTRATION According to NSPS: The Ministry in charge of safe water is in charge of implementing the basic sanitation policy, especially when programs are linked with water supply projects, more particularly: • Latrinization campaigns; • Actions for raising awareness on hygiene; • Management of cleanliness around water points. The Ministry in charge of decentralization and land development is in charge of implementing the collective sanitation policy, especially: • Developing sanitation master plans; • Programming and steering collective sanitation infrastructures works; • Setting up collective sanitation services. The Ministry in charge of health is in charge of implementing the health monitoring policy, especially:
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• Monitoring actions relating to the population’s health status and health control; • Prevention actions in the face of health risks; • Emergency response to crisis that may include actions for raising awareness on hygiene and sanitation; • Coordination of health education actions. The Ministry in charge of the environment is in charge of implementing the environmental monitoring policy, especially: • Monitoring the pollution discharged in the receiving environment; • Setting up and operating the environmental measures system.
3.2.1.2. DECENTRALIZED JURISDICTIONS AND COMMUNES NSPS entrusts the Decentralized Jurisdictions with the responsibility of steering land development plans for all subsectors of sanitation (solid wastes, drainage matters, wastewaters and storm waters) and co-financing infrastructures, operations investments, and awareness- raising campaigns. They may also temporarily act as representative of the Owner and Contracting Authority in the sanitation sector, until Communes are enabled to take on this role. Communes are the prime entity in charge of sanitation over their territory (Acts 98-029, 94-007 and Implementing Decrees). As “ Owners and Contracting Authorities” of sanitation, they are particularly in charge of: • Preserving assets, i.e. ensuring good maintenance of sanitation infrastructures, as well as defining, funding, and steering investments (unless these are delegated to the manager, in which case they still keep a right of inspection on investments delegated to the manager); • Setting up and supervising the sanitation service, which will preferably be ensured by a public or private deputy manager bound to the commune by a management delegation contract; • Ensuring financial balance of the public service of sanitation; • Developing the Municipal sanitation Plan; • Controlling salubrity over the municipal territory as a whole and making decisions with respect to corrective measures to address identified malfunctions, if any. The communes’ responsibilities are set forth in the other basic legal texts. According to Article 16 of the Water Code: “Disposal of wastes by households must be conducted under the responsibility of the commune, who may finance the costs of the service in full or in part, as per the regulations in force.” According to Article 20 of the Water Code: “All jurisdictions, establishments, or companies concerned by Article 17 above, are required to ensure the evacuation of waters of all sorts… in any event, wastewaters of domestic origin, as well as storm waters, must go through collective treatment in accordance with the conditions laid down in the implementing texts of the present code. It follows that storm waters are treated in the same way as domestic wastewaters, as described above.”
3.2.1.3. SAMVA According to Act #95-035 authorizing the creation of organizations in charge of urban sanitation and setting user’s rates for urban sanitation (or the SAMVA Act) and implementing Decree 96- 173, urban sanitation in the commune of Antananarivo is ensured by SAMVA.
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In that capacity, it ensures: • The treatment of waste- and storm waters; • The collection and treatment of domestic wastes; • The supervision of individual sanitation facilities and drainage products removal and transportation facilities.
3.2.1.4. APIPA According to Act #95-034 authorizing the creation of organizations in charge of protection against floods and setting user’s fee relating to the protection against floods and Decree #2002- 979, the protection of the plain of Antananarivo (control of storm waters upstream) is the responsibility of APIPA. In that capacity, APIPA manages the structures and equipment of protection against floods (dykes, sanitation channels and flood routing basins, basin, pumping plant, channel).
3.2.1.5. ANDEA According to the Water Code, (Article 76) the “National Water and Sanitation Authority” (ANDEA) carries out its mission in close collaboration with the different relevant departments and its mandate consists in: • coordinating, planning, and programming all sanitation projects and monitoring their execution; • developing and programming sanitation and drainage master plans; • if needed, contract the performance of designs and works relating to sanitation and drainage networks; • collect taxes and fees for the use of water resources; • monitor and assess the efficiency of sanitation and water resource pollutions prevention measures …”.
Although ANDEA is currently carrying out its mission of delivering water abstraction permits, it cannot yet ensure the collection of user fees for FNRE as a result of lack of consultation with water users.
3.2.1.6. THE POPULATION According to the Water Code: Article 12: Any individual or corporation, whether public or private, who exercises an activity that generates pollution or could pose hazards for water resources or the environment’s hygiene, must consider all necessary actions to eliminate or prevent the observed or potential hazard. Article 15: Any individual or corporation, who produces or holds wastes that may have harmful effects on soil or flora and fauna, pollute the air or waters, be harmful to human health and the environment, is bound to ensure their disposal or treatment. According to NSPS: “The beneficiary population must be the only contributor of the operations’ funding. For this purpose, it shall pay specific fees, namely the domestic wastes fee (DWF), wastewaters fee (WWF), and eventually other taxes that need to be defined.
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The funding of individual infrastructures will fall to the beneficiary population. It is also expected to finance investments for operations and even collective infrastructures in the long run, to ensure maximum autonomy to the sanitation service.”
3.2.2. INVESTMENTS AND MANAGEMENT RESPONSIBILITIES Synthetically, NSPS describes the following situation:
Graph # 4 - PRINCIPLES OF THE SANITATION SECTOR’S FINANCING MODE Investment and management responsibilities are distributed as follows.
3.2.2.1. CENTRAL ADMINISTRATION Through the sectoral National Programs of the four (04) Ministries in charge of NSPS, involved in sanitation within their own remit, as well as the relating annual EMPs, the Government may step in to provide a funding supplement in the form of loans or subsidies. The conditions for the amortization of the investments co-financed must be subject to specific agreements attached to the management delegation contract or directly passed with the beneficiary Commune. It may conduct advocacy for fund requests and mobilize funds from technical and financial partners.
3.2.2.2. DECENTRALIZED JURISDICTIONS AND COMMUNES According to the Water Code: Article 16: “The disposal of wastes by households must be conducted under the responsibility of the communes, who may finance the costs of the service in full or in part, as per the regulations in force”.
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Article 20: All jurisdictions, establishments, or companies concerned by Article 17 above, are required to ensure the evacuation of waters of all sorts… that they receive, under conditions that are in line with the objectives set for the maintenance and improvement of receiving environments, especially in implementation of the principles stated in the present chapter.” According to NSPS: The Decentralized Jurisdictions (Communes and Regions) are in charge of steering large-scale developments and the development of sanitation services over their territory. They may step in to provide a funding supplement in the form of loans or subsidies. The conditions for the amortization of the investments co-financed must be subject to specific agreements attached to the management delegation contract or directly passed with the beneficiary Commune. To mobilize funding, they are authorized to collect user fees, namely: • domestic wastes fees (DWF) instituted by Act 95-035; it is a direct municipal tax having the same tax base as the Tax on Built-On Properties (IFPB). Communes may all levy DWF to finance the collection, storage, and disposal of solid domestic wastes. • wastewaters fees (WWF) was also instituted by Act 95-035, then amended by the Water Code3. It is due by all users of the water network and is payable with the water bill. It is collected by the organization in charge of the distribution of water collects which then hands it over to the sanitation service in full. • fees for individual sanitation installations control (Act 95-035) • fees that can finance protection against floods (annual fee owed by owners of embanked parcels in building areas protected against floods; fee of participation in initial costs pertaining to the permits of embankment or construction on embankments in the relevant areas); • fees for protection against floods in building areas located in protected sectors and in polderized sectors. They may also conduct advocacy for fund requests and mobilize funds from the Government and technical and financial partners.
3.2.2.3. APIPA According to Decree 2002-979: Article 17 – APIPA’s resources include: a) the fees that Act # 95-034 dated October 03, 1995 authorizes the relevant communes to collect for APIPA. The provisions relating to these fees will be laid down in an agreement between the relevant communes and APIPA; b) the contributions, dividends, or royalties resulting from the agreements entered into with individuals or corporations, companies; c) the receipts generated from the interventions it may be called to conduct; d) contributions from the Government and relevant Land Jurisdictions for the management of structures and equipment of protection against floods;
3 Act 98-029 and its implementing decrees
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e) the interests generated from the funds deposited in a bank or other organization under public or private law; f) advances or loans; g) external aid funds; h) exceptional and unexpected donations, gifts, and receipts.
3.2.2.4. SAMVA SAMVA’s investment and management responsibilities are set forth in the Act. It participates in the setting of the user fees’ and collects the said fees that the Commune hand over to it. Article 5: The rate of the user’s fee for wastewater disposal in the Commune of Antananarivo will be annually set by the communes or inter-municipal unions, upon SAMVA’s proposition. Article 9: The billing and collection of fees for wastewaters disposal and the fixed user fee for connection are ensured by the organization in charge of the water distribution. The latter hands the fees collected over the Commune of Antananarivo to SAMVA. For the rest of the territory, the fees are paid to the commune or inter-municipal union. Article 11: The rate of the domestic wastes collection and treatment fee in the Commune of Antananarivo will be annually set by the communes or inter-municipal unions, upon proposition of SAMVA. Article 19: The rate of the fee for individual sanitation installations control over the Commune of Antananarivo will be annually set by the communes or inter-municipal unions, and shall range from 2% to 5% of the amount billed for the works or drainage. Article 14: SAMVA’s resources include: a) Fees relating to water consumption, domestic wastes, as well as construction works or drainage of individual sanitation installations, which Act 95.035 dated October 03, 1995 authorizes the Town Council of Antananarivo Renivohitra to collect for SAMVA. The provisions relating to these resources will be specified in an agreement between the Mayor of Antananarivo Renivohitra and SAMVA: b) contributions, dividends, or royalties deriving from the conventions entered into with individuals or corporations, companies; c) the interests on the funds deposited at the State Treasury or at other organizations under public or private law; d) the subsidies granted by the Government, the Faritany of Antananarivo, or the Fivondronampokontany of Antananarivo Renivohitra; e) advances or loans; f) external aid funds; g) exceptional and unexpected donations, gifts, and receipts; h) as well as resources created or allocated upon decision or deliberation of the municipal board under the act. SAMVA must take care to always have sufficient resources to cover all of its costs. Still, if it should fall in deficit for reasons beyond its control or as a result of force majeure and proves unable to ensure its payments, the deficit will be covered by a balancing subsidy…”
3.2.2.5. ANDEA According to the Water Code:
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Article 69: Fees for abstraction of water resources, deterioration of their quality, and modification of the waters’ flow may be instituted to contribute to the funding of the conservation, mobilization, and protection of water resources. Article 73: A National Fund for Water Resources, aimed at meeting the specific financing needs of conservation, mobilization, and protection of the water resources’ quality, is instituted. This fund may receive the products of non specific fees mentioned in the present article and will contribute to the funding of structures for the conservation, mobilization, and protection of the water resources’ quality. Article 76: ANDEA collects royalties on the use of water resources.
3.2.2.6. THE POPULATION The beneficiary population must be the only contributor of the operations’ funding. For this purpose, it shall pay specific fees, namely the domestic wastes fee (DWF), wastewaters fee (WWF), and eventually other taxes that need to be defined. The funding of individual infrastructures will fall to the beneficiary population. It is also expected to finance investments for operations and even collective infrastructures in the long run, to ensure maximum autonomy to the sanitation service.
3.3. CONCLUSION AND RECOMMENDATIONS The review of the legal and institutional framework showed that it is extremely well-rounded, addressing all key aspects, whereas in comparison, the sanitation sector lags well behind. Indeed, it: • sets the distribution of roles and responsibilities among actors; • lists the investment and management responsibilities, as relevant to the different aspects of sanitation, especially the definition and distribution of tasks in the collection and management of fees; • legislates and organizes the sanitation policy and strategy, providing further explanations on the actors’ roles and functions, namely:
1. The Government as the entity in charge of policies and support to investments;
2. Communes as “Owners and Contracting Authorities”;
3. A public or private deputy manager in charge of managing the public service of sanitation;
4. The private sector and NGOs in charge of infrastructure development activities, on one hand and health education and community mobilization, on the other;
5. The beneficiary population as the “main financial contributor” and educated and responsible users;
6. Technical and financial partners as providers of support to the development of technologies and investments. However, several negative aspects were identified, resulting mainly from lack of knowledge and leading to non implementation or incorrect implementation of the acts and decrees relevant to sanitation,. The most blatant ones include the following: • Transfer of the structures and equipment entrusted by the Town Council to SAMVA to the Ministry of Water, per Decree 2008-88;
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• Placement of APIPA, to whom CUA entrusted the task of operating the structures and equipment for the protection of Antananarivo against floods, under the Ministry of Water’s management; • CUA’s lack of mastery over the function of contracting authority and Act # 95-035 and Decree 96-173 et Act# 95-034 and Decree #2002 – 979, accounting for the poor performances in collecting fees; • Other communes have no knowledge of Act #95-035, and therefore do not set up SAMV; • The decree relevant to construction permits is not implemented; • Lack of knowledge on the responsibilities of Andea, resulting in extremely poor performance regarding the collection of fees for the different uses of water resources.
The following are therefore recommended as urgent and priority actions: • Build the communes’ capacities with regard to all texts of the legal and institutional framework of sanitation, through continuous implementation of information and education activities for mayors, municipal council members, and commune permanent workers; • Conduct advocacy, information, awareness-raising, and mobilization activities with the Ministries involved in sanitation, to ensure that the texts of the legal and institutional framework of sanitation are actually and correctly implemented; • Revitalize SAMVA, Apipa, and Jirama to improve fee collection performances and set up a balanced account for the management of the services entrusted to them; • Conduct a continuous and effective IEC campaign with the populations to help them become familiar with the acts and decrees and accept their implementations.
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4. NATIONAL POLICIES AND STRATEGIES
4.1. BACKGROUND The harmonious and effective development of the sanitation sector was made possible by the establishment and implementation of policy and strategy papers since 1991. At the beginning, these papers covered both safe water and sanitation then, they gave special emphasis to basic sanitation and hygiene, before giving rise, in 2008, to a specific book that encompassed sanitation as a whole. These papers include: • the safe water and sanitation policy and strategy statement (1997); • the Town Planning Code; • the Water Code and implementing decrees; • Act #95-035 (SAMVA) and its implementing decree; • Apipa Act and its implementing decree; • the National Sanitation Policy and Strategy (NSPS, 2008); • the national Diorano-WASH strategy of 2009.
Some of them belong to the legal framework (Town Planning Code, Water Code, Act #95-035) and only three (03) of them are actually “strategy papers”: one covers the sector in general (National Diorano-WASH strategy) and the two others are “the safe water and sanitation policy and strategy statement of 1997” and the National Sanitation Policy and Strategy (NSPS) of 2008.
4.2. CONTRIBUTION OF THE SAFE WATER AND SANITATION POLICY AND STRATEGY STATEMENT TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY The safe water and sanitation policy and strategy statement allowed for establishing the following basic principles: • The Government will withdraw from operational activities and will focus on its role as promoter and entity in charge of the development and implementation of the water and sanitation sectoral policy; • The Government will provide technical support to the Communes through its decentralized services and will monitor and control the contracts entered into by communes and private entities; • The Government will set up a legal and institutional framework that will allow for developing the sector in a context of decentralization, liberalization, privatization, withdrawal of the Government, and healthy competition.
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There should be actual decentralization of authority through transfer of responsibilities to the communes, in compliance with the national policy. Ownership of the water-related facilities, structures, and infrastructures will be gradually transferred to communes, as each commune develops the capacity to take on owner responsibilities. The commune must draw up leasing or concession contracts of studies, works, and operations with any operator willing to work in the sector.
4.3. CONTRIBUTION OF THE TOWN PLANNING CODE TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY The Town Planning Code allowed for conferring to the commune the effective responsibility of owner and contracting authority, consisting in issuing construction permits whose conditions of delivery include the provision of sanitation infrastructures in the construction.
4.4. CONTRIBUTION OF THE WATER CODE AND IMPLEMENTING DECREES TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY The Water Code: • specifies and confirms the strategic orientations listed in the sectoral policy statement, namely: – that domestic wastewaters and storm waters treatment is a public service that falls to the commune, – that delegated management should be set up, – that the population is the main contributor; • authorizes individual sanitation; • specifies that, although the commune participates in investments for the sector’s development, it may resort to governmental aid or aid from technical and financial partners; • sets up Andea to ensure activities for the management of storm waters flowing in rivers and for the monitoring of groundwater pollutions by the various disposals; and • sets a fee system for the protection of water resources.
4.5. CONTRIBUTION OF ACT #95-035 AND IMPLEMENTING DECREE TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY Act 95-035 (SAMVA) constitutes a correct and tangible implementation of the strategic principles laid down in the safe water and sanitation policy statement, in that it sets up a system that includes: • The commune – as Owner and Contracting Owner who collects user’s fees (Article 17: “The billing and collection of fees for domestic wastes collection and treatment will be performed by the service in charge of collecting land taxes at the commune’s level”), puts equipment and structures at the disposal of a third party (Article 4 of Decree 96-173 “The Town Council of Antananarivo Renivohitra puts the structures and equipment at SAMVA’s disposal”);
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• SAMVA, “a state-owned industrial and commercial establishment in charge of operating and maintaining the sanitation structures and equipment of the City of Antananarivo for all three components, i.e. wastewaters, domestic wastes, and drainage products” (Decree 96- 173, Article 1 – confirmed by Decree 2009-1166 Article 1); • The beneficiary populations who contribute by paying user’s fees; • The possibility for private operators, approved by the commune, to offer paying performances.
4.6. CONTRIBUTION OF APIPA ACT AND DECREE OF IMPLEMENTATION TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY This Act has the same contributions as Act 95-035 (SAMVA), as they apply to the storm water management.
4.7. CONTRIBUTION OF THE NATIONAL DIORANO-WASH STRATEGY OF 2009 TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY The National Diorano-WASH Strategy arrayed sanitation with the importance it was lacking and whose lack had made it the poor relation among the sectors, accounting for the extremely small amount of funding allocated to it. It determined the strategic intervention focuses, which allowed for more significant mobilization for sanitation, the finalization of educational approaches for the populations, and above all of an innovative approach enabling populations to fully take on their role as “main contributor” of the development of access to sanitation that complies with standards and adopt a positive attitude towards hygiene. It also significantly contributed to reinforcing the coordination, harmonization, and synergy of actions among all actors of the sanitation sector.
4.8. CONTRIBUTION OF THE NATIONAL SANITATION POLICY AND STRATEGY (NSPS) TO THE ORIENTATIONS OF THE NATIONAL SANITATION POLICY AND STRATEGY The NSPS paper has now become the true and fundamental basic instrument to ensure actual, effective, and long-lasting development of sanitation as a whole. All aspects are addressed and clear guidelines, which, when correctly applied, would provide the Malagasy populations with effective access to all sanitation services, are provided for each of them. NSPS comprises seven (07) strategic orientations and one action plan specifying its modalities of implementation. The strategic orientations are:
1. Clarify the distribution of responsibilities and set up a pragmatic and operational institutional organization;
2. Improve the provision of sanitation services;
3. Adopt a financing mode that ensures effectiveness and cost recovery within the population’s means;
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4. Adapt technologies and reduce investment costs;
5. Prioritize awareness-raining on hygiene at the national level;
6. Reinforce health monitoring, prevention, and assistance actions in crisis;
7. Master and control environmental impact.
NSPS confirms and develops the system laid down in the sectoral policy statement, legislated by the Water Code, and validated by the Diorano-WASH strategy, by shedding further light on the roles and functions of actors, namely: • The Government as the entity in charge of the policy and the support to investments; • Communes as the “owner and contracting authority”; • A public or private deputy manager; • Effective involvement of the private sector and NGOS in infrastructure development activities, on one hand and in health education and community mobilization, on the other; • The beneficiary population as the “main financial contributor” and educated and responsible users; • Technical and financial partners to support the development of technologies and investments.
NSPS is not yet fully implemented, as the setting up of the Inter-ministerial Committee through inter-ministerial decree is on standby as a result of the current crisis.
4.9. CONCLUSION AND RECOMMENDATION
The review of the sanitation sector’s assessment shows that there is lack of knowledge of the national sanitation policy and strategy set forth in the Water Code and NSPS. Concurrent implementation of two (02) contradicting approaches, under one same authority, has even been observed, namely the “Engineering approach” consisting in offering latrines to populations and the “sanitation marketing approach or Sani market” tallying with the legal strategy described in NSPS and based on the principle that the population, as “main contributor” of sanitation, must pay for its latrines. It therefore appears urgent to take the necessary steps to advertize the “Sani market” approach and ensure its implementation by all projects and stakeholders.
oOo
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5. COORDINATION OF STAKEHOLDERS
5.1. BACKGROUND Numerous actors from different fields are involved in the sanitation sector, given that it encompasses numerous aspects. Sanitation, as defined in the present study, includes three (03) components, namely: basic sanitation or the management of excreta (at the level of families and communities, drainage, storage, treatment), wastes or the management of solid wastes (collection, storage, treatment), drainage or the management of wastewaters, domestic wastewaters, industrial wastewaters, and storm waters (collection, transportation, treatment, disposal). In defining actions to undertake, NSPS specifies that sanitation encompasses all interventions aimed at ensuring the salubrity of inhabited areas and limiting the impacts of pollution on the environment. As such: Sanitation serves a dual objective: • Preserve the population’s health; • Mitigate the impact of pollution on the natural environment. Several actions of different types ensue from this dual objective, the main ones being: • Actions for developing sanitation services; • Actions for raising awareness on hygiene; • Actions relating to health monitoring and prevention; • Environmental monitoring and surveillance actions; • Actions for developing sanitation infrastructures. An organization aimed at coordinating actions, harmonizing approaches, as well as standardizing technological options was therefore set up. This organization involves overall structuring with the Diorano-WASH platform, an official coordination body specific to the sanitation sector established under NSPS.
5.2. COORDINATION THROUGH IMPLEMENTATION OF NSPS The National Sanitation Policy and Strategy relates to the management of solid wastes of the domestic type, excreta (latrinization and drainage matters), wastewaters, and storm waters. It sets up a three-tier institutional organization in which specific actors are involved:
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• At the national level, responsibilities are distributed among the Ministries according to three principles: segregation of programming and control4, mutual non-interference,5 and confirmation of each Ministry in its historical roles; • At the regional level, the responsibility falls to the Regions, as Decentralized Jurisdictions and Administrative Districts (in that capacity, they assemble the Ministries’ decentralized services); • At the local level: Communes.
Other actors must be added to the list, namely: • SAMVA and SAMVs that will eventually be created; • ANDEA • APIPA • Other Ministries concerned by issues relevant to the management of wastes and wastewaters, pollutions, and environmental hygiene environment (Ministries in charge of industry, mining, agriculture, tourism, etc.) • Other organizations involved in sanitation and environment-related activities such as AGETIPA, ONE; • The private sector and NGOs; • Technical and financial partners.
In the face of such a situation, the institutional organization in charge of implementing NSPS set up an “NSPS Inter-ministerial Committee” working as follows:
Graph # 5 - INSTITUTIONAL ORGANIZATION IN CHARGE OF IMPLEMENTING NSPS
The committee’s full name is: “Inter-ministerial Consultative Committee for the implementation of the National Sanitation Policy and Strategy”. It must be created by an inter-ministerial decree.
4 A Ministry cannot be judge in its own case. Inter-ministerial control is favored to ensure efficiency of the actions undertaken. 5 The national sanitation policy does not create any hierarchical relationships among the Ministries and their responsibilities supplement each other.
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The inter-ministerial consultative board main function is to coordinate the implementation of the National Sanitation Policy and Strategies, so as to ensure both effectiveness and rapidity.
5.3. COORDINATION THROUGH THE DIORANO-WASH PLATFORM Diorano-WASH is a platform that groups all partners intervening in the water, sanitation, and hygiene sector: technical departments of the different Ministries, national and international NGOs, bilateral and multilateral cooperation agencies, the private sector, the civil society, technical and financial partners, and media. The platform is structured as follows:
Graph # 6 - WASH STRUCTURE
Diorano-WASH’s interventions consist in collaborating, assisting, and providing support to Ministries supervising the water-sanitation-hygiene sector from the central to the local level, including the regional level, especially as regards coordination and monitoring-evaluation. Diorano-WASH plays the role of catalyst. Diorano-WASH supports two (02) of the four (04) Ministries involved in NSPS (Ministry in charge of health and Ministry in charge of water), more particularly the Ministry in charge of water, in conducting the National Program for Access to Safe Water and Sanitation, which aims to achieve the following objectives:
1. Develop access to safe water through reinforcement and extension of existing infrastructures and construction of new ones.
2. Develop access to healthy sanitation by improving the access of the population as a whole to adequate sanitation infrastructures to protect the populations’ health, the environment’s salubrity, and water resources against pollution.
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3. Develop Public-Private Partnerships by setting up services for the distribution of water of satisfactory quality and in sufficient quantity, ensuring the infrastructures’ sustainability by transferring responsibilities and making the sector’s regulating organization operational.
4. Build the sector’s capacities by setting up the water and sanitation engineering center, developing the private sector’s/ NGOs’ capacities, mobilizing local communities and providing them with health education, and actually implementing decentralization.
5. Integrate the management of water resources through implementation of a water resources inventory and management policy and strategy for rational and equitable use (between the different users), as well as for their protection and conservation.
It must be noted that Diorano-WASH is further focused on basic sanitation, but being led to mobilize itself for hygiene and environment, its actions also pertain to the other components of sanitation as a whole.
5.4. CONCLUSION AND RECOMMENDATIONS All elements that should allow for ensuring actual and efficient coordination of the sanitation sector are laid down in the official guidelines provided by the NSPS Decree and the setting up of the Diorano-WASH platform. Now, the NSPS inter-ministerial committee that was to ensure this coordination and which the decree creating NSPS, adopted in November 2008, expressly requires to be set up by an inter- ministerial decree, is not set up until now. As such, it still remains unsure which entity will be coordinating the sanitation sector. It therefore appears necessary that Ministries in charge of sanitation take the necessary steps to promulgate this decree and make the inter-ministerial committee operational.
oOo
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6. ASSESSMENT OF THE SANITATION SERVICES SITUATION
6.1. BASIC SANITATION
6.1.1. ACCESS TO EXCRETA MANAGEMENT SYSTEMS
6.1.1.1. TYPES OF EXCRETA MANAGEMENT SYSTEMS IN THE AGGLOMERATION In the Greater Antananarivo, the management methods of excreta can be classified into four (04) main types: • Disposal of excreta with the sewage from the toilets and the domestic waste water to the collective sewer network (households with a private connection to the water supply network); • Disposal of excreta with the sewage from the toilets and the domestic waste water, to a septic tank prior to infiltration into the soil via a slump (households with a private connection to the water supply network); • Disposal of excreta into a drainable dry pit or a lined pit then draining of the tank when it is full; • Disposal of excreta into a non drainable dry pit latrine, then back-filling and abandoning of the full pit and creation of a new hole.
Graph 7 below summarizes the general characteristics of these four (04) excreta management systems.
Graph # 7 - TYPOLOGIE DES SYSTEMES DE GESTION DES EXCRETA
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6.1.1.2. SANITARY FACILITIES Table No. 2 shows the types of toilets used by households in the city of Antananarivo, according to a statistical study by INSTAT in 2002. .
Table # 2 - TYPES OF TOILETS (CUA)
Type of toilet Percentage of households Flush toilet 19.9% Dug latrine 67% Bucket latrine 6.6% Other type of toilet 2.4% No toilet 4.3%
Source: INSTAT/DSM/EPM2002
Flush toilet Dug latrine CUA - Tsiadana Commune of Soavina
As regards the facilities receiving excreta, Graph #8 shows the distribution across the different systems of excreta management in the CUA and in peripheral Communes6.
6 Source: M. Buchsenschutz & al. Management of Liquid Sanitation and Wastes. Final report. Cities Alliance, 2004.
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Graph # 8 - ACCES AUX DIFFERENTS SYSTEMES DE GESTION DES EXCRETA
The Graph shows that: • The disposal of excreta with sewage by connection to the collective sewer network is almost nonexistent in the peripheral areas, whereas 17% of the households of the CUA are connected; • The use of dry pit or any other means of evacuation remains the option used by the majority of households in the CUA (almost three quarters of the households) and almost all households in the peripheral areas (about 95%); • The use of septic tank remains marginal in the CUA (9%) and in the peripheral areas (5%).
A survey conducted by CARE in thirteen (13) peripheral Communes in 2006 confirms these trends. Indeed, the survey results show that 85% of the households in the peripheral Communes have a private family latrine while nearly 14% use the latrines of their friends or neighbors. Among the nearly 2,500 facilities inventoried more than 90% are latrines of the "dry pit" type but with walls and roof, about 5% of the latrines are pit latrines, 4% are coated pits and 0.2% are septic tanks (Graph #9).
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Graph # 9 - TYPES OF LATRINES USED – PERIPHERAL COMMUNES
As regards the types of pit, the category of “dry pits and others” (see Graph #8), that concern three quarters of the population in the CUA and 95% of the population in peripheral is divided between: • Drainable dry pits • Pit latrines • Other methods of excreta disposal: disposal into canals, etc. In 2003 it was estimated that 62% of the households in the category of “dry pits and others” had drainable pits in the CUA, against only 16% of the peripheral Communes (see Graph #10).
Graph # 10 - ESTIMATE OF THE PORTION OF DRAINABLE DRY PITS IN 2003
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Furthermore, the control of the individual facilities in terms tightness ability to be drained (e.g. access, shape of the pit), is ensured by inspectors of the Municipal Bureau of Hygiene (BMH) in the CUA. Given the insufficient number of inspectors in relation to the number of pits built annually, it is likely that a significant proportion of the pits do not comply with standards.
6.1.2. DRAIN CONDITIONS The drainage matters come from the drainable dry pits and the septic tanks. In 2004, the total number of septic tanks and drainable dry pits was estimated at just over 80,000 units, with nearly 70,000 in the CUA (including 10,000 septic tanks), and over 12,000 for the peripheral areas (including ¼ of septic tanks). In the CUA, the drainage service is provided either by the Technical Directorate, by private firms, or by unskilled workers that offer their services (manual operations). In the CUA, 60% of the facilities in the category of “dry pits and others” (see Figure No.8) are drained manually by unskilled workers, against 10% by private companies and 2% by DTMI/CUA. The remaining percentage consists of non-drainable pits (open pits) and other methods of excreta disposal.
Graph # 11 - DRAINAGE METHODS - CUA
In the peripheral Communes, the drainable pits representing only 16% of the category “dry pits and others” (Graph #10), when the latrines are full, most households (89%) backfill it it and dig a new hole for a new latrine. For drainable pits, the drainage may be done manually by households (8%) or they may resort to unskilled workers, a private company or an agent of the public cleansing service (<1% for all of the last three options).
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Graph # 12 - MODES DE VIDANGE – COMMUNES PERIPHERIQUES
In general, for the majority of the facilities (almost 70%) in the peripheral Communes, draining is done every two years and more. Only about 2% of the pits require drainage interventions every semester.
Graph # 13 - FREQUENCE DE VIDANGE – COMMUNES PERIPHERIQUES
6.1.3. DISPOSAL OF DRAINAGE MATTERS As regards the CUA, the drainage matters collected by the DTMI/CUA and private companies are disposed of in river Ikopa, at the level of an inclined plane in the Commune of Ambohitrimanjaka (geographic coordinates: 47°26’15.9’’ E / 18°50’57.4’’ S). On average, the DTMI/CUA dumps about 3,500m3 to 4,000m3 of drain matter at this location every year. In contrast, the drain waste extracted manually (by the unskilled workers) are scattered throughout the agglomeration.
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Inclined plane for dumping drainage matter Drained waste dumped in river Ikopa
For the peripheral Communes, the vast majority of the households (~ 84%) dispose of the drainage matters in a pit in their yard, whether the household itself does the cleaning-out manually, or it is done by others (unskilled workers).
Graph # 14 - DISPOSAL SITES OF THE DRAIN WASTE – PERIPHERAL COMMUNES
6.1.4. FINANCING THE SERVICE The households bear all the investments in their excreta disposal systems. The households also pay the fees of the service provider who perform drainage when they do not do it themselves. Fees are also collected by the Communes to pay the cost of inspecting the facilities.
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6.1.5. CONCLUSION AND RECOMMENDATIONS The review of the situation assessment shows that the situation in terms of excreta management is very critical and the fecal hazards is a reality for which urgent and priority actions need to be taken. A strategic plan for excreta management, based on sanitation marketing (or Sani market), is to be implemented, with the goal of eliminating the practice of open defecation and encouraging households to acquire latrines by their own means with: • easily cleanable slabs that meet their capacity and willingness to pay; • pits that do not pollute the underground water, easily drainable by small private or municipal operators, compliant with standards, • controlled disposal sites for the drainage matters, in compliance with environmental and public health standards.
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6.2. WASTEWATER
6.2.1. THE CURRENT COLLECTION SYSTEM The CUA has a wastewater system of total length of 175km. Only 10% of this system is exclusively dedicated to wastewater, and serves the areas of 67 hectares area, the administrative districts of Anosy and the HJRA hospital (separate sewer). The rest (90%) is of the combined type, that is to say, common to storm-water and wastewater. The collective system includes five (05) pumping stations located in Ampefiloha, Ambodin'Isotry, 67 ha, Isotry, and Anatihazo. It only covers a part of the Commune’s territory (1st and 3rd arrondissement) and only serves about 17% of its population. The wastewater collected by the separate sewer is directly repressed into river Ikopa by pumping to a single discharge at Andohatapenaka. For the rest of the population in the CUA and the population in the peripheral Communes, the wastewater is managed locally by autonomous systems (stand-alone slumps, or septic tank + slumps) or by direct spreading on the ground, or dumping into the storm-water collection network. In general, wastewater management and storm-water management, addressed in section §6.4 are therefore closely linked. The importance of the drain canal Andriantany should be noted as it serves also as the main outlet of the wastewater from the city of Antananarivo.
6.2.2. MAIN PROBLEMS ENCOUNTERED The wastewater management in the agglomeration has hardly changed since the assessments conducted in 2000 (Complementary Study on the Improvement of Wastewater Sanitation in the Plain of Antananarivo) and in 2004 (Cities Alliance - Greater Antananarivo - Managing Household Waste and Wastewater), whose main conclusions are still valid.
A. A collective system that has limited coverage and is dilapidated The last major renovation works done on the collective system date back to year 2000. They pertained to 47km of networks located in the basin of lake Anosy Lake and the neighborhoods of 67 ha and Anatihazo. This rehabilitated section of the collective system, which is managed by SAMVA, is currently operating satisfactorily. In the rest of the system, the many malfunctions are due to dilapidated systems and the lack of maintenance, as evidenced by the silting up of the slumps and roads collapsing during the rainy season. On the other hand, the accumulation of solid waste resulting from the habit of throwing in the canals clutters the flow of water. The systems in the following neighborhoods are to be included as priorities for rehabilitation: • Andravoahangy, East Ampandrana and Besarety; • Mahamasina, Behoririka, Ambohijatovo and Ambodin'Isotry. Some rehabilitation works have been done recently on the main combined outfall that drains the densely populated basin of the eastern valley East. The black spots on the section between Besarety and Andravoahangy, however, still need to be addressed.
B. No treatment of the discharges into river Ikopa and in the outlets of the plain
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The wastewater collected by the separate sewer is discharged directly into river Ikopa, downstream of Andohatapenaka, without any treatment. This is a major health risk given the uses of the water from river Ikopa for food and agriculture in the downstream areas. It should be noted that a new catchment of safe water stands at less than 5km from the discharge point (Faralaza). Direct discharges of wastewater also occur in two primary outlets of the urban plain (Canal Andriantany and Canal C3 - see § 6.4), in addition to the diffuse pollution of water from drained areas. This is also a major risk to the densely populated neighborhoods often crossed by these canals as well as for the agricultural activities in the northern plain.
C. Low awareness of health hazards associated with wastewater The current general practices that aim only of getting rid of wastewater downstream the production areas are a clear indication of low level of awareness of the health hazards associated with wastewater.
6.2.3. FINANCIAL AND INSTITUTIONAL ASPECTS In the CUA, the operation and maintenance of the collective system of wastewater treatment is shared between the Directorate of Works and Infrastructure Maintenance (DTMI) and SAMVA. Specifically, SAMVA manages the 47km of the network rehabilitated in 2000, as well as the pumping stations. The collective wastewater drainage service is funded by user’s fees on wastewater (REU), which is payable by any subscriber to the water distribution network. That fee was set at 10% of the ex-tax water bill, exclusive of the fixed portion and exclusive of the water sold at public standpipes. The REU is collected by the JIRAMA and repaid directly to SAMVA. JIRAMA bills this collection service to the SAMVA. The expenditures of SAMVA’s wastewater service correspond mainly to the following tasks: • Regular dredging of collectors; • Management of the pumping stations and the operating equipment; • Standard interventions during occasional failures (breakage, spillage, etc.). The many deficiencies observed on the section of the system managed by DTMI result directly from the limited resources made available to this Directorate to fulfill its mission. An analysis of the financial resources mobilized for the sanitation service is presented in § 7. The aspects related to the storm water drainage that is closely related to the management of wastewater are addressed in § 6.4. It should be noted that APIPA who is in charge of managing the primary outlets in the urban plain, and SAMVA are under the supervision of two different bodies, respectively the Ministry of Water and the CUA, which sometimes causes coordination problems.
6.2.4. RECOMMENDATIONS FOR INTERVENTION Due to the major deficiencies, the problems and shortcomings encountered in the management of wastewater, the following measures seem to be urgent: • Capacity-building for the Communes to fully exercise their roles of owner and contracting authority for sanitation, starting with their ability to mobilize the needed financial resources (see § 7).
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• Treatment of collected wastewater before discharge into river Ikopa (CUA): The direct discharge of wastewater collected by the existing separate sewer is no longer acceptable given the health and environmental risks involved. The establishment of a treatment plant is urgent. • Study and promotion of technological options that are more affordable to households and that allow for the development of decentralized wastewater management. The current planning tools (e.g. Urban Development Master Plan of the Greater Antananarivo) rely primarily on the development of a collective system for wastewater, which is unrealistic given the big amount of financial resources to be invested and then to be spent on operating and maintaining such infrastructures. Several technological options other than the network systems are now being used successfully in countries of economic development similar to Madagascar. It is important to promote technological options adapted to the financial capacities of people and institutions. These actions will be complemented by the sensitization of the population on the risks and consequences associated with the deficiencies of the sewage systems and of the practices prevailing in terms of wastewater management.
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6.3. DOMESTIC WASTE In the Greater Antananarivo, the solid waste management differs between the Urban Commune of Antananarivo (CUA) and the peripheral Communes, members of FIFTAMA, both in terms of administration (organizational, collection method, mode of transportation, disposal method) and in terms of level of service (service rate, sanitation conditions). Detailed field assessment was conducted in March 2010 as part of this study. The results are given in Annex [3]. The main findings are presented in the following sections.
6.3.1. CURRENT WASTE MANAGEMENT SYSTEMS The methods of managing solid waste in the Greater Antananarivo (CUA & FIFTAMA) can be classified into four types: • Autonomous waste management service; • Commune-controlled waste management service; • Limited public cleansing service including the collection of garbage on the roads and public places, or at the households; • Lack of any waste management service.
Graph # 15 illustrates the types of waste management methods at the level of the Communes of the Greater Antananarivo: • One (01) Commune has an independent waste service (CUA); • Sixteen (16) Communes have Commune-controlled waste management (in blue); • Three (03) Communes have a limited public cleansing service including waste collection (Ambohimanga, Ampitatafika and Itaosy); • Ten (10) Communes have no service dedicated to the collection or the management of waste (in red). Moreover, CUA and the twelve (12) other Communes of the FIFTAMA are grouped in the Inter- municipal Organization for the Integrated Management of Solid Waste (OPCI-GIDS). These include the Communes of Ambohimangakely, Andoharanofotsy, Andranonahoatra, Ankadikely, Ankaraobato, Antehiroka, Bemasoandro, Ivato Airport, Ivato Firaisana, Sabotsy Namehana, Talatamaty, Tanjombato, and CUA.
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Graph # 15 - ZONING OF THE COMMUNES PER TYPE OF WASTE MANAGEMENT SERVICE
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6.3.1.1. METHODS OF COLLECTION
6.3.1.1.1. IN THE CUA In the CUA, domestic waste is collected at collective dumpsters (fixed dumpsters in concrete and mobile dumpsters in metal or plastic) distributed over 460 collection points in the six (06) arrondissements of the CUA. In some neighborhoods, the door-to-door collection system is also sometimes used. Households put their garbage in plastic or jute bags. A third party (paid by the fokontany, or the employee of a private company, or an agent of the CUA) collects and then takes them to the nearest collective dumpster of SAMVA. Waste collected at the collection points are then evacuated by trucks. The SAMVA uses several types of trucks: dumper trucks and multi-buckets dumper trucks (owned or leased), compactor trucks or ordinary retrofitted trucks (leased). All trucks owned or leased make day and night shifts every day of the week.
6.3.1.1.2. IN THE PERIPHERAL COMMUNES In the peripheral Communes that have a Commune-controlled waste management service, the waste is collected at collective dumpsters and/or the collection points scattered around the Commune. The collective dumpsters are either metal buckets or brick and cement constructions. Collection points are at specific locations within the Commune, illegal or permitted, where garbage is deposited by individuals, merchants, public cleansing services, etc. The waste collected in collective dumpsters and/or at the collection points are then removed by the municipal service in charge of waste management. The emptying of dumpsters and truck loading is done manually. Most Communes having a Commune-controlled waste management service own one or more waste collection vehicles (dumper truck, compactor truck or simple retrofitted truck). However, Communes sometimes make use of rented trucks (e.g. in case their truck has broken down7 or when they do not own a truck8). Waste collection at the collection points or at the households is done with wheelbarrows in some cases. In a number of Communes, the door-to-door collection system is used: the households put their waste in plastic or jute bags, and i) either place them in the street outside their homes where they are collected by the collection service (e.g. the case of Andoharanofotsy), ii) or they present them directly to the collection service when it makes its rounds (e.g. the case of Ivato Airport and Antehiroka). However, this type of collection is limited to areas accessible by road. Finally, in some Communes that only have a limited public cleansing service including waste collection (Ambohimanga, Ampitatafika and Itaosy), the agents who sweep the streets and public places (e.g. markets) also collect the domestic waste that the populations directly hand over to them. They then carry them with the sweeping waste to the disposal sites.
7 The case of the Commune of Ivato Aéroport 8 The case of the Communes of Ankadikely, Ankaraobato, Anosizato Andrefana and Ivato Firaisana
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6.3.1.2. LEVEL OF SERVICE
6.3.1.2.1. IN THE CUA The current number of collection points scattered in the CUA should theoretically be sufficient to accommodate all waste generated daily by Antananarivo's households, on the condition that the collection is also daily. The overall capacity of collection of the works (~1,100T) for the entire CUA is 27% higher than the theoretical tonnage produced daily (~880T). However, it should be noted that the level of service is not balanced among the six arrondissements. Indeed, if for the 2nd arrondissement the collection capacity is more than 100% higher than the theoretical tonnage produced, for the 5th arrondissement, the collection capacity is only 65% of the theoretical tonnage produced.
Graph # 16 - COLLECTION CAPACITY OF THE CURRENT DUMPSTERS IN THE CUA
The imbalance in the level of service is also found across fokontanys of a same arrondissement. Graph # 17 shows for each of the six (06) arrondissements in the CUA, the rate of non- availability of any collection point in the fokontanys. It should be noted that whereas almost all of the twenty-four (24) fokontanys of the 2nd arrondissement are served by collective dumpsters, only ¼ of the fokontanys of the 1st arrondissement have them. Over the entire CUA, about forty of the 192 existing fokontanys are not equipped with collection points for domestic waste. This corresponds to approximately 250,000 inhabitants, representing 17% of the urban population (Graph n°18).
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Graph # 17 - RATE OF NON-SERVED FOKONTANY IN COLLECTIVE DUMPSTERS IN THE CUA
Graph # 18 - RATE OF NON-SERVED POPULATIONS IN COLLECTIVE DUMPSTERS IN THE CUA
6.3.1.2.2. IN THE PERIPHERAL COMMUNES As regards the peripheral Communes, of the eleven (11) Communes with waste collection infrastructure (collective dumpsters and/or collection points), only four (04) are sufficiently equipped to collect all waste generated daily (Graph n°19). These are the Communes of Alasora, Andoharanofotsy, Ivato Airport, and Talatamaty. For the seven (07) other Communes, the collection capacities of the existing infrastructures are not enough to collect all the waste generated. The collection capacity of the works compared to the theoretical tonnage produced, range from about 30% (Anosizato Andrefana and Tanjombato) to about 60% (Ankadikely and Ivato Firaisana).
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Graph # 19 - COLLECTION CAPACITY OF THE CURRENT DUMPSTERS IN THE PERIPHERAL COMMUNES
6.3.1.3. DISPOSAL CONDITIONS
6.3.1.3.1. DISPOSAL AT THE LANDFILL For the CUA, the domestic waste collected from the collective dumpsters are disposed of at the landfill of Andralanitra which was commissioned in 1966, and is the only official landfill of the Greater Antananarivo. It is located in the Southeast of the city, in the Commune of Ambohimangakely. The landfill receives all the domestic waste collected by SAMVA and the waste from individuals or businesses in the surrounding urban area, as well as the waste of the Commune of Ambohimangakely. The landfill of Andralanitra is a crude landfill without any containment system or treatment of surface water flow. The waste is deposited as backfill. The leveling is done with a bulldozer. For the peripheral Communes, "official" waste disposal sites can be either a landfill (the site of final and permanent disposal of the waste collected by the service, with or without control, with salvaging/valorization activities or not), or a temporary dumping (a site used for a specified period for the recovery of organic matter, then incineration of the remaining waste and transfer of the place of disposal), or it is a dump (e.g. a dumping to fill a marsh or for landfill, dumping in a gully, simple dumping of garbage without any leveling or any salvaging/valorization activity). None of the storage sites (landfill or dump) is controlled in terms of access, containment or operation mode. The waste is simply dumped on the site. Individuals involved in recycling activities (mainly recycling of the organic fractions to compost) or salvaging (sorting recoverable materials) perform their activities right on the site. In most cases, when the waste has been sorted and/or composted, the remaining waste is burned to reduce its volume and to continue to operate the landfill. Graph# 20 locates the landfills and dumps used by the Communes of the Greater Antananarivo (CUA & FIFTAMA). Their coordinates are given in Table # 3.
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Graph # 20 - LOCATION OF THE WASTE DISPOSAL SITES
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Table # 3 - LOCATION OF THE LANDFILLS AND DUMPS
Site Operating Commune WGS84 Geographical Coordinates Latitude Longitude Landfills Ambohijanaka Andoharanofotsy 19°00'01.2"S 47°32'55.4"E Andralanitra CUA, Ambohimangakely 18°54'45.0"S 47°34'37.4"E Andramiarana Talatamaty 18°51'20.0"S 47°27'26.5"E Andranobevava Antehiroka Ambohibao 18°51'32.7"S 47°27'47.1"E Antsahamarofoza Ankadikely Ilafy 18°49'48.5"S 47°36'23.1"E Belambanana Ankaraobato 18°58'43.0"S 47°32'07.4"E Tongarivo Tanjombato 18°57'58.7"S 47°31'21.5"E Dumps Ankadibe Bemasoandro 18°54'40.2"S 47°29'27.7"E Sakambahiny Andranonahoatra 18°54'50.9"S 47°28'37.5"E Ambohitrandriamanitra Alasora 18°57'59.5"S 47°34'50.7"E Andrady Ambavahaditokana 18°55'40.8"S 47°27'53.2"E Amoronanony Ampitatafika 18°56'09.1"S 47°28'30.6"E Antokotanitsara Anosizato Andrefana 18°56'14.0"S 47°29'50.2"E Dépôts Mahitsikely Sabotsy Namehana 18°49'14.8"S 47°35'22.3"E Mangaika Ivato Aéroport 18°46'29.8"S 47°28'05.7"E
6.3.1.3.2. SALVAGING AND RECYCLING ACTIVITIES Small-scale salvaging and recycling activities are practiced informally on almost all landfill sites and dumps operated by Communes of the agglomeration. The main activity consists in the recycling of organic fractions in "soil" or compost for agriculture. The other activities include salvaging scrap metal, plastics, wood and coal, and the salvaging of waste of bones (namely at the landfill of Andralanitra).
6.3.2. MAIN PROBLEMS The critical points of the current waste management systems in the Communes of the Greater Antananarivo include: • The lack of waste collection service (collective dumpsters) in about forty fokontanys of the CUA and in some peripheral densely populated Communes (e.g. residential areas of the Commune of Ambohidrapeto); • The lack of resources used to ensure the service (e.g. frequency of emptying dumpsters, capacity of the collection points) resulting in moments of overflow at the collection points, which compounds the city’s insalubrities problems; • The swarm of unlawful dumping around the agglomeration (both on the territory of the CUA and in the peripheral Communes); • The environmental impacts of the landfill and dumping sites, due to the lack of control; • The low funding of the service (see next section).
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The following photos illustrate the main problems encountered in the Greater Antananarivo in terms of waste management.
Unlawful dumping in a densely-populated Unlawful dumping in a fokontany of the CUA Commune that does not have a waste non-served with collective dumpsters management service (Ambodirano Ampefiloha) (CR Ambohidrapeto)
Overflowing of a mobile dumpster Overflowing of a fixed dumpster (CUA / Ankadivato) (CR Sabotsy Namehana)
Unlawful dumping in the CUA Unlawful dumping in the peripheral Communes (Ankasina) (Rural commune of Ampitatafika)
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Landfill fire Water contamination (Landfill of Andramiarana) (Landfill of Tongarivo)
6.3.3. FINANCIAL AND INSTITUTIONAL As regards the CUA, the main financial resource for the service of solid waste management is the ROM (User’s fee on domestic waste) which has the same tax base as the property tax and follows the same pipeline with the issuance of the roll and collection. The ROM represents 98% of the income of SAMVA for waste management. SAMVA has additional incomes from deposits of industrial waste at the landfill of Andralanitra (approximately MGA 15 million per year representing 2% of the income) and sales of intermediate products from the shredding of rags (about MGA 1 million, representing 0.1% income). However, the CUA does not pay the entire ROM to SAMVA because it pays itself a number of operating expenses, including fuel costs and sometimes the cost of renting the vehicles. Moreover, in terms of financial situation, SAMVA is going bankrupt: in late 2007, its equity was negative (MGA -1.8 billion), and the debt to providers amounted to MGA 2.7 billion, which represents almost two years of business turnover. The situation significantly deteriorated in 2007, mainly because of the strong decrease of the ROM paid to SAMVA (-37%) and the sharp increase in the cost of renting collection trucks. The situation stabilized in 2008, with a net profit of MGA 818 billion, thanks to an "operating subsidy" of the CUA amounting to MGA 1.4 billion. As regards the peripheral Communes, the funding of the service, for Communes with a solid waste management service, is through the general budget of the Commune. This often includes the annex fee to the property tax (TAFB), calculated on the same tax base as the IFPB and the ROM. The TAFB is intended to finance expenditures related to public sanitation, whether they are directly managed by the Commune or managed by a delegated manager, but the big difference with the ROM, is that it is not earmarked: it feeds into the general budget of the Commune. The General Tax Code also specifies that the ROM and the TAFB cannot be concurrent.
6.3.4. RECOMMENDATIONS FOR INTERVENTION
A. Building the capacities of the Communes: In the peripheral Communes that have Commune-controlled waste management service, the service seems to be performing rather well (collection dumpsters located throughout the Commune, pick up more or less regular, dedicated disposal sites, etc.). However, the funding of the service is limited since it is levied on the general budget of the Commune and this impacts the quality of service (e.g. maintenance of the dumpsters, operating of the waste collection vehicles, development of the sites dedicated to garbage disposal being impossible, etc.).
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Efforts should then be made to mobilize specific resources to finance sanitation, including domestic waste. The improvement of financial resources will enable municipal services to ensure in a sustainable manner the collection and the disposal of waste, as well as the mobilization of personnel and equipment relating thereto (e.g. waste collection vehicles, staff operating the landfills). Priority should also be given to the promotion of inter-municipal service to address the problem in a way as comprehensive as possible. The implementation of the OPCI-GIDS towards this and is a good example.
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B. Improving the financing of the SAMVA: For the CUA, the pipeline of the domestic waste user’s fee should be corrected quickly. This will improve the financial situation of the SAMVA, and thus the quality of the waste management service in the land of the CUA. The ROM collected should be paid in its entirety to SAMVA for the domestic waste service.
C. Generalization of the service in all the fokontanys of the CUA: In the CUA, unlawful dumping is formed mostly in the fokontanys that are not served by collective dumpsters. A generalization of the collection service in all the 192 fokontanys that comprises the CUA, including the provision of collective dumpsters, is therefore essential to improve the city’s health situation. The current capacity of the collection infrastructure in place is generally sufficient (see 6.3.1.2.1). The priority effort should be made for the forty fokontanys currently unserved.
D. Control of the environmental impacts of the disposal sites: The waste disposal sites should be sites suitable for that purpose, that is to say with a modicum of measures in terms of environmental safety and protection (e.g. preservation of housing, controlled access site, storage of waste in a rational and organized way, control of the production of leachate, etc.). Surveys for new landfill site(s) should be conducted. Operational studies followed by detailed technical and environmental studies should be conducted before the implementation of the development works. Pending the opening of the new landfill site(s), the current sites should be "arranged" for a minimum safety of the facilities (e.g. access control, waste storage in a rational and organized way, etc.). The use of sites similar to "wild landfills" (e.g. the two landfills located in Andramiarana) should be stopped as soon as possible. The waste stored on site should either be confined or removed and transferred to new more suitable sites. Finally, the waste recycling activities should be supported as they allow for reducing the amount of waste to be stored and subsequently the environmental impacts associated with the waste storage. Composting activities can be a very interesting option given that they already exist in many of the current landfill sites.
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6.4. STORM-WATER
Storm-water management in Antananarivo is an important component of sanitation, given the context of tropical climate, the conditions of hydrographic relief and drainage of the city and the prevailing health practices, especially as regards wastewater management. It is however closely linked to other sanitation services. Indeed, basic sanitation facilities cannot function properly without good drainage, which does not occur unless solid wastes are properly managed. Moreover, the health consequences of poor drainage are exacerbated by the prevailing sanitation practices (e.g. use of traditional latrines in the low-lying areas of the city).
6.4.1. CURRENT DRAINAGE SYSTEMS In general, the current drainage systems in the Greater Antananarivo are poorly developed weak and rely heavily on the sewage disposal systems of the current public sewage system (the drainage network of storm-water is linked to that of the wastewater §6.2). There is very little and fragmented knowledge of the assets available (infrastructures) as evidenced by the lack of maps of the storm-water system in the Communes of the city. It is essentially in the urbanized plain, on the right bank of Ikopa (CUA), that the drainage system has a clearly defined consistency.
6.4.1.1. THE COMMUNE OF ANTANANARIVO (CUA)
6.4.1.1.1. HILLY AREAS On the hilly areas of the CUA, located East to the canal of Andriantany, the storm-water drainage system consists of: The combined sewer system of about 175km in length: their operation and maintenance is shared between SAMVA and the Directorate of Works and Maintenance of Infrastructure (DTMI; Ex-Directorate of Works and Infrastructure); The gutters and drainage pipes of the public sewer system whose exact total length is unknown. These networks are under the responsibility of the DTMI and the arrondissements for the primary and the secondary sections and under the responsibility of the fokontanys for the tertiary sections; The natural ditches dug by erosion, which are sometimes kept by the fokontany or the residents, especially in case of threat to infrastructure or housings. Graph # 21 shows the major catchment basins on hilly areas. For almost all of the CUA, the storm-water network is actually a combined sewer network as it collects both storm-water and domestic sewage of most of the residents. Moreover, a significant proportion of septic tanks are directly connected to storm-water networks for waste water disposal. Given the almost total lack of control of these effluents, the storm-water, which tends to concentrate in the low-lying areas of the town located at the foot of the hills, are heavily polluted and pose serious threats to the health of the inhabitants.
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BV1 – Basin of Masay BV5 – Basin of Androndrakely BV1’ – Basin of the Eastern valley BV6 – Basin of Mandroseza BV2 – Bassin of the Station BV7 – Basin of Ambohipo BV3 – Basin of Anosy BV8 – Part of the basin of Ampangabe BV4 – Basin of Fort Voiron Graph # 21 - MAJOR UPLAND CATCHMENT BASINS OF THE CUA
Due to the big size of the basins and especially the high density of the population, the management of storm-water is especially problematic both in qualitative and quantitative terms in the low-lying areas of the basin of the East valley, and to a lesser extent, in those of the Masay basin.
6.4.1.1.2. URBAN PLAIN The urban plain, which is protected against the flood waters of the Ikopa, faces regular flooding problems because of difficulties of storm-water gravity-flow drainage. The drainage in the urban plain is subject to various constraints of geomorphological, hydrogeological and climatological nature. Their implications are detailed in Table 4 below.
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Table # 4 - INCIDENCES OF THE PHYSICAL CONSTRAINTS ON THE DRAINAGE OF THE URBAN
Incidences for the Constraints drainage Geomorphology Very low gradient Major gravity slope of the plain drainage infrastructure Single and remote outfall for Possible drainage water restriction of the gravity drainage Polderization of the plain Hydrology Flush Limitation of the groundwater in depths of the the rainy season storm-water canals and basins Climatology Intensity of Need for canals of rainfall great conveyance if outlet of the Long periods of peak flow rainfall (Jan.- Apr.) Restriction of the gravity drainage to Ikopa
Given the key physical constraints mentioned above, the quality of the urbanization of the valley is closely linked to mastering the drainage of runoff water generated in the urban polder areas. The master plan for Greater Antananarivo (2004 - 2006) is based on the drainage plan established in 2000 for the urban southern plain. This plan, which is shown in Graph #22, takes into consideration the urbanization of the South plain by the gradual adjustment of compartments, structured around a core network of drains and the maintenance of farming activities in the northern plain. A compartment means a polder unit delineated by protective peripheral dams and including an interior storm-water basin that communicates with the main drainage canal of the plain (canals C3). While a total number of seven compartments were expected in the urbanization plan of 2000, only two compartments currently exist (Andavamamba [R3] and Anosibe [R2]). These compartments were constructed in 1999 on a pilot basis, under Phase 1 of the BPPA Project (Protection of the Plain of Antananarivo). The compartment of Anosibe materialized and was completed with the rehabilitation of National Highway 1 and the construction of the Southern ramp of the Boulevard de l'Europe. With the urbanization of the southern plain by compartments, it becomes all the more important to ensure reservation of water expansion area due to the drainage constraints. This reserved expansion area is the PIRD hydroagricultural perimeter that was rehabilitated in 2000 (BPPA, Phase 1). The drainage of the urban plain is ensured through a system managed by the APIPA, which is composed of main drainage canals and their respective buffer basins: Andriantany canal (25 km) and the lakes Anosy (11 ha) and Masay (98 ha), canal C3 (10 km) and the basins of Anosibe (12ha) and of Andavamamba (4ha) - and the pumping station located in Ambodimita, equipped with three (03) pumps with a unit capacity of 3m3/s. Graph # 23 gives an overview of the system.
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Graph # 22 - PATTERN OF URBAN GROWTH OF THE URBAN SOUTHERN PLAIN (BPPA, 2000)
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Graph # 23 - THE DRAINAGE SYSTEM OF THE URBAN PLAIN
The section of the Andriantany canal, upstream of the station of Ambodimita drains the urban catchment areas of the city, while canal C3 drains the southern urban plain. The latter is connected to the Andriantany canal at the pumping station through a gated structure. A passage in the siphon under Andriantany allows its direct connection with the pumping station. Considering the limited capacity of the Andriantany canal downstream the Station, the excess flows are discharged into the Northern plains through an outlet located on the left bank of the Andriantany canal and an outlet canal leading to Ankasina. The downstream section of the Andriantany canal ensures gravity-flow drainage into river Ikopa at Ampanindrona or into river Mamba through gated works at Tanjondroa and Vahilava. The section of C3 upstream of Ankasina drains the urbanized areas of the southern plain. This section has a total length of 2,700m and an average slope of 0.5 ‰. Its load-flow capacity ranges from 3 to 15.5 m3/s. The downstream section (7,300m), which begins at the downstream end of the Andriantany outlet canal, is simply dug into the plain, at a depth of 90 cm. The downstream C3 ensures both the transfer of water from the upstream urban areas and the drainage of the lowland rice plots of the northern plain. The pumping station of Ambodimita discharges into river Mamba at Ambohidroa when the water levels in the rivers can no longer allow for gravity-flow drainage, or to replenish the buffers stocks for storm-water at the northern plain.
6.4.1.2. COMMUNES OF THE FIFTAMA 1.1.1.2. THE COMMUNES OF FIFTAMA In the peripheral Communes, the storm-water systems consist only of gutters and ditches associated to existing roads, trails and alleys.
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As housings are mostly located in the hilly areas and the habitat density is still relatively moderate, drainage is not yet perceived as a major component of the sanitation.
6.4.2. PRIORITY AREAS IN TERMS OF DRAINAGE
6.4.2.1. TYPES OF INONDATION ENCOUNTERED Due to the coincidence of the warm and the rainy seasons, there are strong links between flooding and health problems. Four (04) main types of flooding are encountered in the city and its outskirts: • Flooding caused by the rising waters of flooded rivers, principally in low-lying areas on the left bank of the middle of river Ikopa, the plain on the right bank being protected by a centennial flood embankment; • Flooding caused by a restriction or a blockage of water drainage, principally in the arrondissements bordering the agricultural buffer zones in the urban polder (right bank of the Ikopa); • Flooding due to inadequate capacity of the collectors; • Flooding caused by the lack of a drainage system. While the first two types of flooding occur every three to ten years or so, the latter two are more frequent and are also more localized. In general, there is an increasing frequency and intensity of floods due to urbanization and the subsequent increasing rate of soil sealing, the critical lack of control over this development, the lack of maintenance of the existing systems and the insufficient investment in drainage infrastructure. The increase in volume and intensity of runoff and storm-water runoff associated with increased rates of soil sealing accelerates soil erosion and the degradation of the drainage systems, as well as the erosion and degradation of the road systems of the hilly areas, which fully participate in the evacuation of high-flow storm water. Soil erosion has much increased and expanded in the recent years as a result of the increased runoff as mentioned above as well as the expansion of urbanization on fragile areas (slope and/or highly erodible soils). Soil erosion directly affects the performance of the storm-water system, particularly in the low-lying areas of the town where deposits tend to occur due to the softening slopes of the collectors.
6.4.2.2. PRIORITY AREAS The critical areas prone to flooding are shown in Graph # 24 and were identified based on an analysis of the information and data collected, including those of the National Bureau for Risk and Disaster Management (BNGRC) on the numbers of victims during the recent floods in 2003 and 2007.
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1 – Ampandrana Atsinanana; Besarety; Andravoahangy Atsinanana; Mahavoky, Andravoahangy Tsena; Mandialaza- Ambodivona; Ampandrana-Besarety; Anjanahary II N; Anjanahary II S
2 – Anosibe-Andrefana I; Angarangarana Andriamanangona; Anosizato Atsinanana I; Andavamamba III J – Ambilanibe; Ivolaniray; Anosibe Andrefana II; Mandrangabato II; Mandrangabato I; Anosibe Ambohibarikely; Andrefan’i Mananjara; Namontana; Andrefana Ankadimbahoaka; Andohatapenaka I; Antetezana Afovoany I; Andavamamba-Anjezika II; Andavamamba-Anjezika I; Anatihazo-Isotry; Andranomanalina I; Andranomanalina Afovoany; Andavamamba-Anatihazo I; Manarintsoa Anatihazo; Manarintsoa Afovoany; Manarintsoa Atsinanana; Manarintsoa Isotry; Andohatapenaka III; Ambodirano-Ampefiloha; Andavamamba-Anatihazo II
3 – Antohomadinika Afovoany II F; Antohomadinika-FAAMI; Ankasina; Antohomadinika III G Hangar
4 – Ankeniheny; Ambodivona; Ambaniatsinanana; Ampefiloha Miray; Ambohijafy; Ankazotoho-Anosimahavelona
5 – Quarters 3 and 4
Graph # 24 - MAJOR CRITICAL AREAS IN TERMS OF DRAINAGE
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The areas that are ranked Class 1 to 3 are low-lying areas of the CUA. The Class 1 neighborhoods are located in the eastern valley. Floods are critical in this area due to the high population density and to the concentration of upstream pollution. Class 2 neighborhoods belong to the developable area of the southern plain. The main problem in these area is mostly associated with stagnant water resulting from uncontrolled urbanization leading to hydraulic discontinuities coupled with dominant inappropriate health practices (traditional latrines with groundwater at shallow depth, open air defecation, unlawful dumping of domestic wastes). Class 3 neighborhoods, which lie at the entrance of the Northern plains (right bank of the Ikopa) have the same problems as those in Class 2, but are also victims of the overflowing of the primary canals draining the urban plain, whose waters are particularly polluted (C3 and Andriantany Canal). Class 4 neighborhoods, located on the left bank of the Ikopa, are inundated by the flood waters of river Ikopa, at a frequency ranging from 5 to 10 years. Class 5 neighborhoods are located in the Commune of Ivato Firaisana. These areas are densely populated, unstructured and under-equipped in terms of storm-water drainage, which sometimes cause floods. It should be noted that the majority of the neighborhoods facing problems of drainage and flooding are located in the urban plain on the right bank of river Ikopa. The problem is especially critical among Class 3 fokontanys: Antohomadinika Afovoany II F, Antohomadinika-FAAM, Ankasina and Antohomadinika III G Hangar.
Water stagnation in the compartment of Water stagnation in Andohatapenaka Anosibe
Outlet canal of the Andriantany nearby An alley of Andohatapenaka Ankasina
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6.4.3. FINANCIAL AND INSTITUTIONAL ASPECTS So far, the planning and the financing of major drainage infrastructure have fallen to the State and the operation and the maintenance of the facilities then fall to the Communes. The development of the Masay marshes and the rehabilitation of the main outfall of the eastern valley are the main improvements made over the past five years. In the case of the CUA, as for the networks of wastewater, the DTMI lacks the technical and financial resources to ensure proper operation and maintenance of storm-water drainage systems. The interventions by the arrondissements and fokontany are effective and necessary, but remain limited. The dredging of secondary canals at the end of the dry season, usually under a Labor-Intensive system, depends entirely on funding external to the CUA. Due to the small remaining surface area for filling and to the difficulty for APIPA to collect annual fees on filling (the collection rate in 2009 is estimated at 30%), APIPA could have difficulties in ensuring the maintenance of primary drainage canals in the urban plain. In general, neglecting storm-water management has increasingly stringent impacts on municipal budgets, especially because of the increasing cost of maintaining communication roads. This directly affects the already low capacity of the Communes to finance other public services, including sanitation.
6.4.4. RECOMMENDATIONS FOR INTERVENTION
A. Capacity-building for the Communes The capacities of the Communes need to be strengthened, namely as regards: • Mobilization of resources for sanitation services, including the drainage component especially for the management and the maintenance of the networks; • Overall management of storm-water: To cope with the pressure of urbanization and given the high cost of the storm-water systems, a comprehensive and environmental approach of the management of storm-water is essential. While the current approach favors rapid downstream evacuation, the new approach will focus on limiting the flow and preserving the quality of downstream receivers, namely with the establishment of a wastewater treatment station; • Control of urbanization, at least in areas identified as sensitive.
B. Sustainable financing of APIPA services Given the environmental benefits and the benefits in terms of civil protection obtained from services rendered by APIPA, it is urgent to find a sustainable financing plan for this institution, building on what already exists.
C. Planning of the drainage and the urbanization of the urban plain The proposed drainage plan in 2000 is severely compromised by the rapid and uncontrolled constructions in the urban plain, especially in areas originally planned to serve as buffer basins. It is necessary, as an urgent measure, to update the drainage plan of the urban plain. Indeed, the rapid and uncontrolled urbanization of the plain narrows the range of management options and has a negative influence on the cost of future development.
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7. FINANCIAL RESOURCES MOBILIZABLE FOR SANITATION SERVICES
The communes’ poor capacity to mobilize the necessary financing is one of the major barriers to sustained development of sanitation. Based on SAMVA’s case, the only autonomous sanitation service existing in the city of Antananarivo, an analysis of the financial resources mobilized or mobilizable has been conducted, to identify possible ways for improving the communes’ financial resources.
7.1. REMINDER ON TEXTS RELATING TO SAMVA As stipulated by Article 2 of Act 95-035 dated 10/30/95, authorizing the creation of organizations in charge of urban sanitation and setting user’s fee for urban sanitation, urban sanitation in the Commune of Antananarivo is to be ensured by the Autonomous Maintenance Service of the City of Antananarivo (SAMVA). In other words, SAMVA is the representative of the contracting authority of urban sanitation, in the Urban Commune of Antananarivo. Per Decree 96.173 dated 03/06/96, in its first article, SAMVA is a state-owned industrial and commercial establishment (EPIC) in charge of running and maintaining the sanitation structures and equipment of the City of Antananarivo for all three components, namely wastewaters, domestic wastes, and drainage matter. From its creation, until the writing of this report, SAMVA was not in charge of the Excreta component. In 2008, per Decree 881/2008 dated September 27, 2008, Decree 96.173 dated 03/06/96 was abrogated. The decree stipulates in its only article that urban sanitation relevant to the domestic waste component in the Commune of Antananarivo, is to be ensured by the Autonomous Maintenance Service of the City of Antananarivo (SAMVA), whereas urban sanitation relevant to the wastewater component is the responsibility of the Ministry in charge of water. This decree reduced EPIC SAMVA to a “plain communal service” under the management of CUA that is only in charge of the domestic waste component. The new decree dated September 11, 2009, which globally repeats the content of Decree 96/173, restores SAMVA’s autonomous character. It should be noted that amending texts at every institutional change go against the principle of creation of SAMVA (autonomous service) and may hinder the sustainability of the actions undertaken for appropriate sanitation of Antananarivo. It should also be reminded that the setting up of SAMVA was one of the donors’ requirements for funding rehabilitation works relating to wastewater disposal in the City of Antananarivo and its suburbs.
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7.2. FINANCIAL RESOURCES MOBILIZED AND MOBILIZABLE FOR SANITATION SERVICES This component consists in exploring and identifying different available and/or mobilizable financial resources, as related to safe water and sanitation, in the Urban Commune of Antananarivo, in keeping with regulatory texts. The different resources that may be mobilized for water and urban sanitation, as authorized by Act 95-035 are ROM (user’s fee on domestic wastes, rate applied: 3% of the rental value, collection by the communal collector), REU (user’s fee on wastewaters, rate applied: 10% of the water bill exclusive of all taxes, collection by JIRAMA), and the user’s fee for control of individual sanitation installations (or RE: user’s fee on excreta, rate authorized: 2 to 5% of the costs of construction or drainage of the installations). RE is currently not applied in urban Antananarivo. It should be noted that according to Article 3 on user’s fee on sanitation, all public organizations in charge of sanitation are required to provide the relevant service using the sanitation taxes on pain of prosecution.
7.2.1.1. TAXES MOBILIZED BY THE COMMUNE FROM JIRAMA’S WATER BILL The taxes mobilized by the Commune from JIRAMA’s water bill are: consumption duty, surcharge for works funds and Sanitation (REU). In compliance with Article 15 of Decree 2003/791 setting the tariff rules of the water and sanitation public service under the Water Code, communes are to allocate consumption duties to the payment of their safe water consumptions in priority. Consumptions, as mentioned in the article above, refer to any safe water consumption by municipal establishments. It should be noted that allocation of this consumption duty to the settlement of consumption bills at the level of collective water points constitutes a misapplication of Article 15 mentioned above. There has been no tangible or actual expression of the use of the surcharge for works funds for renewal or extensions of safe water supply systems. REU, which is collected only from JIRAMA’s private users and yield approximately USD400,000 per year does not suffice to ensure proper wastewater disposal in the city of Antananarivo. Besides, this receipt is not transferred in time to the service in charge of the town’s wastewaters. The allocated amount is specifically used to operate new and rehabilitated wastewater treatment systems (49km). SAMVA’s interventions have directly or indirectly pertained to some 100km of the 175km total existing collectors. It is noted that the Commune still has an idle wastewater treatment service that is placed under state control, whereas direct control in urban Antananarivo is prohibited by regulatory texts (Articles 94 and 95 of Decree 2003/193 setting the operation and organization of the safe water and domestic wastewater treatment service). In conclusion, it must be noted that the taxes deducted from the water bill do not comply anymore with the provisions of Article 55 of Act 98-029, creating the Water Code and stipulating that: “due to the social component of the water and sanitation public, the total taxes and surcharges levied by local jurisdictions on those services’ bills may not exceed 10% of the bill’s amount, exclusive of taxes.”
7.2.1.2. I MPLEMENTATION AND USE OF ROM According to the statistics recorded in the Cities Alliance report, the ROMs collected annually amount to approximately USD900,000, based on a rate of 3% of the rental value and a tax recovery rate in the range of 60% This fund was subject to a two-headed management in that the supply of fuel and some transport service providers are paid by the Commune.
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Strict reading of the texts enforced should preclude this management mode, as ROM is an earmarked receipt.
7.2.2. IMPROVEMENT OF FINANCIAL RESOURCES At present, implementation of the fees or mobilizable resources defined by Act 95-035, is not yet effective. Their implementation therefore appears imperative. This would consist in:
7.2.2.1. DOMESTIC WASTE COMPONENT Surcharge on insect and rodent control: Art. 15 – The Commune may set a surcharge equivalent to up to 20% of the insect and rodent control fee.
7.2.2.2. W ASTEWATER COMPONENT Surcharge on very polluting discharges: Art. 7 - Surcharges ranging from 50% to 200% of the fee’s amount may be applied to users of the sanitation system whose discharges are especially polluting, exclusive of all penalties relating to non compliance with the rules in force as regards pretreatment of polluting discharges. The accepted standards, regarding discharges and activities whose discharges in the wastewater system may be subject to surcharge, will be specified in an implementing decree. Pending this decree’s publication, a surcharge of fifty percent (50%) will be applied to industries, companies, craft industries, and workshops whose discharged wastewaters contain polluting or non biodegradable products such as hydrocarbons and by-products, colorants and other chemicals. The responsibility of collecting this surcharge should fall to SAMVA. As such, to facilitate operations, JIRAMA shall abide by Article 18 of Decree 2003-791 dated July 15, 2003 setting the tariff rules of the water and sanitation public service, stipulating that “the manager of a safe water public service is bound to provide the manager of the sanitation public service intervening in the geographical area of the water public service, with all users’ files and bills that the latter needs to draw up sanitation fee bills.” It is reminded that SAMVA has never had access to those users’ files, in spite of numerous complaints. Other polluters using an individual supply (e.g.: industries using drillings) should also be required to pay.
7.2.2.3. EXCRETA COMPONENT The different texts relating to this component should be implemented as soon as possible.
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ANNEX 1 – TERMS OF REFERENCE OF THE MISSION
SOMEAH – 20 127 R1 – AVRIL 2010 ...... CITYWIDE SANITATION PLANNING: TERMS OF REFERENCE TO FORMULATE AN OUTLINE STRATEGY
1. Background WSUP is currently progressing with the implementation of the WSUP supported Rano Soa Sy Fidiovana Project in Antananarivo, Madagascar to provide improved water and sanitation services to a urban poor population of about 200,000. This programme is being undertaken in partnership with the key local service providers (LSP’s) responsible for water supply and sanitation in this city. The improvements required to household sanitation and related services is a particular priority due to the relatively low level of access to satisfactory sanitation services for a majority of the urban population within the city and in the peri urban areas. The achievement of objectives including long term sustainability of the WSUP supported project are also influenced by the medium and long term strategy for citywide sanitation improvements that are planned by the concerned service authorities. The LSP’s and relevant agencies with responsibility for sanitation and related services have a mandate for planning and implementing sanitation improvement programmes for the city. The programmes would include several components and implementation phases that cover the range of requirements of the urban population. WSUP is offering to assist in the formulation of a citywide sanitation strategy. This enables the development and implementation of the sanitation programme for the WSUP supported project to take place within the context of the wider citywide strategy. It also enables the WSUP sanitation programme to inform and facilitate the city’s wider sanitation programme. These terms of reference sets out the tasks to be undertaken to formulate an outline citywide sanitation strategy in consultation with the key stakeholders and key informant surveys. The programme would be undertaken in two stages with a workshop at end of stage one feeding into stage 2. . 2. Objective of the consultancy The objective of the assignment is to formulate an outline of the citywide sanitation strategy including a programme and initial budget estimates for phased implementation together with the institutional arrangements. The assignment will describe existing sanitation conditions, identify gaps and deficiencies and, where necessary, prepare the ground for a more detailed assessment of conditions and options for action, leading to the development of a strategy for improving sanitation, either in the city as a whole or in selected areas within the city. This activity should be seen as an initial stage in an integrated sanitation planning process that provides an outline of the long term citywide strategy, which has the general acceptance of the key stakeholders. It is WSUP’s intent that the sanitation approach and developments under the WSUP supported programme is consistent with the longterm citywide strategy. For the purposes of the study, sanitation includes excreta management (household and community toilets, sludge clearance, disposal and treatment), solid waste management, drainage and wastewater. The strategy for excreta management would have particularly emphasis for the study. The study area will be the Urbane Commune D’Antananarivo (CUA) and the peri urban area defined by the Fiftama. The assignment is to be undertaken in two stages as follows: Stage 1: Consultations, initial assessments and strategy options. Workshop to present and discuss initial assessment and strategy options Stage 2: Additional surveys, consultations, detailed assessments and formulation of outline strategy. Workshop to present and discuss strategy
3. Activities to be undertaken In order to achieve the objective, the individual or team responsible for the consultancy it will be expected to: Stage 1 • Identify and interact with key stakeholders at the national and city levels. These should include the CUA (BMH), SAMVA, APIPA and the Commune Administrations • Assess existing sanitation-related legislation, rules, plans and procedures. What do they say about responsibilities for sanitation provision and the standards to be met by sanitation services? • Collect and quickly review any existing reports on aspects of sanitation provision in the city including the urban master plan of Great Antananarivo and WSUP documents on Antananarivo. • Assess current sanitation-related responsibilities and activities. Identify what each organisation is theoretically required to do and what various organisations are actually doing in practice. • On the basis of existing base maps or satellite imagery, information from key informants and field surveys, existing reports and strategic plans, identify different types of development within the city and determine their approximate boundaries. (The aim at this stage should be to develop broad understanding types of development so that information on existing sanitation provision can be organised and analysed on the basis of settlement types). • Make an initial assessment of sanitation conditions in different areas, if necessary basing initial conclusions on the basis of assessment of representative settlements in each category of development. • The assessment should include the urban poor areas included under the WSUP project. The available information on baseline surveys, sanitation related studies and planning as well as the Project Implementation Plan and experience gained will provide a basis for development options for the urban poor areas and useful inputs to the wider citywide planning • On the basis of their findings, prepare a report and presentation on existing sanitation conditions in the city and the broad strategic options for improving those conditions. • Present the findings at a workshop to which all major stakeholders should be invited, Set out possible ways forward and seek agreement on the future strategy for sanitation improvement in the city. • Based on the workshop outcome, agree a work programme and form of output for the Stage 2 Stage 2 • Based on the workshop outcome and recommendations/conclusions, progress with the development and formulation of an outline long term citywide strategic sanitation plan. This would necessarily address the range of needs and solutions to different areas and communities to provide phased development of improved access to and uptake of sanitation services. These improvements will include centralised sewerage, decentralised sewerage systems, increased treatment capacity, on site household sanitation and community sanitation services. • Undertake additional limited surveys to fill gaps in information to enable an objective assessment of strategy options. • Assess sanitation options to suit the varying needs within the city and to be consistent with the institutional framework. The planning for development should be based on a phased approach acknowledging financing requirements and implementation capacity • The integrated outline strategic plan should address the wider sanitation related requirements including sludge collection and disposal, institutional arrangements and responsibilities and financing arrangements including credit and sanitation marketing and promotion. The strategic plan would provide a phased development programme with initial budget estimates and include the urban poor population • Present the draft final report with the outline citywide sanitation plan at a final workshop with all major stakeholders. Prepare and submit the final report taking account of any agreed revisions to the draft and other recommendations.
4. Process and methodology The suggested process for carrying out the assignment is shown diagrammatically in Figure 1. Initial meetings with WSUP and its partner organisations in Antananrivo will be used to identify key sector stakeholders and arrange initial meetings. At the same time, the consultant should carry out some initial investigations, based on secondary sources and representative field visits, so as to be informed at this initial stakeholder meeting. However, this should not detract from one of the primary purposes of the initial meetings, to listen to the views and concerns of key stakeholders. During the initial meetings, efforts should be made to engage personnel from the main stakeholder organisations in subsequent investigations, preferably as active participants but at the very least as points of contact and liaison. If possible a meeting or short workshop should be convened so that the objectives of the planning exercise can be explained to all interested stakeholders. The study should not proceed to the next stage without a clear indication of support and involvement from the main authority(ies) responsible for sanitation. Subsequent investigations should aim to achieve sufficient broad understanding of sanitation conditions and sanitation-related institutions (including laws and attitudes) to provide the basis for proposing an overall/outline strategy for implementing an integrated approach to sanitation improvement. Analysis is likely to involve a mixture of simple quantitative analysis of basic data and qualitative assessment, based on non-quantified data. The important point at this stage will be to clearly state the type of analysis carried out, why it has been adopted and what the implications are for the accuracy/reliability of conclusions. Where conclusions are tentative, the need for further investigations should be identified and proposed as part of the follow-up strategy. The results of investigations and preliminary findings from rapid analysis should form the basis for a written report and a presentation of the main findings. The latter will form the basis for a statement of the findings of the review and should be produced with this in mind. Information should, as far as is possible, be disaggregated by area. Information on the extent of sewerage and drainage systems should be shown on maps. That on sanitation coverage should be presented as a percentage figure for each area for which information is available. (It may be that existing information is related to political/administrative sub- divisions, in which case these should be used for initial analysis purposes). Where quantitative information on coverage is not available, a qualitative assessment should be made. Consultants should not draw quantitative conclusions on the basis of qualitative information. Where good quantitative information is not available, this should be noted and strategy recommendations should suggest ways in which information gaps might be filled. In-depth investigations in at least 2 representative areas should be used to provide further more detailed information. Figure 1 - Outline of proposed Process
Preliminary discussions with WSUP personnel and WSUP partner organisations (to obtain information, agree process and agree liaison arrangements)
Initial meetings with key Quick review of available statutory sanitation providers information, including (to gain support and explain visits to representative process) areas
Stage 1 investigations Obtain best available map base, baseline data etc Meet other stakeholders Identify types of development Further assessment of secondary data Field visits to representative areas
Rapid analysis leading to interim report and presentation
Stakeholder workshop 1 Aim to present findings, reach agreement on issues and agree way forward for
Final Interim Report and programme for Stage 2
Stage 2 investigations Additional surveys and analyses Meet stakeholders Detailed assessment of development options Formulate phased programme including initial cost estimates Assess institutional arrangements
Prepare draft Final report on Outline Citywide Sanitation Strategy
Stakeholder workshop 2 Present draft Final report and reach general agreement on strategy
Prepare and submit Final report
The stakeholder workshop at end of Stage 1 should ideally last a whole day. The details of the format and timetable for the workshop can be worked out by the consultant in consultation with the WSUP team. However, it is expected that the morning will be devoted to a presentation of the findings of the investigation and development options, leading to discussion of the implementations of those findings and options, while the afternoon will focus on reaching agreement on the need to carry the planning process forwards with key options and agreeing responsibilities relating to the planning process. After the workshop, the consultants should prepare a stage 1 report including a programme for the Stage 2. This report will combine the results of their analysis, the discussion during the workshop and the agreements reached in the course of the workshop
The Stage 2 tasks should be progressed with additional limited surveys to fill in gaps and further consultations with stakeholders and community representatives. The key options will be further assessed and outline plans, programmes including cost estimates will be prepared for these using available secondary information supplemented with any additional primary data collected. The phasing of the sanitation improvements will be a particular consideration in the outline strategy and this will be influenced by financing considerations and implementation capacity. Also, the framework for sanitation marketing to scale up improvements to on site sanitation in areas where central sewerage connections is unlikely would be a important consideration. A particular issue on improving on site household sanitation is affordability and access to credit. Options for improved credit access and targeted subsidies for low income households will need to be assessed and included. The wider sanitation related items and components including sludge clearance and disposal, drainage and environmental conditions would form part of an integrated sanitation strategy. Assessments and plans for drainage and environmental improvements from existing programmes and strategies from the Municipality and Environmental agencies should be assessed and incorporated with appropriate revisions. The adequacy of the current institutional framework for providing and managing the citywide sanitation services is likely to require detailed review and assessment through a separate assignment. However, specific issues that are identified as well as any recommendations with regard to capacity and resources should be presented as part of the outline citywide sanitation strategy. The overall strategy adopted should have the ultimate aim of improving sanitation conditions in the city as a whole. However, this does not mean that this aim is to be achieved immediately and strategy options to be explored include piloting of technologies and approaches in selected areas and the development of an incremental approach that ‘spins out’ from areas in which WSUP is already working. These options should be considered in relation to financial and institutional factors and any constraints that they may impose. Where necessary, the need for external funding should be identified so that donors can be approached to provide assistance. However, the aim should be to produce a strategy that minimised dependence on external financial and technical inputs.
5. Outputs The main outputs from the exercise will be: • A presentation of the initial outcomes of the study at end of Stage 1, to be used as the basis for a stakeholder workshop. • Draft and final Stage 1 report, setting out the results of investigations and options for an outline strategy for improving sanitation in the city. • A draft of the Outline Citywide Sanitation Strategy presented at a workshop with stakeholders • A final report with the final Outline Citywide sanitation Strategy taking account of any revisions agreed at the workshop
WSUP MADAGASCAR OUTLINING A SANITATION STRATEGIC PLAN FOR THE AGGLOMERATION OF ANTANANARIVO PHASE 1: ASSESSMENT OF THE SANITATION SITUATION
ANNEX 2 – LIST OF INDIVIDUALS/INSTITUTIONS CONSULTED
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Individual consulted Institutions Position
Mr. Robinirina Aubert Ministry of Water Director of Sanitation and Water Resources Management Mr. Rabe Harimanana Ministry of Land Development Director of Land Development
Ms. Razafimanantsoa Mbolatiana APIPA Technical Director
Mr. Rajaonarison Claude Urban Commune of Technical Director in charge of Antananarivo Infrastructures Maintenance Dr. Razanakombana Allyre DASS / CUA Head of the Water and Sanitation Unit Mr. Rakotomavo Rindra OPCI FIFTAMA Secretary General
Ms. Lowe Lucky WaterAid Country Representative for Madagascar Mr. Kouassi-Komlan Evariste UNICEF WASH Manager
Ms. Rakotoharifetra Dina UNICEF Water and Sanitation Specialist
Mr. Ralaiseheno Hasinjaka Guy Commune of Ankaraobato Mayor Maxime Mr. Maximain Technical service at the Technician Commune of Ankaraobato Mr. Andrianarisetra Rolland Commune Ivato Aéroport Manager of the Road System Service Mr. Jean- Baptiste Unit of Cleansing in the Driver of the waste collection truck Commune of Ivato Aéroport Mr. Razafindratsimba Rado Commune of Talatamaty Mayor
Mr. Razafindraibe Honoré Commune of Talatamaty Manager of the Cleaning Unit
Mr. Rakotobe Arthur Commune of Andoharanofotsy Manager of the Assets Unit
Mr. Andrianjafintsalama Solofoniaina Commune of Ivato Firaisana Deputy Mayor
Mr. Rambeloson Haja Commune of Ankadikely Ilafy Manager of the Cleaning Unit
Mr. Andriamora Avotraina Commune of Sabotsy Mayor Namehana Mr. Ramamonjihasina Lucien Commune of Sabotsy Sanitation Manager Namehana Mr. Randrianarisoa Jean Samuel Commune of Tanjombato Deputy Mayor
Mr. Rabefakatro Alphonse Commune of Bemasoandro Mayor
Ms. Rasoherimalalatiana Irma Commune of Bemasoandro Secretary General Emmanuel Mr. Razanaka Samuël Service de la Voirie- Commune Technician of Bemasoandro Mr. Randria Nelson Commune of Andranonahoatra Administrative and Financial Manager Mr. Andrianarison Hariniaina Olivier Commune of Ambohimangakely Mayor
Mr. Tahiry Commune of Ambavahaditokana Secretary General
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Mr. Raparaoelina Rado Commune of Ampitatafika Mayor
Mr. Raymond Rasolonjatovo Commune of Ampitatafika Deputy Mayor
Mr. Ramanamihaja Benarivo Commune of Alasora Mayor
Mr. Randrianjay Emmanuel Commune of Alasora Accountant, formerly a technical officer Mr. Rakotoarisoa Bien Aimé Commune of Soavina Mayor Rigobert Mr. Abel Commune of Soavina Mayor
Mr. Ranaritsio Fanantenana Isidore Commune of Anosizato Deputy Mayor Andrefana Mr. Ruffin Service de la Voirie- Commune Technician of Anosizato Andrefana Commune of Ambohibao Mr. Andrianarison Ferdinand Assistant to the Mayor Antehiroka
SOMEAH – 20 127 R1 – AVRIL 2010 ...... WSUP MADAGASCAR OUTLINING A SANITATION STRATEGIC PLAN FOR THE AGGLOMERATION OF ANTANANARIVO PHASE 1: ASSESSMENT OF THE SANITATION SITUATION
ANNEX 3 – ASSESSMENT OF THE SITUATION OF DOMESTIC WASTE COLLECTION SERVICES IN THE AGGLOMERATION
SOMEAH – 20 127 R1 – AVRIL 2010 1 WSUP MADAGASCAR OUTLINING A SANITATION STRATEGIC PLAN FOR THE AGGLOMERATION OF ANTANANARIVO PHASE 1: ASSESSMENT OF THE SANITATION SITUATION
In Greater Antananarivo, solid waste management differs between the Urban Commune of Antananarivo (CUA) and the peripheral Communes, members of the FIFTAMA, both in terms of management (organizational, collection method, mode of transportation, disposal method) and in terms of level of service (service rate, health conditions).
1.1. DOMESTIC WASTE MANAGEMENT AT THE LEVEL OF THE CUA The management of the collection and storage of domestic waste in the CUA falls to the Autonomous Service of Maintenance of the City of Antananarivo (SAMVA) whose functions are described in the Decree No. 96-173 of Act 95-035. In this respect, SAMVA is in charge of domestic waste throughout the CUA, that is to say the 192 fokontanys comprising the six (06) arrondissements of the CUA. It must ensure the collection, transportation and storage of the waste. The Graph # 25 - below summarizes the general characteristics of the management of the domestic waste collection and storage by SAMVA in the CUA.
Graph # 25 - GENERAL CHARACTERISTICS OF THE DOMESTIC WASTE MANAGEMENT BY SAMVA IN THE CUA
1.1.1. COLLECTION OF DOMESTIC WASTE
1.1.1.1. CONDITIONS OF COLLECTION (INFRASTRUCTURE & EQUIPEMENT) Domestic waste is collected at collective dumpsters (fixed dumpsters in concrete and mobile dumpsters in plastic or metal). The dumpsters are allocated to 460 community collection points scattered in the six (06) arrondissements of the CUA. The fixed dumpsters are in masonry e with a capacity of 3 to 5m3. The mobile metal dumpsters are of the German brand “Gerbracht” (of the "bucket chain" type), of a theoretical volume of 7m3 and of a working volume of 6m3.
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In some neighborhoods, the door-to-door system for collecting is sometimes adopted, but not by SAMVA. Households put their waste in plastic or jute bags. A third party (paid by the fokontany or an employee of a private company) collects then brings them back to the nearest SAMVA collective dumpster.
Dumpster in concrete – Rue Docteur Metal dumpster - Rue Rakoto de Montplaisir Andrianavony (Anosy) (Ankaditapaka)
Dumpsters in plastic - Rue Kaleba Razafimino Dooor-to-door system (Ambodirotra) (Angarangarana)
Waste collected at the collection points are then evacuated by trucks. The SAMVA uses several types of trucks: dumper trucks, multi-buckets dumper trucks, compactor trucks or ordinary retrofitted trucks. The dumper trucks and the multi-buckets dumper trucks with arms have been made available by the CUA (Commune controlled). The compactor trucks and the ordinary retrofitted trucks are vehicles for rent. All trucks owned or leased, perform day and night shifts, every day of the week.
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Dumper truck Multi-buckets dumper truck
Compactor truck Ordinary retrofitted trucks
The fixed dumpsters are emptied with a shovel and the wastes are loaded directly onto the trucks. The metal dumpsters are normally mounted on multi-buckets trucks. However, most multi-buckets dumper trucks are currently out of service. Thus, the metal dumpsters are often emptied manually as in the case of the fixed dumpsters.
1.1.1.2. LEVEL OF SERVICE Graph # 26 - illustrates the service rate in terms of collective dumpsters in the CUA’s six (06) arrondissements.
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Graph # 26 - SERVICE IN TERMS OF COLLECTIVE DUMPSTERS IN THE CUA’S SIX (06) ARRONDISSEMENTS
The following table shows the service rate in terms of infrastructure for waste collection in the six (06) arrondissements of the CUA. The service rate is evaluated based on the following parameters: • The average number of inhabitants served by each collection point,
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• The total amount of waste that the collection points can receive (on the basis of an average capacity of 6m3 per collection point) and, • The total amount of waste theoretically generated by the inhabitants (based on a production ratio of 600g/inhab/day in urban areas).
Table # 5 - SERVICE RATE IN TERMS OF COLLECTION POINTS OF THE WASTE IN THE CUA
Arrondissement Number of Overall Number of Number of Collection Amount of inhabitants density dumpsters inhabitants capacity of wastes (inhab/ha) or per work of the works produced collection collection (tons) (tons) points CUA Arrondissement 1 278,954 314 114 2,447 274 167 CUA Arrondissement 2 166,463 118 90 1,850 216 100 CUA Arrondissement 3 143,379 214 64 2,240 154 86 CUA Arrondissement 4 261,165 201 85 3,073 204 157 CUA Arrondissement 5 470,971 197 76 6,197 182 283 CUA Arrondissement 6 143,375 72 35 4,096 84 86 All CUA 1,464,306 169 464 3,156 1,114 879
As seen in the table, the current number of collection points scattered in the CUA should theoretically be sufficient to accommodate all waste generated daily by Antananarivo's households, provided that the collection is also performed daily. The overall capacity of collection of the works for the entire CUA is therefore 27% higher than the theoretical tonnage produced daily. However, it should be noted that the level of service is not balanced among the six arrondissements. Indeed, if for the 2nd arrondissement the collection capacity is more than 100% higher than the theoretical tonnage produced, for the 5th arrondissement, the collection capacity is only 65% of the theoretical tonnage produced and, it is just about enough for the 6th arrondissement (98%). For the other arrondissements, the capacities of the collection works are 30% to 80% higher than the theoretical tonnage produced daily. Graph # 27 - illustrates the collection capacity of the collection points at the six (06) arrondissements of the CUA.
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Graph # 27 - COLLECTION CAPACITY OF THE CURRENT INFRASTRUCTURE (CUA)
In terms of theoretical spatial distribution of the collection points, the previous table shows that in the CUA as a whole, each collection infrastructure serves an average of 3,000 to 3,500 people.
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The second arrondissement is the best equipped (one dumpster for less than 2,000 people), while the worst case is encountered in the 5th arrondissement (one dumpster for more than 6,000 people). For other arrondissements, the theoretical average spatial distribution of the collection points is about 1 dumpster for 3,000 people on average. These arrondissements have an average collection capacity that is 40% higher than the tonnage produced. Graph # 28 - illustrates the current theoretical spatial distribution of the collection points in the CUA’s six (06) arrondissements.
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Graph # 28 - THEORETICAL SPATIAL DISTRIBUTION OF THE CURRENT INFRASTRUCTURE (CUA)
The imbalance in the level of service is also found among fokontanys in the same arrondissement. The following Table # 6 - presents the percentage of fokontanys in each of the six arrondissements of the CUA that do not have any collection point.
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Table # 6 - RATE OF NON-SERVED POPULATIONS IN COLLECTION POINTS
Arrondissement Total number of Number of fokontanys Population concerned fokontanys without any collection point 1st arrondissement 44 11 ~75,320 inhab (27%) 2nd arrondissement 24 1 ~6,660 inhab (4%) 3rd arrondissement 34 7 ~22,940 inhab (16%) 4th arrondissement 32 7 ~54,845 inhab (21%) 5th arrondissement 27 4 ~56,520 inhab (12%) 6th arrondissement 31 11 ~32,980 inhab (23%) CUA 192 41 ~250,000 inhab (17%)
It should be noted that whereas almost all of the twenty-four (24) fokontanys of the 2nd arrondissement are served by collective dumpsters, only ¼ of the fokontanys of the 1st arrondissement have dumpsters. Over the entire the CUA, about forty of the 192 existing fokontanys are not equipped with collection points for domestic wastes. This corresponds to about 250,000 inhabitants, i.e. 17% of the urban population.
1.1.2. DISPOSAL CONDITIONS
1.1.2.1. DISPOSAL SITE The domestic wastes collected from the collective dumpsters are disposed of at the landfill of Andralanitra. The latter is located in the southeast of the city, in the Commune of Ambohimangakely (see Graph # 29 - ). It is accessible by the national road 2 at kilometric point 9. A secondary road leads to one entrance on the northwest side of the site. The landfill of Andralanitra, which was commissioned in 1966, is the only official landfill of the agglomeration of Antananarivo. It is located in the middle of a marshy area, near urban areas. The landfill receives all domestic waste collected by SAMVA and the wastes from individuals or businesses in the surrounding urban area, as well as the wastes of the Commune of Ambohimangakely. The landfill of Andralanitra is a crude landfill without any containment system or treatment of surface water flow. The wastes are deposited as fill. The leveling is done with a bulldozer.
Waste in landfills Waste in landfills
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Levelling by bulldozer Levelling by bulldozer
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Graph # 29 - LOCATION MAP OF THE LANDFILL OF ANDRALANITRA
1.1.2.2. UNLAWFUL DUMPING Unlawful dumping are unauthorized places where individuals throw their garbage. In most cases, the unlawful dumping is formed when the transfer of waste from households and markets to the dumpsters is deficient:
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• For areas not equipped with collective dumpsters (e.g. Ankasina and Andrefana Ankadimbahoaka - cf. pictures below) • For areas where the coverage area of each dumpster is very big, causing people to try to find other alternatives rather having to carry their garbage over long distances, • For neighborhoods where people sometimes lack a sense of citizenship by refusing to bring their garbage to collective dumpsters.
Unlawful dumping – Boulevard de l’Europe Unlawful dumping – RN7 (Fokontany d’Ankasina) (Fokontany d’Andrefana Ankadimbahoaka)
1.1.2.3. ENVIRONMENTAL IMPACT The activities of the landfill of Andralanitra are the cause of degradation of the immediate environment of the site, including: i) impact on water quality and soil through leachate seepage or stagnation, and ii) harm to human health of the adjoining communities due to the release of odors, toxic gases, and outbreaks of pests.
Dust from truck movements Noise generated by the trucks
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Flying waste Leachate to the nearby plots
Fire to sort metals Smoke
A campaign of sampling leachate and water wells9, conducted in 2009 showed that the leachate from the landfill is contaminated. The observed concentrations exceed, for several parameters, the permissible standards for the discharge of any effluent into the natural environment. In terms of groundwater pollution and contamination of wells, where pollution of water is noted in the plain, little effect seems to be noted on the quality of water drawn from wells (in total there are seven (07) wells within 500m around the boundary of the landfill), with the exception of the Ambaniala village, south to the landfill. In addition, water is used at the foot of the landfill, for purpose other drinking: water for irrigating rice and other crops grown on site (maize, beans), water from watering cattle observed on site, water for fish-farming at the foot of slopes. These uses all contribute to concentrating contaminants and transferring such contaminants into the food chain, a process that has not yet been documented to date. Regarding air pollution, nuisance suffered by people living nearby the landfill of Andralanitra are odor emissions and dust off the materials carried by the wind, pests and insects, the formation of aerosols and fumes.
9 Sogreah. Detailed Studies on Securing the Landfill of Andralanitra. CUA, 2009.
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1.1.2.4. RECYCLING AND SALVAGING ACTIVITIES Interesting recycling and salvaging activities are observed on the site. The activities consist in excavating to the depth of the old wastes and then performing a sieving to produce an organic soil (compost). This compost is currently produced on site in a traditional way by a few small teams, mainly from the association Akamasoa. These operators pay a fee to SAMVA, at the exit of the landfill. There is also the Company Taroka Company that has a warehouse on the site and buys from compost makers on the site. The product is obtained by sieving the old waste with a mesh of about 20 mm. The passing product seems to be a quality product, free of plastic and glass. It does not smell bad but neither does it produce the smell of humus that usually comes with quality compost produced from recent waste. We can legitimately think that the degradation of organic matter is virtually complete, but no toxicity control mechanism is in place to validate its use in agricultural amendment. In 2009, one cubic meter of compost was sold MGA 20,000 to MGA 30,000. A team of three (03) to four (04) people can produce an average of 5m3 of compost.
Excavation to reach the old waste Sieving to obtain compost
Another activity often encountered on the landfill of Andralanitra is the salvaging of fat from bones. The bones are crushed and boiled in hot water to extract fat. The solid part is separated from the liquid part, using sieves. The recovered fat is then used for the manufacture of handmade soap (saponification).
Recovery of bones on the landfill Extraction of fat from bones
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Beside the production of compost and bone recycling, the site of Andralanitra offers other sources of income for villagers: recovery and sales from the sorting of waste (e.g. coal, wood, metal, copper and aluminum ), collecting scraps of food to be sold to hog farmers in the area, collection of plastic wastes sold to specialized companies.
Sorting activities by rag dealers Recovery of plastic wastes
Recovery of scrap-iron Recovery of wood coal
1.1.3. ASSESSMENT OF FOKONTANYS UNSERVED IN TERMS OF WASTE COLLECTION INFRASTRUCTURE Out of the 192 fokontanys in the CUA, forty-four (44) are not served with collective dumpsters for the collection of domestic wastes (Table # 10 - . Graph # 30 - locates them. Half of those unserved fokontanys belong to the 1st and 6th arrondissements. The total population affected by the lack of waste collection infrastructure is approximately 250,000 inhabitants, 30% of whom are in the 1st arrondissement and 20% respectively in the 4th and 5th arrondissements. Field investigations were conducted on two types of fokontany to assess the situation of a fokontany without any garbage collection point: • The fokontany of Antohomadinika Afovoany in the 1st arrondissement: around 6,000 inhabitants with an overall density of about 570 inhabitants/ha, urbanized area; • The fokontany of Ambodirano Ampefiloha in the 4th arrondissement: around 9,500 inhabitants with a density of approximately 165 inhabitants/ha in the plain area.
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Graph # 30 - MAP LOCATING THE FOKONTANYS WITHOUT ANY COLLECTION POINTS (CUA)
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Set up of the fokontany of Antohomadinika Afovoany (1st arrondissement)
Set up of the fokontany of Ambodirano Ampefiloha (4th arrondissement)
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The results of the field investigations show that while the fokontany of Ambodirano Ampefiloha is relatively clean inside as it has low population density, Antohomadinika Afovoany, which has a population density three times higher, is faced with real problems in terms of waste management. In the fokontany of Ambodirano Ampefiloha, most people would throw their domestic waste along the limit of their plots, along the shallows. Some unlawful dumping area are also seen Route Digue (out of human settlements).
Inside the fokontany of Ambodirano Wastes thrown at the plot’s limit Ampefiloha
View of the inhabited zone from the Route Unlawful dumping along the Route Digue Digue
As regards the fokontany Antohomadinika Afovoany, the problem comes from the lack of internal access roads wide enough for the passage of SAMVA’s waste collection trucks. Thus, the waste collection is done in three ways: 1) either the households dump their garbage in jute bags (like rice bags) made available by the CUA within the fokontany or, 2) they bring directly their garbage bags to the CUA officers when they make their collecting rounds or, 3) the households bring on their own the garbage bags to the collective dumpsters of the neighboring fokontanys (a metal dumpster at the limit of the fokontany of Antohomadinika 3G Hangar in the West, and another in the fokontany of Antohomadinika FAAM in the East). Under the first two options, the collected wastes are transferred by the CUA agents, by wheelbarrow, to the nearest collective dumpsters (dumpsters of the neighboring fokontanys).
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Collection bag in an alley of the fokontany of Collective dumpster of one of the neighboring Antohomadinika Afovoany fokontanys of Antohomadinika Afovoany
However, it should be noted that the bags distributed by the CUA in the fokontany are not sufficient, and that their unit capacity too small (bag of the rice sack type). The nooks and crannies inside the fokontany (alleys or gutters) thus become places for the dumping of garbage. There is even discharge of garbage at the foot of collection bags and not inside them. The insufficient number of collection bags is also reflected by the formation of several unlawful dumping within the fokontany itself, most notably, in the vicinity of marshes in the southern and western parts of the fokontany’s land.
Waste thrown in a gutter Waste at the foot of a collection bag Antohomadinika Afovoany Antohomadinika Afovoany
Unlawful dumping – Antohomadinika Afovoany Unlawful dumping – Antohomadinika Afovoany
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1.1.4. FINANCING THE SERVICE The main financial resource for the service of solid waste management is the ROM (User’s fee on domestic wastes) which has the same tax base as property tax, and follows the same pipeline with the issuance of a roll and then recovery. The ROM represents 98% of SAMVA’s income for waste. The rate of the ROM ranges from 3% to 8% of the rental value of the property concerned. This rate was set at 3% in 2007 and 2008, which is the equivalent of an annual issuance of MGA 2.3 billion. The CUA has a stock of issued ROM of almost MGA 9 billion. This stock represents both the new roll of the year for waste collection and the rolls issued in the previous years that have not been recovered. Each year, the CUA only collects MGA 1.3-1.7 billion (see Table # 7 - ); the average collection rate is about 65%. It only pays about a third to SAMVA. The SAMVA has additional incomes from deposits of industrial waste at the landfill (approximately MGA 15 million per year representing 2% of the incomes) and sales of intermediate products from the shredding of rags (about MGA 1 million, representing 0.1% income).
Table # 7 - PIPELINE OF THE DOMESTIC WASTE USERS’ FEE (CUA)10
Million of MGA 2001 2002 2003 2004 2005 2006 2007 2008
ROM issued by the CUA 2,058 2,301 2,290 ROM issued by the CUA (stock not collected) 6,146 6,814 n.c. 8,605 8,571 n.c. n.c. n.c.
ROM budgeted by the CUA 3,399 3,518 n.c. 4,158 4,065 5,179 6,280 3,867
ROM collected by the CUA 1,630 1,362 n.c. 1,367 1,304 1,729 1,452 1,418
ROM paid to the SAMVA 649 659 n.c. 517 706 799 499 270
ROM received by the SAMVA 566 484 615 472 613 677 423 270 % of issued ROM received by the SAMVA 9% 7% - 5% 7% - - - % of collected ROM received by the SAMVA 35% 36% - 35% 47% 39% 29% 19%
The CUA does not pay the entire ROM to SAMVA because it pays itself a number of operating expenses, including fuel costs and sometimes the cost of rented vehicles. Thus, SAMVA finds itself obliged to cover staff costs, without having any knowledge of the operating budget of the department as a whole, nor any control over the frequency and quality of the resources used. In 2008, SAMVA received only MGA 270 million under the ROM, representing 20% of the ROM collected by the CUA, which is the lowest transfer since 2001.
10 Source : Sogreah. Operations Manual of the Landfill of Andralanitra. CUA, 2009.
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Graph # 31 - PIPELINE OF THE DOMESTIC WASTE USER’S FEES (CUA)
The wastewater user’s fees actually funds the activities of the waste disposal service of SAMVA as well. Indeed, the wastewater management service has a large operating surplus. In terms of financial situation, SAMVA is bankrupt: in late 2007, its equity was negative (MGA - 1.8 billion), and the debt to providers amounted to MGA 2.7 billion, which is almost two years of business turnover. The domestic waste service is in deficit - and is in this situation since 2001 - while the service of wastewater is in surplus. As it has already been mentioned, SAMVA uses therefore a portion of the income from the wastewater fee to fund the domestic wastes service. The situation significantly deteriorated in 2007, mainly because of the strong decrease of the ROM paid to SAMVA (-37%) and the sharp increase in the cost or renting collection trucks. The situation stabilized in 2008, with a net profit of MGA 818 billion, thanks to an "operating subsidy" of the CUA of MGA 1.4 billion. The graph below illustrates the recent deterioration of the financial situation of SAMVA’s domestic waste service.
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Graph # 32 - CHANGES IN THE FINANCIAL SITUATION OF THE “DOMESTIC WASTE” SERVICE OF SAMVA
1.2. DOMESTIC WASTE MANAGEMENT IN THE COMMUNES OF THE FIFTAMA
1.2.1. HOUSEHOLD ACCESS TO THE SERVICE
1.2.1.1. TYPE OF DOMESTIC WASTE MANAGEMENT SERVICES IN THE FIFTAMA The methods of managing solid waste in the Communes members of the FIFTAMA can be classified into three types: • Waste management service controlled by the Commune; • Limited public cleansing service including the collection of garbage on the roads and public places, or with the households; • Lack of any waste management service. Graph # 33 - below summarizes the general characteristics of these three types of waste management modes.
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Graph # 33 - TYPES OF DOMESTIC WASTE MANAGEMENT SERVICES IN THE COMMUNES OF THE FIFTAMA
1.2.1.2. ZONING OF THE COMMUNES Graph # 34 - illustrates the types of modes of waste management in the Communes members of the FIFTAMA: • Sixteen (16) Communes have Commune-controlled waste management (in blue); • Three (3) Communes have a limited public serving service including garbage collection (Ambohimanga Ampitatafika and Itaosy); • Ten (10) Communes have no service dedicated to the collection or management of waste (in red).
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Graph # 34 - ZONING OF THE COMMUNES OF THE FIFTAMA BY TYPE OF WASTE MANAGEMENT SERVICES
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1.2.2. COLLECTION OF DOMESTIC WASTES
1.2.2.1. CONDITIONS OF COLLECTION (INFRASTRUCTURE & EQUIPMENT) In Communes that have a Commune-controlled waste management, waste is collected in collective dumpsters and/or at collection points around the Commune. The dumpsters are either collective or metal dumpsters, or permanent constructions. Collection points are specific locations within the Commune’s territory; unlawful or permitted, in which garbage is deposited by individuals, merchants, public cleansing services, etc.
Collective dumpster - Ambohimangakely Collective dumpster – Sabotsy Namehana
Collection point - Andoharanofotsy Collection point – Ivato Aéroport
The waste collected in collective dumpsters and/or at collection points are then removed by the municipal service in charge of waste management. The emptying of the dumpsters and the truck loading is done manually. Most Communes having a Commune-controlled waste management service own one or more waste collection vehicles (dump truck, compactor truck or simple retrofitted truck). However, Communes sometimes make use of rented trucks (e.g. in case their truck has broken down11 or in case they do not own a truck12). The waste collection at collection points or at the households is also sometimes done with wheelbarrows.
11 The case of the Commune of Ivato Aéroport 12 The case of the Communes of Ankadikely, Ankaraobato, Anosizato Andrefana and Ivato Firaisana
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Emptying of a concrete dumpster – Sabotsy Loading of a truck – Sabotsy Namehana Namehana
Compactor truck – Sabotsy Namehana Broken down truck – Ivato Aéroport
In a number of Communes, the door-to-door collection system is also used: the households put their wastes in plastic or jute bags, and i) either place them in the street outside their homes where they are collected by the collection service (e.g. the case of Andoharanofotsy), ii) or they present them directly to the collection service when it makes its rounds (e.g. the case of Ivato Airport and Antehiroka). However, this type of collection is limited to accessible areas.
Dumping of garbage bags - Andoharanofotsy Handing out of garbage bags - Antehiroka
In the special cases of the Communes of Antehiroka, Bemasoandro, Andranonahoatra, Ambavahaditokana and Soavina, the collection of waste is only done through the door-to-door system. There are no collective dumpsters or collection points in these five Communes.
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Finally, for Communes that only have a limited public cleansing service including waste collection (Ambohimanga, Ampitatafika and Itaosy), the agents who sweep the streets and public places (e.g. markets) also collect the domestic wastes that the populations directly hand over to them. They then carry them with the sweeping waste to the disposal sites.
1.2.2.2. LEVEL OF SERVICE Graph # 35 - illustrates the service rate in terms of dumpsters and collection points in the Communes that have a Commune-controlled waste management service.
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Graph # 35 - SERVICE IN TERMS OF COLLECTIVE DUMPSTERS AND COLLECTION POINTS (FIFTAMA)
The Communes where waste collection is done only through the door-to-door system do not have collection facilities (collective dumpsters and/or collection points). These include the Communes of Antehiroka, Bemasoandro, Andranonahoatra, Ambavahaditokana and Soavina.
Among the eleven (11) Communes with waste collection infrastructure (collective dumpsters and/or collection points), three Communes, namely Alasora, Ambohimangakely and Sabotsy Namehana, have a low population density of the non-dense rural type (less than 25 inhabitants per hectare), and the rest have higher population density that are of urban or dense rural type (density above 25 inhabitants per hectare).
The following table shows the service rate in terms of waste collection infrastructure (collective dumpsters and/or collection points) in the eleven (11) Communes. The service rate is evaluated based on the following parameters: • The average number of inhabitants served by each dumpster or collection point, • The total amount of waste that the collection points can receive (on the basis of an average capacity of 6m3 per dumpster or collection point), and • The total amount of waste theoretically generated by the inhabitants (based on a ratio of production 400g/inhab/day in a diffuse rural type zone and 600g/inhab/day in an urban or dense rural type zone).
Table # 8 - SERVICE RATE IN TERMS WASTE COLLECTION INFRASTRUCTURE (FIFTAMA)
Commune Number of Overall Number of Number of Capacity Amount of waste inhabitants density dumpsters inhabitants per collection of produced (tons) or collection collection work the works For For points (tons) D<25 D>25 inhab/ha inhab/ha Alasora 40,069 19 10 4,007 24 16 Ambohimangakely 54,674 17 6 9,112 14 22 33 Andoharanofotsy 32,874 35 14 2,348 34 20 Ankadikely Ilafy 142,352 41 21 6,779 50 85 Ankaraobato 40,583 131 5 8,117 ²2 24 Anosizato Andrefana 37,459 220 3 12,486 7 22 Ivato Aéroport 36,009 51 12 3,001 29 22 Ivato Firaisana 13,373 28 2 6,686 5 8 Sabotsy Namehana 53,035 24 4 13,259 10 21 32 Talatamaty 58,804 48 18 3,267 43 35 Tanjombato 59,643 119 5 11,929 12 36
The table shows that out of the eleven (11) Communes with waste collection infrastructure (collective dumpsters and/or collection points), only four (04) are sufficiently equipped to collect all the waste generated daily. These are the Communes of Alasora, Andoharanofotsy, Ivato Airport and Talatamaty.
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For the seven (07) other Communes, the collection capacity of the works are not enough to collect all the waste generated. The collection capacity of the works compared to the theoretical tonnage produced ranges from about 30% (Anosizato Andrefana and Tanjombato) to about 60% (Ankadikely and Ivato Firaisana). Furthermore, it should be noted that for the Communes of Ambohimangakely and Sabotsy Namehana, although they have overall densities of diffuse rural type (below 25 inhab/ha), these Communes have relatively urbanized cores with punctual densities of the urban or rural dense types. If one considers that these Communes are of rural dense or urban type, the capacity for collection of their works as compared to theoretical tonnage produced is respectively reduced down to 45%, (Ambohimangakely) and 30% (Sabotsy Namehana). Graph # 36 - illustrates the collection capacity of existing infrastructure in the Communes of the FIFTAMA equipped with such infrastructures.
SOMEAH – 20 127 R1 – AVRIL 2010 29 WSUP MADAGASCAR OUTLINING A SANITATION STRATEGIC PLAN FOR THE AGGLOMERATION OF ANTANANARIVO PHASE 1: ASSESSMENT OF THE SANITATION SITUATION
Graph # 36 - LEVEL OF THE COLLECTION CAPACITY OF THE CURRENT INFRASTRUCTURE (FIFTAMA)
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In terms of theoretical spatial distribution of the dumpsters and/or collection points, the previous table shows that each collection infrastructure serves on average 7,000 to 7,500 people. The worst cases (an average of one dumpster for 12,500 people) are encountered in the Communes of Anosizato Andrefana (one dumpster for nearly 12,500 people), Tanjombato (one dumpster for nearly 12,000 people) and Sabotsy Namehana (one dumpster for more than 13,000 people). These three Communes are also those with the lowest collection capacity as compared to the produced tonnage (an average of 35%, cf. Graph #36). However, for the Commune of Sabotsy Namehana, the result has to be kept in perspective as most of the inhabitants are in very rural areas where the waste disposal mode is rather burying in the yard and burning. In Communes with a sufficient collection capacity as compared to the tonnage produced (Alasora, Andoharanofotsy, Ivato Airport and Talatamaty), the average theoretical spatial of the dumpsters and/or collection points is in the range of one a dumpster for 3,000 people. In the remaining Communes, the theoretical spatial distribution of the dumpsters and/or collection points is of one dumpster for 7,600 people on average. These Communes have an average collection capacity as compared to quantities produced of about 60% (see Graph #36). Graph # 37 - illustrates the theoretical spatial distribution of the current dumpsters and/or collection points in the Communes of FIFTAMA equipped with such facilities. .
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Graph # 37 - THEORETICAL SPATIAL DISTRIBUTION OF THE CURRENT INFRASTRUCTURE (FIFTAMA)
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1.2.3. DISPOSAL CONDITIONS In the sixteen (16) Communes that have Commune-controlled services in charge of waste management, the waste is evacuated to sites estimated to be "official sites" for the disposal of solid wastes; that is to say, the sites where the municipal services deposit the garbage they collect, and where they also allow the dumping of wastes by individuals. However, unlawful dumping (unauthorized) also exists.
1.2.3.1. "OFFICIAL" DISPOSAL SITES "Official" waste disposal sites can be either a landfill (the site of final and permanent disposal of the wastes collected by the service, in a wild way or not, with recovery/recycling activities or not), or a temporary dumping (a site used for a specified period for the recovery of organic matter, then incineration of the remaining waste and transfer of the place of disposal), or it is a dump (e.g. a dumping to fill a wetland area or for landfill, dumping in a gully, simple dumping of garbage without any leveling or any salvaging/recycling activity). Graph #20 – shows the location of the landfills and dumps used by the Communes members of the FIFTAMA. Their coordinates are given in the following table.
Table # 9 - LOCATION OF THE LANDFILLS AND DUMPS OPERATED BY THE COMMUNES OF THE FIFTAMA
Site Operating Commune WGS84 geographic coordinates Latitude Longitude Landfills Ambohijanaka Andoharanofotsy 19°00'01.2"S 47°32'55.4"E Andralanitra Ambohimangakely 18°54'45.0"S 47°34'37.4"E Andramiarana Talatamaty 18°51'20.0"S 47°27'26.5"E Andranobevava Antehiroka Ambohibao 18°51'32.7"S 47°27'47.1"E Antsahamarofoza Ankadikely Ilafy 18°49'48.5"S 47°36'23.1"E Belambanana Ankaraobato 18°58'43.0"S 47°32'07.4"E Tongarivo Tanjombato 18°57'58.7"S 47°31'21.5"E Dumps Ankadibe Bemasoandro 18°54'40.2"S 47°29'27.7"E Sakambahiny Andranonahoatra 18°54'50.9"S 47°28'37.5"E Ambohitrandriamanitra Alasora 18°57'59.5"S 47°34'50.7"E Andrady Ambavahaditokana 18°55'40.8"S 47°27'53.2"E Amoronanony Ampitatafika 18°56'09.1"S 47°28'30.6"E Antokotanitsara Anosizato Andrefana 18°56'14.0"S 47°29'50.2"E Depots Mahitsikely Sabotsy Namehana 18°49'14.8"S 47°35'22.3"E Mangaika Ivato Aéroport 18°46'29.8"S 47°28'05.7"E
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Graph # 38 - LOCATION OF THE WASTE DISPOSAL SITES OF THE COMMUNES OF THE FIFTAMA
None of the storage sites (landfill or dump) is controlled in terms of access, containment or operation mode. The wastes are simply dumped on the site. Individuals involved in salvaging/recycling activities (mainly recycling of the organic fractions to compost) or recovery (sorting recoverable materials) do it on the site itself. Most often, when the waste has been sorted and/or composted, the remaining waste is burned to reduce its volume and to continue to operate the landfill.
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Landfill of Tongarivo Landfill of Ambohijanaka
Landfill of Belambanana Landfill of Antsahamarofoza
Dumping of Mahitsikely Dumping of Mangaika
Dumping of Ankadibe Dump of Sakambahiny
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Dump of Ambohitrandriamanitra Dump of Andrady
Dump of Amoronanony Dump of Antokotanitsara
The landfills of Andramaria Faralaza (for Tanjombato) and Andranobevava Faralaza (for Antehiroka) call for special attention as they are located in the area of Ambohitrimanjaka, on the embankment on the right bank of Ikopa in the vicinity of water catchment facility of JIRAMA. It is clearly visible that the waste encroaches into the marsh especially when the waste is leveled.
Landfill of Andranobevava Faralaza Landfill of Andramiarana Faralaza
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1.2.3.2. UNLAWFUL DUMPING The dumping called unlawful in this document are the places on which waste is dumped by individuals or by private operators, but are not authorized neither by the Commune where the waste originated nor by the Commune where the unlawful dumping sites exist, but which have become sites similar to existing "authorized" landfills and depots. In most cases, unlawful dumping are located, either within residential areas, when the collection infrastructure is lacking (collective dumpsters, collection points) or where there is a place conducive to the dumping of garbage (e. g. ravine), or on roads leading to the landfill sites, when the way is damaged or when the site is still far (saving on transport).
Unlawful dumping at Andranonahoatra in an Unlawful dumping in Alasora, on the road urban area leading to the landfill
Unlawful dumping in Ampitatafika on a former Unlawful dumping at Ambavahaditokana site of borrows
1.2.3.3. ENVIRONMENTAL IMPACT Table # 10 - describes the various nuisances that are created by a landfill, the two most important ones being the leachate and biogas.
Table # 10 - NUISANCES CREATED BY A LANDFILL
Leachate Biogas Stray animals Solid wastes Visual aspect, etc. Direct consequences Contamination: Odors Parasites of the Landslides Safety in the Soil Explosions landfill Flying waste villages Groundwater Fires Destruction of Injuries by sharp Modified fauna and flora objects landscapes
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Leachate Biogas Stray animals Solid wastes Visual aspect, etc. Rivers Air pollution Settlement Seas Indirect consequences Poisoning by Poisoning Disease vectors Infections On tourism drinking water Asphyxia Epidemics Opposition from Epidemics Greenhouse effect Infections due to the citizens Destruction of Diseases such as bites or scratches fauna and flora cancers
The leachate or seepage liquid from the landfill is filled with bacteriological and chemical substances that may be mineral or organic. They can mix with surface water as well as groundwater and thus constitute a polluting element both in their quantitative and qualitative appearance (ecotoxicological items). Leachates make up a large share of the pollution from a landfill. Unlike biogas that are easily dispersed into the air, leachates due to the fact that they are fluids constitute a concentrated source of pollutants (e.g. soluble organic matter resulting from biological activity of the landfill, inorganic constituents such as heavy metals coming from batteries, germs, etc.) The biggest hazard related to the production of leachate is the contamination of groundwater. The consequence would be the pollution of drinking water wells, which would deprive people of a vital element for survival. As to biogas, its composition in terms of major molecules (methane, carbon dioxide, oxygen and nitrogen) is highly variable and depends on the age of the landfill, the landfill conditions (e.g. compaction) and the composition of the wastes. In addition to these major components, biogas also contains a multitude of organic substances in trace state and of a highly diverse nature (aldehydes, ketones, alcohols, aromatic compounds, halogenated compounds, organo- sulfur). Overall, in terms of risks related to biogas, we can distinguish risk to humans (toxicity of trace substances, asphyxiation of field operators, methane explosion, fire) and risk of pollution of the atmosphere (the major gases are greenhouse gas emissions and smog initiators). Besides these technical aspects, there are other nuisances with an environmental impact that are often less significant than the biogas and leachate, but for which the consequences on the socio-economic status are more easily discernible. The visual impact of the domestic waste landfills coupled with the problems of odor, are issues that must be taken into account. Similarly, safety concerns for the neighboring population, associated with the transportation of the wastes, constitute a real risk. The storage of waste also results in brining around a range of pests such as stray animals, which are a nuisance for people and for workers. The sites of waste disposal in the Communes of the FIFTAMA are generally dedicated areas but are not controlled; they are operated in the absence of a developed site. These waste storage areas are used without any protective measures (e.g. sealing, waste storage, stored, etc.). and may even be located in sensitive areas (e.g. along rivers) or inappropriate in terms of health (e.g. presence of water wells, within residential areas). The few photos shown below illustrate the environmental impact of landfills and dumps in the Communes of the FIFTAMA, as developed previously.
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Landfill fire – Landfill of Andramiarana River Pollution– Landfill of Andramiarana
A water well 10m from the dump of Pollution of a waterplane – Landfill of Antokotanitsara Tongarivo
Site in a residential area – Landfill of Stray animals – Landfill of Ambohijanaka Belambanana
1.2.3.4. SALVAGING AND RECYCLING ACTIVITIES The main salvaging activity in waste disposal sites consists in composting of fermentable organic matter. To do so, people sort first the waste delivered to the site in order to set aside the fermentable organic waste. Then, the organic waste is piled up in the open air, allowing for the fermentation process to begin.
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Composting – Landfill of Ambohijanaka Composting – Dump of Sakambahiny
The compost obtained in this way is then used for the amendment of agricultural plots in the area around the waste disposal site. In many cases, agricultural plots set up in close proximity to landfill or dump sites. It also happens that compost produced by local farmers is purchased by farmers from localities further away (e.g. the case of the dump of Mangaika for the Commune of Ivato Airport).
Agricultural plot – Dump of Mangaika Agricultural plot – Dump of Mahitsikely
Agricultural plot - Dump of Sakambahiny Agricultural plot – Landfill of Ambohijanaka
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Landfill and agricultural plots – Landfill of Ambohijanaka
There are other forms of salvaging found in some waste disposal sites in addition to composting of organic fractions, mainly salvaging of coal, firewood, and bottles.
Salvaging of wood and coal Salvaging of various materials Landfill of Ambohijanaka Dump of Mangaika
1.2.4. ASSESSMENT OF THE SITUATION IN COMMUNES WITHOUT ANY WASTE MANAGEMENT SERVICE Out of the twenty-nine (29) Communes members of the FIFTAMA, ten (10) do not have any household waste management service (neither a Commune-controlled service nor a limited public cleansing service including waste). These are the communes of Ambohidrapeto, Ambohitrimanjaka, Ampanefy, Ampangabe, Ankadimanga, Bongatsara, Fiombonana, Manandriana, Soalandy, and Tsiafahy. Almost all of these Communes have the particularity of being very rural and with a very low population density (less than 15 inhabitants per hectare). Waste is thus eliminated by the people themselves. Organic matters are sometimes traditionally transformed to compost (for farming activities of the households). The remaining waste is burned in the courtyard, in a pit or a metal drum or on surface.
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Waste pit in the courtyard - Ambohidrapeto Waste dumping in a courtyard - Bongatsara
However, the Commune of Ambohidrapeto has a higher population density, of the rural dense or urban type (77 inhab/ha). The lack of collection service or household waste management combined with fairly high population density (overall density of 77 inhab/ha) inevitably leads to the formation of unlawful dumping, scattered namely around residential areas of the high class or middle class type.
Unlawful dumping at Ambohidrapeto Unlawful dumping at Ambohidrapeto
Residential area and unlawful dumping Residential area and unlawful dumping
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1.2.5. FINANCING THE SERVICE In general, in the Communes members of the FIFTAMA with a household waste management service, the service is funded through the Commune’s general budget. Which often includes the annex fee to property tax (TAFB), calculated on the same tax base as the IFPB and the ROM. The TAFB is intended to finance expenditures related to public sanitation, whether they are directly controlled by the Commune or delegated, but the big difference with the ROM is that it is not earmarked: it feeds into the general budget of the Commune. The General Tax Code also specifies that the ROM and the TAFB cannot be concurrent.
1.3. ONGOING PROGRAMS IN THE AREA OF DOMESTIC WASTE MANAGEMENT
1.3.1. IMPROVING THE SAFETY OF THE LANDFILL IN ANDRALANITRA The project objective is to implement priority investments to improve safety for the remaining years of operation, in anticipation of the closure of the landfill of Andralanitra. Indeed, the landfill is planned to close as soon as possible due to the nuisance and pollution observed. The project includes three (3) components: i) works to improve security (reshaping of the slopes, building a service alley, building of an embankment ring and a perimeter wall, improvement of the environment of the site) ii) the organization and operation of the landfill (production of an operation manual, purchase of equipment), and iii) the design and implementation of a social support plan to mitigate the impact of the works on the families taking all or part of their income from the landfill.
1.3.2. INTEGRATED MANAGEMENT OF SOLID WASTE (IMSW) IN THE GREATER ANTANANARIVO The project objective is to build in those communes of the Greater Antananarivo that are the most directly concerned, a sustainable system for urban solid waste collection and storage, under controlled environmental and social conditions and at costs that are affordable for the local authorities involved and in line with the fiscal capacity of the populations. The project includes the construction of a new landfill that would handle waste after the closure of the landfill Andralanitra. The thirteen (13) Communes interested in the project are grouped within the Inter-municipal Organization for the Integrated Management of Solid Waste (OPCI-GIDS). These are the Communes of Ambohimangakely, Andoharanofotsy, Andranonahoatra, Ankadikely, Ankaraobato, Antehiroka, Bemasoandro, Ivato Airport, Ivato Firaisana, Sabotsy Namehana, Talatamaty, Tanjombato, and the Urban Commune of Antananarivo (CUA). Preliminary studies for informed decision-making, detailed technical studies, and environmental and social impact assessments are planned as part of preparing the project’s implementation.
1.3.3. IMPROVING THE MANAGEMENT OF DOMESTIC WASTE IN AMPITATAFIKA The current project is aimed at improving waste management in those areas that are critical in terms of waste production (e.g. market, fokontany with a high density). To this end, twelve (12) wooden bins are being manufactured. They will be located at places with significant amounts of waste produced. The waste collected in the bins will be transferred by carts to the site of Amoronanony, the current dump of the Commune of Ampitatafika. In addition, under this same project, the Commune also plans to move the final waste disposal site to Ambohibary (about 4km from the center of the Commune), the current dump of Amoronanony will then only ensure the function of collection point.
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The transportation of waste from Amoronanony (collection point) to Ambohibary (landfill) would be by truck. To this end, the Commune of Ampitatafika is negotiating with SAMVA to obtain a truck, the cost of fuel being borne by the Commune.
Bins being manufactured Site of Ambohibary for the future landfill
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ANNEX 4 – REPORT ON THE PHASE 1 WORKSHOP HELD ON APRIL 13, 2010
SOMEAH – 20 127 R1 – APRIL 2010 ...... 12/05/2010
Phase 1 Workshop
April 13, 2010 ‐ CNEAGR
1 12/05/2010
1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
2 12/05/2010
1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
3 12/05/2010
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Study Zone
CUA + FIFTAMA
~2,500,000 inhabitants :
• ~1,500,000 inhabitants in CUA
• ~1,000,000 inhabitants in the 29 communes of FIFTAMA
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Problem Identification
Development of basic sanitation lagging:
• A large ma jor ity o f the popu la tion in the agglomeration still use traditional latrines with a dry pit: ¾ of inhabitants in CUA and 95% of inhabintants in FIFTAMA communes.
• Emptying of pits: mainly by private operators who are mostly small-scale entrepreneurs operating informally under unhygienic conditions (direct handling of human waste)
• Current practice: discharge waste in the nature. In CUA, drainage products are directly thrown into River Ikopa
1 12/05/2010
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Problem Identification
The collective sewage network has limited coverage and is dilapidated:
• The coll ec tive sys tem covers on ly par t o f the l an d o f the commune (1 st and 3rd arrondissement) and serves only about 17% of its population.
• For the rest of the population in CUA and for the population in peripheral communes, sewage is managed at the local level through autonomous systems(stand-alone sumps, sumps + septic tank) or by direct spreading on the ground or into the storm drainage systems.
• About forty fokontanys out of the 192 in CUA are periodically faced with inundation problems. Most of them are located in the urban plain where drainage is subject to major physical constraints.
• In the FIFTAMA, low-lying areas along River Ikopa are faced with inundation problems.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Problem Identification
Inadequacy of the domestic waste management service:
• Though SAMVA covers all of the 6 arrondissement in CUA, there remains about 40 fokontanys that do not have access to its service, representing about 17% of the commune’s total population – most of which are located in the urban plain (hard-to-access and non-constructible zones)
• 19 of the 29 communes in FIFTAMA have domestic waste management services directly operated by public authorities. The coverage rates range from 30% to 60%. The sites of discharge (landfills) lack controls.
2 12/05/2010
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Problem Identification
Unclear distribution of roles and duties despite laws, policies, and strategies in place:
• From the institutional point of view, several actors are involved in the provision of sanitation services. The distribution of roles and duties among them is not yet clear to all though the various texts in force (laws, decrees, policies, and strategies) should allow for delineating them.
Deficiencies in the enforcement of policies and strategies:
• The support actions to the implementation of policies and strategies adopted are deficient, as evidenced by the communes’ very poor capacity to mobilize the resources needed to fund the existing sanitation services.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Problem Identification
Problems of the inundable low-lying areas in the urban plain:
• Health conditions are especially critical due to the combined effect of inundability, widespread use of traditional latrines, poor access to sanitation services (domestic waste and sewage), and high population density.
• Sanitation interventions should target these fokontanys in priority.
3 12/05/2010
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Problem Statement
Unrealistic programmatic approach:
• The draft sanitation master plans have favored the development of networked collective sanitation. The investment costs proved to be colossal and the projects became unrealistic.
• The population and the communes have not been appropriately associated in the discussions under the development of the projects which have failed to meet the actual needs corresponding to willingness and capacity to pay.
 Hence the present flexible, inclusive, and practical approach.
4 12/05/2010
1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
4 12/05/2010
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
The main elements of the legal and regulatory framework:
• At98Act 98 – 029 on th e C od e of W at er and it s 13 imp lemen ting decrees
• National Sanitation Policy and Strategy Document (PNSA) adopted by Decree 2008-319 in November 2008
• Decree 63-192 on March 27 Code of Urban Development and Habitat as amended by decree 69-335 in 1969.
• Act 95-035 authorizing the setting up of bodies in charge of urban sanitation and setting urban sanitation user fees in 1995.
• Decree 96.173 restructuring the Antananarivo’s Autonomous Maintenance Service (SAMVA) in 1996
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
The main elements of the legal and regulatory framework:
• Decree 2008-881 on th e organi zati on of urb an sanit ati on i n th e cit y o f Antananarivo
• Act 95-034 authorizing the setting up of bodies in charge of protection again inundation and setting user fees for protection against inundations.
• Decree 2002-979 on the reorientation of the Authority for the Protection of the Plain of Antananarivo against Inundations (APIPA)
1 12/05/2010
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Code of Water:
• Qualitative protection of water resources (Article 12: obligation to suppress any source of pollution)
• Obligation for the population to dispose waste (Article 15) « under the responsibility of the communes » (Article 16)
• Definition of sanitation (Article 19)
• Roles of communes in the drainage of sewage and disposal of waste (Articles 16, 20, 21, 39, 41), namely as owner and contracting authority that has the option of contracting an acting manager for sanitation services relating to sewage and storm water (Articles 45 and 46)
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Code of Water:
• Modalities of funding and principles for setting user fees that must seek balance between levels effective for management and users’ capacity to pay (Articles 54, 55 and 56)
• The option of using individual sanitation (Article 20)
• The need to protect watersheds (Articles 23 and 24)
• The duties of the National Water and Sanitation Authority (ANDEA) in integrated management of water resources (Articles 75 and 76)
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Act 95-035 authorizing the setting up of bodies in charge of urban sanitation and setting user fees for urban sanitation:
• authorizes in the land of the Republic at the communes’ level: − the setting up of bodies in charge or urban sanitation − the collection of user fees for urban sanitation (article 1)
• states that urban sanitation is ensured by : − Antananarivo’s Autonomous Maintenance Service (SAMVA) in the commune of Antananarivo − A public body in communes that will have decided to set up such body (article 2)
• Organizes the system of user fees on sewage, domestic waste, control of individual sanitation, and drainage/emptying operations (Articles 3, 4 , and 5)
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
The implementing Decree 96-173:
• (Art . 1) set s up SAMVA , a s ta te-ffddidtildunded industrial and commerc ilial establishment (EPIC) « in charge of operating and maintaining CUA’s sanitation structures and equipment including the three components of Sewage, Domestic Waste, and Drainage Products.
• (Art.4) authorizes CUA’s Mayor’s Office « to make structures and equipment available to SAMVA » . Organizes the system of user fee on sewage, domestic waste, control of individual sanitation, and drainage/emptying operations (articles 3, 4, and 5)
Decree 2008-881 :
• generated through Articles 1 and 3 malfunction and confusion: the Ministry of Water takes on a duty that used to fall to a public body (EPIC) through the transfer to the the ministry of part of management tools that used to be part of SAMVA’s duties, which is against Articles 41, 45, and 46 of the Code of Water and Act 95-035
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Decree 63-92 on March 27, 1963 on the Code of Urban Development and Habitat:
• Under the decree, any construction of housing must be authorized by a building permit that is granted only if a sanitation system is provided for.
• According to the Code of Urban Development, the building permit is issued on behalf of the Mayor, upon a compliance check by the representative or architecture and urban development.
• The building permit is issued only when « Art. 138 – the sanitation of any construction for lodging purpose and any premise that may serve by day or by night for work, rest or leisure as well as the disposal, purification, and discharge of industrial waste water are ensured. »
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Decree 2008-319 on the National Sanitation Policy and Strategy Document (PSNA) provides specifications and guidelines as regards:
• The scope of the document that « pertains mainly to the management of solid waste of the domestic type, excreta (latrinization and drainage matter), sewage, and storm water. »
• The clarification of duties’ distribution and the setting up of a practical and operational institutional organization:
− Assigning specific duties to each Ministry; − Confirminggy the key role that Re gions are to pypg,pgplay in planning, implementing and controlling sanitation; − Confirming the Communes’ duties as Owners and Contracting Authorities; − Confirming that the beneficiary population is to be the only one contributing to the funding of operations through the payment of user fees, that it has to fund individual infrastructures, as well as the operating investments and ultimately collective infrastructures to ensure as much autonomy as possible to the sanitation service.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Decree 2008-319 on the National Sanitation Policy and Strategy Document (PSNA) provides specifications and guidelines as regards:
• Delegation of management in order to contract out the service and allow the communes for fully playing its role of Owner and Contracting Authority;
• The roles of private enterprises, associations, and NGOs.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Act 95-034 authorizing the setting up of bodies in charge of protection again inundation and setting user fees for protection against inundations and Decree 2002-979
• authorizes on the land of the Republic at the communes’ level: − The setting up of bodies in charge of protection against inundations; − The collection of user fees for protection against inundations (Article 1).
• Organizes the collection of user fees, namely the user fees that concerned communes may collect to the benefit of APIPA as authoritize dby Act 95- 034 on October 3, 1995.
• Establishes an agreement between the communes concerned by APIPA for the provisions relating to the user fees.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framewok
Strengths: Le current legal and institutional framework has succeeded to:
• De termi ne the dis tr ibu tion o f ro les an d du ties among ac tors; • Define duties as regards investments and the management of the various aspects of sanitation, namely through a definition and distribution of duties in the collection and management of user fees. • Make a law of and organize the sanitation policy and strategy, making the roles and functions of actors more explicit: : − Accountable governance of investment policy and support; − The commune as owner and contracting authority; − An acting manager, public or private for the management of the sanitation public service; − The private sector and NGOs for activities to develop infrastructures on one hand, and for health education and community mobilization on the other hand; − The beneficiary population as the main financial contributor and as educated and responsible users; − Technical and financial partners to provide support for developing technologies and for investments.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Constraints: Poor knowledge of the legal framework among authorities, communes, and the population; hence poor enforcement that results in malfunc tion an d con fusi on:
• Role of manager that the Ministry of Water took over by Decree 2008-881; • Putting APIPA under the Ministry of Water’s authority, while it is a manager of a service within CUA; • Poor mastery by CUA of the function of owner and contracting authority as well as laws and decrees on urban sanitation, the law and decrees pertaining to APIPA, which accounts for its poor performance in cost recovery; • No knowledge of Act 95-035 among the other communes , which accounts for not setting up SAMV; • Non enforcement of the decree on building permits; • Poor knowledge of the duties of ANDEA, which accounts for the very poor performance in collecting user fees on the use of water resources.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Legal and Institutional Framework
Constraints: Poor knowledge of the policy and strategy, which accounts for confusion in intervention approaches:
• The « Engineer » approach consisting in offering latrines to the population going against the « Social Marketing » approach in line with the legal strategy described in PSNA, based on the principle that the population must pay for their latrines.
• Both approaches are being implemented under a same authority.
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1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Which excreta management systems?
Connection to the Discharge in a septic Use of a drainable pit Use of a non-drainable collective system tank pit
Modes of collection Collective sewerage Septic tank and sump Dry, drainable pit or lined Dry, non-drainable pit system pit
Commune’s service, Cleaning by the household, No emptying (digging of a Modes of emptying No emptying private company, unskilled unskilled workers, or new hole) workers private company
Disposal with effluents of River Ikopa, pit in the River Ikopa, pit in the Burying in the filled pit Modes of disposal the collective sewerage yard, channel, river, or rice yard, channel, river, or rice system field field
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of excreta
Sanitary facilities:
Type of toilets Percentage of households
Flush toilet 19.9%
Pit latrine 67%
Tub 6.6%
Other type of toilet 2.4%
No toilet 4.3%
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Management of excreta
Excreta collection systems:
• Evacuati on of excret a with bl ac kwa ter throug h connec tion the co llec tive sewerage system: 1% of households in peripheral communes / 17% of households in the Urban Commune of Antananarivo (CUA)
• Dry pit or any other means of disposal: 95% of households in peripheral communes/ 75% of households in CUA
• Septic tank: 5% of households in peripheral communes / 9% of households in CUA
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of Excreta
Ratios of drainable “dry pits and other”:
• 16% o f p its in per ip hera l communes / 62% o f p its in CUA.
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Management of Excreta
Modes of emptying in CUA:
• 60% manuall y emp tie d by unskilled workers.
• 10% emptied by private companies.
• 2% emptied by DTMI/CUA.
• 28%: pit toilets and other modes of disposal .
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of Excreta
Modes of emptying in peripheral communes:
• Only 16% have drainable pits.
• Among drainable pits: − 89% are filled and a new one is dug. − 8% are emptied by the households themselves. − The rest is clead by unskilled workers or a private company, or the road maintenance and cleaning department.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of Excreta
Frequency of emptying in peripheral communes:
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of Excreta
Disposal of the drainage products in CUA:
• The d rai nage matt ers coll ect ed b y DTMI/CUA an d pr iva te compan ies are disposed of in river Ikopa. On average, DTMI/CUA discharges between 3,500m3 and 4,000m3 of drained products per year in that river.
• The matters manually extracted (by unskilled workers) are scattered in the city.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of excreta
Disposal of the drainage matters in peripheral communes:
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1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Which management modes in the agglomeration?
Four (04) types of domestic waste (DW) management services:
• Independent service (CUA)
• Service directly managed by the commune
• Limited road maintenance and cleaning service Independent service (06) •No service Service managed by the commune (16) Limited road maintenance and cleaning service (03)
No service (10)
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
DW management in CUA
Independent service: SAMVA.
Funding: User fee on domestic waste (ROM) (+ subsidies by CUA sometimes); low percentage of ROM actually perceived by SAMVA.
~460 collection points: collective skips.
Pre-collection in a few fokontanys.
Collection by SAMVA/CUA’s trucks and rented trucks.
Disposal of waste at the dump of Andralanitra.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Collection in CUA
~460 skips (fixed and mobile): overall total capacity is sufficient (1,100T) for a total production of 880T.
Lack of collection points in the 5th arrondissement (cap. of 65%) and the 6th arrondissement (cap. of 98%).
Average ratio of 3,000 people per collection point in CUA.
1st arrondissement 2nd arrondissement 3rd arrondissement 4th arrondissement 5th arrondissement 6th arrondissement
Average distribution 6,000 inhab./skip Average distribution 3,000 inhab./skip Average distribution < 2,000 inhab./skip
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Collection in CUA
About forty (40) fokontanys without collection points (~17% of CUA’s population).
arrondissement Total number of Number of fokontany Population concerned fokontany without collection point
1st arrondissement 44 11 ~75,320 inhab. (27%) 2nd arrondissement 24 1 ~6,660 inhab. (4%) 3rd arrondissement 34 7 ~22,940 inhab. (16%) 4th arrondissement 32 7 ~54,845 inhab. (21%) 5th arrondissement 27 4 ~56,520 inhab. (12%) 6th arrondissement 31 11 ~32,980 inhab. (23%) CUA 192 41 ~250,000 inhab. (17%)
Fokontany without collection point
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Disposal of CUA’s DW
Conveying of DWs towards the dump of Andralanitra.
Dump: no containment nor storm water treatment systems; waste are deposited in the form of embankments; leveling using a bulldozer.
High environmental impacts: impact on the quality of water and soils due to the infiltration or stagnation of leachates; affects the riparian communities’s health through release of odors, toxic gases, and swarms of pests.
Valorization and recycling activities: soil extraction; valorization of bones; recycling and sales after sorting of wastes (e.g. coal, wood, metal, copper, and aluminum); collection of plastic waste for sale to specialized companies.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Management of DWs in suburban communes
Service under municipal control for communes having a service; limited road maintenance and cleaning service, including collection of public places’ waste in certain communes.
Funding: the commune’s general budget (including TAFB)
Collection points: collective skips and depots.
Door-to-door collection in certain communes.
Collection by trucks owned or rented by the commune.
Conveying of wastes to a dedicated site (dump).
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Collection in peripheral communes
60% of communes do not have enough collection points (overall total capacity is inferior to the total dailyyp) output).
Worst cases in Anosizato and Tanjombato (cap. of 30%).
Average ratio of 7,500 people per collection point in suburban communes.
Average distribution 12,500 inhab/skip
Average distribution 7,500 inhab/skip
Average distribution 3,000 inhab/skip
90 Communes with skips and/or collection points 80 70 Door-to-door collection only 60 50 40 30 20 10 0 Ilafy
Alasora Firaisana Aeroport
Andrefana Namehana Talatamaty
Tanjombato Ankaraobato Ivato Ivato Ankadikely Andoharanofotsy Ambohimangakely Sabotsy Anosizato
CapacitéCollection de capacity collecte (tons) (tonnes) Quantité Quantity of produite products (tonnes) (tons)
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Disposal of DW in peripheral communes
Conveying of DWs towards fifteen (15) dedicated sites or so: permanent dump sites, temporary dump sites, dumps (gully, filling of wetland).
Uncontrolled site: without any development; no containment nor storm water treatment system; uncontrolled access; bulk dump without any rational operating mode.
High environmental impacts: sites located in sensitive places (e.g. along stream) or inappropriate from a health point of view (e.g. proximity of a well, within residential areas).
Activities of valorization and recycling: composting mainly; a few activities of recycling of coal, firewood, and bottles.
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Wrap‐up of the main problems identified
Absence of DW collection service (collective skips) in approximately forty (40) fokontanys of CUA and in some suburban communes of significant ditdensity.
Insufficiency of the means deployed to ensure the service (e.g. frequency of emptying skips, capacity of collection points): at times, collection points cannot accommodate the wastes deposited, which aggravates health hazards.
Hence: proliferation of illegal dumps all over CUA and suburban communes.
Environmental impacts of the dump and deposit sites.
Low level of funding for the funding of DW management services.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Recommendations
Capacity building for the communes: mobilization of specific resources for DW management; improvement of financial resources; promotion of inter- communality to add ress the pro blem on a more g lo ba l sca le.
Generalization of the service to all 192 fokontanys of CUA: the effort to be provided should in priority target the forty (40) fokontanys that are currently not served.
Mastery of environmental impacts in disposal sites: setting up of a minimum of measures to achieve a minimal safety in currently existing sites; prospecting of new dump site(s); stopping the use of irregular dump sites (e.g . the two dumps located in Andramiarana, by river Ikopa).
Support to waste valorization activities.
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1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Sewage Management in the Agglomeration of Antananarivo
Collective network existing in CUA 175 km in 1st and 3rd arrondissements Separate on 30km: 67 ha, Anosy, Hôpital HJRA with direct connection into River Ikopa with no prior treatment 5 pumping stations: Ampefiloha, Ambodin’Isotry, 67ha, Isotry, and Anatihazo Serving 17% of the commune’s population
Elsewhere: local management through autonomous systems, spreading on ground and mainly discharge into storm water drainage systems .
Close relationship between Sewage Management and Drainage of Storm Water at the agglomeration’s scale
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Wrap up of the Main Problems Identified
Collective network with a limited coverage and in a dilapidated state: Out of 175km of existing network, only the 47km rehabilitated in 2000 and managed by SAMVA opera te a t a sa tis fac tory leve l.
No processing of discharges into River Ikopa and into plain drainage ditches: significant health hazards given the use of water downstream.
Little awareness of health hazards associated with sewage: Current practices are aimed only at rapidly disposing sewage from housings without much consideration to downstream impacts; almost no control on effluents discharged into storm water drainage systems.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Recommendations
Strengthen the communes’ capacity, namely to mobilize the financial resources needed and to control effluents discharged into storm water ddirainage sys tems.
Process collected sewage before discharge into River Ikopa
Promote technological options that are more affordable to households and that allow for developing decentralized sewage management services
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Storm Water Management in the Agglomeration of Antananarivo
Close link with the other components of sanitation: collection of Domestic Waste and Management of Sewage
Existing systems: Assets little known Collective network of about 200km (CUA) Drainage system for the urban plan (CUA) Elsewhere: management of Storm Water through the drainage system of roads
Distinction between : Urbanized zones in the plain (CUA) Hill zones (CUA and other communes)
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Drainage of Hill Zones (CUA)
Issue of soil erosion associitdtated to surf ace sealing
Convergence of flows and concentration of pollutions in the low-lying areas at the bottom of valleys or at hill foot
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Drainage of the Urban Plain (CUA)
Subject to major physical constraints (low-gradient slopes, single outlet, shallow groundwater)
Need of balance between urban areas and storm water buffer zones
Zone with rapid and poorly controlled urban development
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Types of Inundation and Critical Areas
Main causes of inundation: Flooding of River Ikopa Blocking of the water drainage Inadequacy of the drainage system
Critical zones mainly located on the urban plain of CUA (40 fokontanys out of 192)
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop – April 13, 2010 - CNEAGR
Recommendations
Strengthen the communes’ capacity, namely to ensure overall management of storm water and improved control of land occupancy in critical zones
Find a sustainable funding system for APIPA
Update the drainage plan of the urban plain
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1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
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FINANCIAL URBAN SANITATION IS URBAN DEVELOPMENT RESOURCES THAT POLLUTERS MUST BEAR THE COST OF THEIR CAN BE MOBILIZED POLLUTING ACTIVITIES FOR URBAN (ART. 66 OF THE CODE OF WATER) SANITATION SERVICES
USER FEE ON SEWAGE (REU)
– Applicable to all customers of a – Applicable to beneficiaries of private public water distribution network connections (JIRAMA in the case of Antananarivo) – User fee applied on the reported or measured amount of water consumed, Case of Antananarivo valued at JIRAMA’s rates – Rate applied: 10% of the amount of water invoices, exclusive of all taxes – Calculation and collection modalities – Collection by JIRAMA – Revenues allocated to SAMVA to be set by a municipal decree
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Gross-up for highly polluting discharges A gross-up ranging from 50% to 200% of the user fee’s amount may be applied to users of the sanitation network whose discharge are highly polluting. While waiting for the decree’s publication, a gross-up of 50% will be applied to industries, enterprises, crafts maker, and workshops that discharge sewage involving polluting or non biodegradable products or their by-products such as hydrocarbons and by-pp,roducts, colorin gg,g agents, and other chemicals.
MUNICIPAL USER FEES FOR COLLECTIVE WATER POINTS
• Sewage water fees deducted from the municipal user fees paid by the acting managers of the collective water points
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USER FEE ON THE CONTROL OF INDIVIDUAL SANITATION FACILITIES (or EXCRETA USER FEE – RE)
Current situation: low capacity of municipal services: 3,500m3 to 4,000m3 of drainage product per year, i.e. an estimated operating • Authorized rate: 2% to 5% cost of MGA 100 million per year for drainage/emptying operations. of the amount invoiced for Drainage/emptying operations ensured by building or draining the informal private operators facilities Potential market • Construction and drainage performed by enterprises approved by the Commune • Technical conditions to comply with and collection to be set by a municipal decree
USER FEE ON DOMESTIC WASTE
User fee for the collection and processing of domestic waste • Rate to be set on an annual basis: from 3% to 8% of the rental value • Collection: municipal land tax collector • Gross-up authorized up to 20% for insect and rat extermination
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ENFORCE ARTICLE 67 OF THE CODE OF WATER TO PRESERVE THE ENVIRONMENT
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1. Problem formulation 2. Legal & Institutional framework 3. Excreta management 4. Domestic waste management 5. Stormwater and wastewater management 6. Financial resource mobilization 7. Conclusion: Challenges
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop –April 13, 2010 ‐ CNEAGR
Conclusion: the Challenges
 An assessment of the current situation shows that there are 3 strategic challenges that must guide the actions to ensure effective, efficient, and sustainable development of sanitation:
Challenge 1: Capacity-building for the communes
Challenge 2: Management of excreta
Challenge 3: Promotion of hygiene
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop –April 13, 2010 ‐ CNEAGR
Challenge 1: Capacity‐building for the Communes
Duties of communes: OWNERS AND ONTRACTING AUTHORITIES as per Act 98-029 on the Code of Water, they have « prime responsibility of sanitation in thei r t errit ory »
• Article 39: « Access to collective drainage of sewage is a municipal public service »
• Article 16: « The disposal of domestic waste is ensured under the responsibility of communes that may fund in all or in part the cost of the services in accordance with the applicable regulations. »
• Article 41: « Rural and urban communes are the owners of the collective sewage drainage systems found in their respective territory. They exert their duties as such through the municipal council. »
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop –April 13, 2010 ‐ CNEAGR
Challenge 1: Capacity‐building for the Communes
The communes’ duties – According to the PSNA, the communes are in charge of:
• Preserving assets, i.e. ensuring maintenance of sanitation infrastructures, defining, funding, and guiding investments (if these do not fall to the manager – but even in this case the commune keeps the right to monitor the investments falling to the manager)
• Setting up and controlling the sanitation service, which is preferably a public or private acting manager bound to the communes by a management contract
• Ensuring financial balance of the sanitation public service
• Developing the Municipal Sanitation Plan
• Conducting health inspections over the entire commune’s land and making decision in case of proven malfunction
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop –April 13, 2010 ‐ CNEAGR
Challenge 1: Capacity‐building for the Communes
Capacity-building consists in leading communes to:
• GGtet a good ddtdidfftil understanding and effectively en force laws, regu ltilations, policies, strategies, etc. in force: − Code of Water − Decree 63-192 on building permits − Act 95.035 and Decree 96-163 − PSNA, Manual of Procedures, and Diorano-WASH strategy
• Improve their cost recovery performances.
• For the communes in FIFTAMA , establish SAMV.
• Improve their capacity to manage Domestic Waste and Sewage.
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Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop –April 13, 2010 ‐ CNEAGR
Challange 2: Management of Excreta
Implement a Strategic Plan for Excreta Management based on hygiene promotion and community-led total sanitation, aimed at eradicating the practice of defecating in the open by having households acquire by their own means their latrines with:
• Easily cleaned slabs according to their willingness and capacity to pay;
• Pits that do not pollute underground water, that are easily drained by small private or municipal operators in full compliance with standards
• Sites under control for discharging drainage products that preserve the environment and public health.
Outlining a Sanitation Strategic Plan for the Agglomeration of Antananarivo Workshop –April 13, 2010 ‐ CNEAGR
Challenge 3: Promotion of Hygiene
Carry out actions of hygiene promotion, community-led total sanitation, and marketing of sanitation (an approach that must be applied for implementing the program funded by the Sanitation Support Fund or FAA)
Increase knowledge of, and explain: • Code of Water • Decree on building permits • Act 95.035 and Decree 96-163 • Manual of Procedures, PSNA
Reinforce campaigns on the implementation of the Diorano-WASH strategy, especially its three key messages
3