Are National Water and Sanitation Objectives Being Achieved By
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Discussion paper Are national water and sanitation objectives being achieved on the ground? A review of service delivery, planning monitoring & evaluation in Tororo and Wakiso districts Table of contents Paper written by Acronyms.........................................................................................................................3 Juliet Kanyesigye 1. Introduction.............................................................................................................4 Joseph Anguria 1.1 The Water and Sanitation Sector in Uganda.....................................................4 Edison Niwagaba 1.2 Study Objectives ..............................................................................................4 Tim Williamson 1.3 Contents and Methodology..............................................................................5 2. Overview of Sector Reforms.....................................................................................5 2.1 Policy and Legal Framework.............................................................................5 February 2004 2.2 The Rural WSS Investment and Operational Plans...........................................6 2.3 Sector Financing..............................................................................................6 2.4 Improved Coordination through a Sector Wide Approach..................................7 2.5 Emerging Concerns..........................................................................................6 3. Are Local Governments Contributing toward the Achievement of National WSS Sector Goals? The case of Tororo and Wakiso Districts...................................................8 3.1 Reported Safe water coverage .........................................................................8 3.2 Data Problems.................................................................................................8 3.3 Analysing the Equity of service delivery within Districts....................................9 3.4 Sustainability of water facilities..................................................................... 13 3.5 Equity and Sustainability of Sanitation Interventions..................................... 18 3.6 Conclusions on Equity and Sustainability...................................................... 19 4. From Inequitable, Inefficient Decisions to Targeted Planning and Budgeting for Water and Sanitation Interventions in Districts and Subcounties .................................. 20 4.1 District planning systems and guidelines ...................................................... 20 4.2 Reducing Political Capture through Introduction of Planning Tools for Equity 21 4.3 From top down to bottom up technology choices .......................................... 23 4.4 Reducing Community Participation Fatigue................................................... 23 4.5 Little of no allocation for Operation and Maintenance................................... 24 4.6 Low Sanitation Priority.................................................................................. 24 5. Towards coordinated and focused monitoring and evaluation at the district level 26 5.1 M & E Guidelines and Processes in Local Governments................................ 26 5.2 Starting to Measuring and Monitor the Relative Equity of WSS services........ 27 5.3 Measuring and Monitoring Sustainability...................................................... 27 5.4 Measuring and Monitoring Sanitation Performance ...................................... 28 5.5 Systems Staffing and capacity issues in Monitoring and Evaluation .............. 28 5.6 Improved accountability and managerial decisions ....................................... 29 Discussion paper 6. Aligning Local Incentives with Central Objectives through Local Government Performance Assessment ............................................................................................. 29 6.1 District Performance Assessment in Uganda................................................. 29 6.2 The national performance measurement framework..................................... 30 6.3 Balanced Scorecards in the Rural WSS ......................................................... 30 7. Conclusion............................................................................................................ 32 Annex 1: Wakiso District Equity Data............................................................................ 33 Annex 2: Tororo Equity Data......................................................................................... 42 Annex 3: Sustainability Snapshot ................................................................................. 48 Annex 4: Summary of Focus Group Discussions and Meetings at district, subcounty and village level in Wakiso and Tororo .......................................................... 49 Annex 5: Bibliography.................................................................................................... 52 Discussion paper Acronyms CBO Community Based Organisation DWD Directorate of Water Development DWO District Water Of fice EDI Equity in Distribution Indicator GIS Global Information System HIPC Highly Indebted Poor Country LGBFP Local Government Budget Framework Paper LGDP Local Government Development Programme M&E Monitoring and Evaluation MOU Memorandum of Understanding MDG Millennium Development Goal MoFPED Ministry of Finance, Planning and Economic Development NGO Non-Governmental Organisation NWP National Water Policy O&M Operation and Maintenance ODI Overseas Development Institute PAF Poverty Action Fund PEAP Poverty Eradication Action Plan PDC Parish Development Committees PRSP Poverty Reduction Strategy Paper RUWASA Rural Water and Sanitation Programme RWS Rural Water and Sanitation s/c subcounty SSS Sustainability Snapshot UNICEF United Nations Children’s Fund UWASNET Uganda Water and Sanitation Network WES Water and Environmental Sanitation Programme WPD Water Point Density WSC Water and Sewerage Corporation WSDCG Water and Sanitation Development Conditional Grant WSP Water and Sanitation Programme WSS Water Supply and Sanitation WUA Water User Authority WUG Water User Group Discussion paper 1 Introduction Poverty reduction strategy papers (PRSPs) have been drawn up by most countries in the sub-Saharan Africa region. The spotlight now rests on the successful implementation of the water supply and sanitation (WSS) elements included in the PRSPs, this is crucial for the national level strategies to achieve and improve the WSS Millennium Development Goals (MDGs). This report on Uganda is part of a research programme supported by the UK Department for International Development. It aims to review progress of PRSP implementation, through the experience of the water and sanitation sector, and look at whether promises made in PRSPs are being delivered. Research has been carried out on different aspects of WSS financing and implementation in Zambia, Malawi and Uganda. It investigates how strategies in PRSPs for improved WSS are being converted into expenditure on WSS- related outputs. It also makes policy recommendations for enhancing the poverty-reducing impact of current WSS intervention. The research programme has been carried out jointly by Water Aid and the Overseas Development Institute (ODI) in close collaboration with the Water and Sanitation Programme, Africa. 1.1 The Water and Sanitation Sector in Uganda In Uganda, Water and Sanitation is now a major governmental priority. The government has ambitious objectives to ensure that the entire population has access to safe water and sanitation by 2015, in line with the MDGs. Since 1997 the sector has developed a set of coherent policies and strategies with relatively clear institutional responsibilities and financing mechanisms. On the strength of these reforms, and the priority given by the sector to the poor, WSS has received a substantial increase in government funding. Considerable allocations have been made to the sector from its own governmental revenue, including from the Highly Indebted Poor Country (HIPC) debt relief fund, as well as from donor s. The sector was highlighted within the Poverty Eradication Action Plan (PEAP}, Uganda’s PRSP, and the sector’s approach is fully integrated and consistent. Now the challenge is to ensure that the strategies and reforms actually achieve their ultimate objectives. In the rural sub-sector, there is concern emerging over the performance of local government in their new role of planning for and actually delivering services. Despite reported national increases in safe water coverage from 39% in 1996 to 51% in 2003, there are still major questions hanging over value for money, equity and the sustainability of water and sanitation services being delivered in rural areas. 1.2 Study Objectives This paper examines whether PRSP and national sector goals are actually being achieved on the ground by Ugandan local governments in rural areas. It assesses how improvements in planning, monitoring and evaluation in those local governments could potentially improve the efficiency and effectiveness of service delivery. Despite the sector’s slogan of “some for all, not all for some” this paper presents strong evidence from an in-depth study in two districts’ local governments, Tororo and Wakiso, that water services are being delivered increasingly disproportionately, whist sanitation and sustainability remain secondary concerns. The paper then examines the underlying factors and asks why