Yakukamay Public-communal alliances: A model for water management The experience of the CENAGRAP June 2019 www.joinforwater.ngo [email protected] +32 (9)2352510 Belgium B-9000 Gent Flamingostraat 36 Protos/Join For Water Public-communal alliance: Amodelfor water management. Theexperience from theCENAGRAP. Mariela Robles Dennis García Anne Coutteel Systematizing team Public-communal alliance: Amodelfor water management. Theexperience fromtheCENAGRAP. Yakukamay -MunicipalityofCañar. © CENAGRAP, Protos-CEDIR Yakukamay © CENAGRAP, Protos-CEDIR , This bookshouldbedited asfollows: Reproduction isauthorized ifthesource iscited. Belgian Government Sponsorship Carlos Collaguazo, LutMathys Design concept Anne Coutteel, Pablo Martines,HelderSolisC., Archives Protos, Archives Cenegrap Photographs English version, translated and revised, 2018 Traduction française, 2013 desde elCENAGRAP, 2011 Original version Helder SolisC Dennis García Edition Dennis García Facilitation María delCarmenSolíz Helder SolisC . MunicipalityofCañar. . . : Yakukamay -Alianza público-comunitaria: unmodelodegestión delagua.La experiencia Yakukamay
- EmilieLama - MiguelAbrego INDEX Index CHAPTER 1-THEIMPORTANCE OFTHECOMMUNITY DRINKINGWATER SYSTEMS INLATIN AMERICA INTRODUCTION GLOSSARY CHAPTER 5-LEARNING OUTCOMES ANDCONCLUSIONS CHAPTER 4-CENAGRAP: APUBLIC-COMMUNAL ALLIANCEFOR THERURAL CHAPTER 3-CHARACTERIZATION OFTHECOMMUNAL MANAGEMENT CHAPTER 2-COMMUNITY MANAGEMNET INTHENEWCONSTITUTIONAL ANDJURIDICAL The publicpolicies The urban-rural dynamicinLatin America Consequences ofthepublic-communal allianceintherural drinkingwater systems ofCañar Principles for theconstruction ofamulti-stakeholder structure Third period:Center’s re-adjustment to theordinance andnew legal framework CENAGRAP: conditions for itsemergence Limitations of the community systems What are thecommunal systems andwhat are theirstrenghts The COOTAD andthecommunal water management Constitutional principles related to communitymanagement L’émergence dessystèmes communautaires andtheirlimitationsThe publicservices
DRINKING WATER SYSTEMS FRAMEWORK INECUADOR
67 58 55 51 43 41 37 31 29 27 23 20 16 13 10
8 7 5 4 3 3 yakukamay 4 yakukamay Glossary SENAGUA OLPE MIDUVI INERHI IEOS GADs GAMMA EPS CREA COOTAD CEPAL CENAGRAP CESA CEDIR CARC BID BM AO&M ANEMAPA ACORDES
Instituto Ecuatoriano deObras Sanitarias (Ecuadorian Institute forSanitary Projects). Secr Oper Min Resources) Ins Gob W Grupo deApo En Austro) Cen Cod Cód Comisión E Manag Cen Cen Cen De Pr Banc Banc maintenance) Adminis Companies andR Ser Asociación NacionaldeEmpr Development) Ac omen Movement) oyecto deDesarrollo Rural Integral (Integrated “Cuenca Alta delRío Cañar” Rural ompañamiento Organizacional para elDesarrollo (Organizational Accompaniment for tidades Prestadoras Provider (Service deServicio Entities). velopment Project “Cañarriver watershed”). tituto Ecuatoriano de Recursos Hidráulicos (Ecuadorian Institute of Hydraulic vicios Conexos (National Association ofMunicipal Potable Water and Sewer tro deReconversión Económica delAustro (Economic Reconversion Center of tro deApoyo alaGestión Rural delAgua Potable (SupportCenter for theRural tral Ecuatoriana Agrícolas (Ecuadorian deServicios Central for Agricultural Services). tro deDesarrollo eInvestigación Rural (Center for Development andRural Research). e for Territorial Organization, Autonomy andDecentralization). igo Orgánico de Organización Territorial, Autonomía yDescentralización (Organic isterio deUrbanización yVivienda(Ministry ofUrbanization andHousing). iernos Autónomos Descentralizados (Decentralized Autonomous Governments). etaría NacionaldelAgua(National Water Secretariat). o Interamericano deDesarrollo (Inter-American Development Bank). o Mundial(World Bank). adores Locales dePequeña Escala (Local Operators ofSmallScale). ement ofDrinkingWater). . tración, operación ymantenimiento (Administration, operation and . conómica para América Latina (Economic Commission for Latin America). . yo alMovimiento deMujeres delAzuay (SupportGroup for theAzuay’s . elated Services) . esas Municipales de Agua Potable,esas MunicipalesdeAgua Alcantarillado y .
Introduction recognized by theUnited Nations onJuly 282010,becomes a reality. complementarity, itwilltake decades until thehumanright to drinking water andsanitation, as have weaknesses andstrengths, buttheseare absolutely complementary. Withoutdeveloping this part oftheGoodLivingorSumakKawsay. We willseethat thepublicandcommunal management One ofthebiggest challenges ofthesetimesisthe recognition ofdiversity, whichisanessential are holdinginyour hands promoted andstrengthened? Theseare someofthequestions that we tried to answer inthebook you What happenswiththepublicsystems? Are thepublic-communal alliancesfeasible? How can they be What are theirweaknesses andstrengths? How are they organized? Whichprinciplesgovern them? What are thecommunal systems? How were they initiated? Whichlegal framework supportsthem? by thesesystems inLatin America. Ecuadorian population! A conservative estimation is that morethan40millionpeople arebeing served the country that serve more than2.7millionlowincome people.Thisisequivalent to at least 20%ofthe Ecuador butinallLatin America. In fact, there are more than 6800drinking water community systems in have madeitpossible to quenchthethirst ofthepoorest rural andperi-urbanpopulations, notonlyin This recognition was possiblebecause an evident reality cannot behiddenanymore: community systems institutions through public-communal alliances. further stating that thiskindofmanagement shouldbesupported and strengthened by theState management that were ignored before, set aside,laidto rest. TheConstitution even goesone step management, orthecombination ofthose. Recognizing community systems legitimizes ways of This isabsolutely originalas,until very recently, there was only talk aboutpublicandprivate Ecuador’s constitution only recognizes two formsof water management: publicand communal. . ensured forallpeople.” ensured andwillbe environmental sanitation…isrecognized water,housing, drinking food andnutrition, health, toadecentlife,whichassures “The right
Article 66,Cons titution ofthe Republicof Ecuador
5 yakukamay 6 yakukamay what they are, onhow they functionandhow they develop? The reasons are many: Why isitso important to know anddebate onpublic-communal alliancesat thismoment, on region significantly to thedebate on new models for rural water management inthe country andthe sustainable. For thisreason, itbecomes afundamental point ofreference anditwillcontribute 2002. Thisexperience demonstrates that thismodelofpublic-communal allianceispossibleand for theRural Management ofDrinkingWater (CENAGRAP) oftheprovince ofCañar, created in Here, oneofthefirst experiences ofthiskindinthe country ispresented: the SupportCenter • • •
on public-communal alliancesandthustheneedto disseminate relevant experiences. there are onlyfew concrete examples ofthemodelproposed intheEcuadorian Constitution and sanitation. such astherural area, withmodelsofwater management ensuringthehumanright to water it isessential for the country to respond to thedemands oftraditionally neglected sectors, materialized and theWater Resources legislative bill, even thoughthey have notbeendeveloped and for Territorial Organization, Autonomy andDecentralization (COOTAD, Spanishacronym) these modelsfor water management are mentioned intheConstitution, Organic Code .
. chapter 1 America systems inLatin drinking water of thecommunity The importance And myglassofwaterbelongs And “But howcanIeatanddrink When myfoodissnatched And yetIeatanddrink.” And from thehungry to thethirsty? Bertolt Brecht
7 yakukamay 8 yakukamay 1990, three oftheworld’s megacities inhabitants ofLatin America live inthecities.In planet. Itisestimated that currently 7outof 10 our region isoneofthemost urbanized inthe Economic Commissionfor Latin America (CEPAL), In fact, according to theUnited Nations andthe Nowadays thesituation is exactly theopposite. areas andjust oneoutoffour lived inthecities. three outoffour Latin Americans lived intherural not thesameasthat ofthe50sor60s.At that time, In demographic terms, thecurrent Latin America is in Latin America The urban-rural dynamic 1 Cities Janeiro, Bogotá andLima). in 2015three more were addedto thelist (Ríode America (Buenos Aires, SaoPaulo andMexico) and with more than
10 million inhabitants. 1 were inLatin all have to face. create anextremely complex problematic that we the effects of centralism inthepublicinvestment, and rural territorial organization, inequityand the limitations intheplanningofState, urban problems Ontheotherhand, ofpublicservices. do notpropose anstructural solution to the support populist politicsandclientelism, which peri-urban population isthepotential base to aboveservices, allwater andsanitation; thisnew exert great pressure to cover theneedsfor basic and concentrated inperi-urban neighborhoods problems get worse; thosedisplacedto the cities the same,theirsolutionisputon-holdandthese issues: theproblems oftherural areas remain Migration hasurbanized poverty, resulting inmany problems relating to theprovision ofbasicservices. the emergence ofmarginalization, andasa result, extremely disorganized processes have multiplied opportunities to thecities.Theseunplannedand in search ofbetter living conditions andjob historically, have expelled theirpopulation The rural areas where poverty concentrated 10 % 20 % 30 % 40 % 50 % 60 % 70 % countryside In Ecuador, 33.75%ofthepopulation lives inthe Esmeraldas exceed the48%ofrural population. provinces ofAmazonia, Sierra Central, Cañarand two oftheseprovinces: Guayaquil andQuito. The most populated citiesinthe country are located in within thenational average range, sincetwo ofthe As we can seeinchart1,only4provinces fall implications oftherural settings forpublicpolicies. that doesnotallow to clearlyseethescale and period year 2 INEC, 0 %
according
2001-2010,
Estimation Nacional 2 . However, thisisanational average,
to Galapagos
provinces
Quito,
of Guayas
the percentage ofrural population inEcuador perprovince, 2010
2010. El Oro
population
and Pichincha
municipalities, Azuay
per Manabí
region Los Rios
and Imbabura
Carchi Chart 1: Loja are themaincause ofmigration. and better living conditions inrural communities importance. Precisely, thelackofaccessto services urbanization, therural areas still have a great continue unstoppable theprocesses of concentrated inthecitiesof country and Even though66.25%ofthepopulation is Tungurahua
Source: Chimborazo Pastaza
INEC Cañar
2010, Sucumbios
Zamora Ch. made Morona Santiago
by
Dennis Esmeraldas Napo
Garcia, Cotopaxi Bolivar
2011. Orellana 9 yakukamay 10 yakukamay The publicpolicies excluded populations live. acute delay intherural areas, where historically relation to themarginalized neighborhoods;orthe ences that exist right insidetheurbanareas in peri-urban andrural areas; thenoticeablediffer the differences that exist between theurban, that theseaverages donotallow to visualize able coverage intherural ofservices area are undeni coverage ofsanitation andtheinequitiesin in particulartherural areas. Thedelay inthe and sanitation inthe region still has deficiencies, Chart 2shows that thecoverage ofdrinkingwater Bolivia Peru Ecuador Colombia . Country Ontheotherhand,ithasto beconsidered Coverage ofdrinkingwater andsanitation inthecountries intheAndeanregion Urban Population % 65,3 64,3 66,3 75,5 Rural For 34,7 35,7 33,7 24,5
Bolivia Total
and 82,8 68,6 78,4 90,9
Colombia Drinking water % - - Chart 2: Urban
97,0 86,1 87,5 97,5 the no orinadequate treatment drinking water butactuallyprovide water that gets underthisclassificationservices pretend todeliver drinking water accessremains relative. Many considered. Finally, regarding thequalityofservice systems inthecountries oftheAndeanregion isnot significantly ifthe contribution ofthe community Further, drinkingwater coverage would drop
data Source:
used Rural 56,5 34,8 58,5 68,3
is
from CEDLAC,
Total 2007, 37,7 57,1 49,5 75,4
made
for Sanitation %
Ecuador by . Urban
Dennis 55,8 81,8 66,7 92,2
and
García,
Peru Rural
11,8 17,9 2011. 2009. 4,1 9,4
Spanish acronym), where itgot dissolved the Ministry ofUrbanization andHousing(MIDUVI, Sub-Secretariat for DrinkingWater andSanitation of Bank hadrecognized itsefficiency, moved tothe acronym), whichin1994,even thoughtheWorld Institute for Sanitary Projects (IEOS, Spanish moment. Awell-known case istheEcuadorian even thoughmany performed agreat jobat that in thedismantlement ofthestate institutions, policies for structural adjustment, whichresulted called “decentralization” intheframework of organizations promoted andimposedpolicies At theendof80sand90s,multilateral drinking water andsanitation inthepoorer sectors. answer thedemandsfor inparticular services, for and institutional resources have notbeenable to governments, sectoral policiesandthefinancial American Development Bankstate that thelocal organizations, such as the World Bank and the Inter- The United Nations, CEPAL andthemultilateral .
Madrid. water 3 monopolistic rules capacity monopoly. water the efficiency a proved The this choice international organizations recognize the failure of However, after disastrous experiences, the water andsanitation services. promoted processes ofprivatization ofthedrinking structural adjustment, themultilateral organizations State” caused was by thepoliciesof happening, At thesametimethat this“inattention ofthe sustainable andquicklyendedupinfailure. promoted withouttheresources to make them The processes known asdecentralization were
“magic
PNUD,
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11 yakukamay 12 yakukamay for instance inCochabamba,Tucuman andlater the private sector originated dueto problems, leaders ofthewater andsanitation sector towards global applicability. Thedisappointment ofthe negative experiences that raised doubts aboutits participation oftheprivate sector suffered modelthat includesthe these policies:“The The World Bankitselfadmitsthefailure of 4 Ecuadorian Constitution. or communitycompanies, as itisestablished the in subsidized the hightariffs, whichinmost ofthe cases are in particularofthepoorest who cannot afford any interest inpreserving thepublicinterest, goal isprofit maximization anddonot have be suppliedby private companies, whichultimate (now recognized by theUnited Nations), cannot right, suchastheaccessto water andsanitation There isnodoubt that afundamental human given thetariff structures imposed to thissector.” toservices thepoorest sector ofthe population, relation to theprivate sector’s interest inproviding on inBuenosAires
and Evaluation World
Sanitation
Bank, .
This right This canbe ensuredonly by public of
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Further, doubts arose soonin and
Lima,
Sanitation
2007. Local
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Water 4
infrastructure. Inaddition, “65%ofthetreated treat theirwater dueto thehighcost andlackof states that 50%ofthemunicipalities cannot municipalities inthe country faces. Theirpresident the mainproblems that themajority ofthe219 and rationing ofthedrinking water are services (ANEMAPA) recognizes that thescarcity, badquality for DrinkingWater, Sewer andRelated Services The National Association ofMunicipalCompanies public institutions. it isnotpossibleto ignore thelimitations ofthe to ensurepublic services thehumanright to water, Even ifwe recognize thestrategic importance ofthe their limitations The publicservices and 6 5 9 8 7 Systems disposingtheirsolidwaste insanitary landfills% Population whoaccessthesewage system % Systems nottreating water priordischarge % Systems withpermanent water qualitycontrol % Population whoaccessthepublic water supplynetwork %
del maximum Quito, Programa Contraloría Nowadays, MIDUVI, El The
Comercio,
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saneamiento Proyectos operates, leaks orlossesare ashigh65% For example, inGuayaquil, where aprivate company and adeficient control ofleaks”. water islost dueto theoldpipes,badmanagement An analysis performed by theMIDUVIin2008 sustainability subsidizes drinkingwater tariffs”, which affects its On theotherhand,“90%of219municipalities summarized inthefollowing chart: management intheurbanareas. Thesefindingsare supply ofdrinkingwater, sanitation and solid waste reported theseriousstructural problems inthe Ecuador
Health
y
Alcantarillado 14,91 69,43 67,78 25,52 87,65
y
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65,00 72,50 27,50 82,17 de
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13 yakukamay 14 yakukamay 31.5 %inQuito and31%inCuenca. not beingpaid:65%inthecase ofGuayaquil, On theotherhand,large percentage ofwater in higherproduction cost andlimitsinvestments. companies, inparticularbigcities hand, theexcess ofpersonnel insidesomepublic additional problems were identified: ontheone the city’s to services othercitiesinthe country, two and sanitation inGuayaquil, services comparing Office in2009aboutthe provision ofdrinking water In thereport oftheGovernment Accountability management isalsoasource ofwater pollution. In addition,thealmost inexistent solid waste do nottreat theirwastewater before discharge. generated by publicandprivate companies, which there isconcern aboutthehighlevels ofpollution systems have alarmingdeficiencies. Furthermore quality isdefinitely anaspectinwhichpublic relation to theprovision ofbasicservices. Water areas conclusions are onlyrepresentative oftheurban therefore thesefigures can vary. Inaddition,these the MIDUVIisastudy andnotanational census; It isimportant to point outthat thejobdoneby 11 efficiency 10
Contraloría For
. drinking However, thisdata shows atendency in
has
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3
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America, per 10 11 that results
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to information, many ofthemdonothave water masterplanning, planswithsufficient andupdated usually donothave amediumorlongterm municipalities withdrinking water companies that they construct theirown systems construction materials to the communities, so some cases, they limittheir activities to provide have specialized spacesfor drinkingwater, andin the construction ofinfrastructure. They donot which takes care ofmultipleactivities related to only have one“Department ofPublicProjects”, small municipalitiesinthemajorityof cases small municipalities,above allinrural ones.The These problems are even more present inseveral operation andmaintenance. integrate aspectsrelated to themanagement, sector; they are notvery sustainable, sincethey which allow themto evaluate progress inthe limited planningandprioritizationlack offunding, well-designed andcomplete systems dueto the systems. Theinterventions donotfinance underestimated the contribution ofthe community the water systems inrural areas andhave municipalities have notbeen responsible for and have highlevels ofdebts. Ingeneral, the the Mayor, they onlyserve theurbanpopulation do nothave any autonomy, dependgreatly on In othercases, themunicipalcompanies almost meters andwater supplyishighlysubsidized
ensure
connections.
the
operative
. Rural .
over thepast decades to thedevelopment modelpromoted inLatin America rather beencaused by astructural problem inherent depend ontheirtechnical andfinancial capability. It’s and efficiency inthe donotonly provision ofservices sanitation inperi-urbanandrural areas. Thequality need to beaddressed inorder to ensure water and faced by theproviders andthehuge challenges that heard, forgetting the complexity ofthe problems providersthe publicandcommunity service are often In thelast 4years (2007-2011),speechesthat discredit 15 yakukamay 16 yakukamay which provide to service more than 248million there are more than54000community systems, many communities intheUnited States. In fact, currently beingcovered by community systems in Surprisingly, water supply andsanitation are Local Operators ofSmallScale. Aqueducts, Sanitation Management Boards and Water Cooperatives, Management Boards for Rural Management Boards for Sanitation Services, Rural Aqueducts,Community Community Associations for Water Management, Water Provider Boards, DrinkingWater Committee, Drinking Water and Sanitation Management Boards, many terms were used(and are still inuse): order to refer to thesedrinkingwater providers, systems were ignored inthelegal framework. In recognition were totally absent. Asa result these concept ofwater community systems anditslegal Until a few years ago inLatin America, the community systems The emergence ofthe people 12 suministro abastecimiento Luis
Darío . 12
Sánchez, de agua,
de
agua
Gerardo CINARA,
para
Galvis; Cali,
pequeños
2001.
Tecnologías
sistemas
en
de
development proposedby CEPAL,the State which in created duringthe70s,supported by themodelof to theabsence oftheState, even thoughthey were In Bolivia years oldandemerged indiverse contexts. Many ofthesesystems are between 15and45 and theriskofprivatization ofthepublicservices. organizationalthese services; ideasinthe region related offices to provide thepoorest sectors with to cleanwater; theincapability oftheState andits which hadbeenhistorically deprived oftheright demand from therural andperi-urbansectors, as ananswer to several issues:theincreasing In Latin America, the community systems originated the southernmost (andthepoorest) partofthecity. also took partinthe“Water andislocated War” in had first beenestablished nearCochabamba,which 2001) second presidential periodofHugo Banzer (1997- de Lozada (1993-1997and2002-2003)the launched sincethegovernment ofGonzalo Sanchez a reaction to thedrastic privatization processes In addition,many ofthese systems appeared as had acrucialrole . Itisnotsurprisethat thecommunity systems , thecommunity systems appeared due . Locales 13 were alsobuiltduringthe70s country alotofthewater andsanitation systems In Colombia 1990 dueto structural adjustments (SENAPA, Spanishacronym), whichdisappeared in forService DrinkingWater SupplyandSewage country. In1981,itwas replaced by theNational drinking water andsanitation projects inthewhole is linked to builtandran theMinistry ofHousing, Sanitary Projects (DGOS,Spanishacronym), which In the70sin of thepopulation. systems inSanta CruzdelaSierra supply32 (including thesouthernpartofcity).The 6 municipalitiesoftheCochabamba region systems supply73.48%ofthepopulation inthe Itisestimatedthis service. that the community drinking water, hadto organize themselves to get multinationals andtherefore couldnotaccess These zones, whichare notinteresting for the
Agencia de
Pequeña de something similarhappened
la Peru, theGeneral Management of
Cooperación
Escala, 13
Documento
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(ASDI),
. de
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Operadores . Inthis . 22 %
2008.
14 period system grew from 14%to 32%inthesame from 20%in1961to 51%in1982,thesewage example: thedrinkingwater coverage increased This policyhadingeneral positive results, for sanitation coverage. 1965), responsible for theincrease inwater and Ecuadorian Institute for Sanitary Projects (IEOS, and regulation withemphasisinirrigation; the (INERH, 1966),whichwas incharge ofplanning Ecuadorian Institute for Hydraulic Resources responsible for developing hydroelectric power; for Electrification (INECEL, 1961),which was were created, suchas:theEcuadorian Institute planning andexecution ofpolicies related to water It isinthisperiodthat many organizations for therefore to ensure accessto services. development ofthepoorest rural communities and (DRI, Spanishacronym), aimingto integrate the promoted integrated rural development policies extraction at thebeginningof70s.They dictatorship, andprofited from petroleum CEPAL. Ecuador was underanationalist military the promotion ofthemodeldevelopment by of thecommunities themselves, as well asthrough emerged duringthe60sand70sby theinitiative In Ecuador mirada Alex
. Zapatta, 14 retrospectiva, , themajorityofcommunity systems
Modelos
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17 yakukamay 18 yakukamay 15 Colombia Mexico Guatemala Honduras Nicaragua El Salvador Chili Argentina Paraguay Bolivia Ecuador Peru Panama Costa Rica
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...... 2011 079 000 000 000 000 000 000 000 000 000 000 n/d n/d n/d 16 Spanish acronym) sector (municipalities)and community (JAAPs, systems, through alliances between thepublic it hasrecognized theneedto strengthen these the Ecuadorian constitution because isvisionary areas withoutexternal competition. Inthis regard, ensure theuniversal right to cleanwater intherural conditions ofthe region, itwillbeimpossible to constitutes a strategic myopia .Given thespecific in thecontinent and to continue toignore them The community systems are anundeniablereality (COCAPs, Spanishacronym) supplied by DrinkingWater CommunityCommittees cities, suchas Toluca, 35%oftheinhabitants are %), Nicaragua (21%)orEcuador (20%).InMexican (30 %),Peru (26%),Colombia(23Bolivia in countries suchas:Honduras (38%),ElSalvador tance ofthepopulation served by these systems These averages, onceagain, overshadow theimpor population. in Latin America, inother words to 7%ofthe drinking water to more than40millionpeople It isestimated that the community systems provide acronym ),confirm thesefigures. about Local Operators ofSmallScale (OLPE,Spanish out by theWorld Bank(BM,Spanishacronym), the community systems themselves Chart 4was elaborated from estimations done by
El
Diario,
27.03.2009. . . 16 . Studiescarried - 17 population…”. unsatisfied OLPEs potentially the for the work years... that challenge Provider sustainability showed “The these services community asaway to fillthe gaps in coverage by these alliancesbetween thepublicsector andthe have changed theirpositionandnowlook at privatization even ofthe community systems, Bank themselves, whichinitiallypromoted The multilateral organizations, suchasthe World
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19 yakukamay 20 yakukamay framework inEcuador and juridical new constitutional management inthe Community chapter 2 interests.” themostdiverse reconcile inventive andproductiveprocessableto justiceisseenasan In thosecountries, justiceisnotnecessary… a particular “In well-managedcountries, Bertolt Brecht
water andtake care ofpublicinterests? management ensure thehumanright to clean public orcommunity management? Can private ensure thehumanright to cleanwater without topics are closelyrelated public andcommunity management right to clean water andtheexclusivity ofthe topics, inparticularontwo aspects:thehuman process, water was oneofthemost conflictual Despite theresults obtained intheconstituent submit most oftheirproposals by different ways. and drinkingwater boards actuallymanaged to Montecristi Constituent Assembly. Theirrigators several organizations andsocial platforms tothe is dueto thelarge variety ofproposals sent by members oftheassemblyrecognize that this in theEcuadorian constitution is water. The publications, oneofthebest discussed topics As stated inseveral articles,presentations and . Isthere apossibilityto . Thesetwo 18 which manage the is assumes policies debates among with residential equity simple to and and lackofprinciples. The market logichasaset ofethical limitations and socialequityasstarting points. equality, equityintheprovision, common good own. It requires setting principlessuchashuman thatof services themarket cannot ensure onits nature are partofanethic visionfor theprovision The humanright to cleanwater andtherights of
Relaciones
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an divide
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this future
sanitation values “The
that It of de services, kind
18
market núm.
and
of is
community
social la generations complexity
and unreasonable
this
the
crisis of
that civic
12,
services privatizing
rights, market kind
cohesion logic.
such
octubre global the
cohesion
of
market safety,
as of
Ideological
impossible
towards
(together values del is
present de the
and to too
agua.
2009. or
ask
to
21 yakukamay 22 yakukamay economic growth astheultimate goal; therefore new paradigm nolonger considers themarket and paradigm: theGoodLivingorSumakKawsay. This which isstrategically linked to anew development contribution to anew water management model this dilemma,theConstitution makes a great Guayaquil andMachala.Inaddition to solving of UrbanDevelopment incitiesas andHousing, Comptroller General oftheState andtheMinistry disastrous results, according to auditsdoneby the experienced private management processes with One hasto consider aswell that thecountry has and itssubstantial economic andpolitic interests. of thewater management privatization processes its management entails adebate onthevalidity As can beseen,thehumanright to cleanwater and 19 ecosystemic relation. therefore, notanisolated element, butispartofan the rights ofnature, at thesamelevel. Itis, Water iscloselyrelated to thehumanright and it isnolonger possibleto seewater asaproduct Acosta Alberto, et al,Aguaunderechohumanofundamental, Ed. Abya Yala, Quito, 2010. .
and conception to encounter, and Instead “decommodification” order all to to means clean water anditsimportant role innature neglecting otherusessuchasthehumanright to conception of water linked exclusively to irrigation, in products. Italsobreaks theold“agrarian” can beexchanged, expropriated andtransformed sees water asagood, therefore suggesting that it in Ecuador. Itbreaks, above all,thenotionthat history ofwater management andadministration Constitution definitely marks a rupture withthe biodiversity andnatural resources the strategic sectors andinthechapter about included inthechapter aboutfood sovereignty, the chapter abouttheGoodLivingRights; itis chapters oftheconstitution: itistheheadlineof This justifies theinclusionof water in several “ Expressing
tie exist subject, living
by human
again to
supporting the
themselves. of
achieve beings
keeping
and would way,
of
the beings, the
life
as
knot have rights
unsustainable this
that be
such
politically the
the This
something broken civilizing
the
of
of turned
separation
ensuring task
nature
point nature same
to by its
out
transformation, .”
of
contribute
ontological the
is change 19
like in the
view
to essential. between .
the Thenew strength
proposing be right
implies Constitution
predatory, from
of to
value. nature
.
of humans
their object
that
the a
In
America greatest deficiencies inour country andinLatin and sanitation matters, shown tobeamongst the This impliesthat priorityshouldbegiven to health in good quality, butalsotheright to adecent life. right to have sufficient water, permanently and The Constitution doesnotonlyensure thehuman participation. management, therights ofnature andwater user heritage for publicuse,theandcommunity water, thedefinition of water asa national strategic community management: thehumanright to clean water, we consider 5ofthemdirectly related to As numerous constitutional principles relate to management related to community Constitutional principles “The ensured The humanrightto clean water The article12oftheConstitution states that: that
human “The .
promotes
for
following drinking
right all
people: Further, thearticle66declares :
to
health,
right water, clean
the
will
feeding water
housing, right
be and
recognized is to
inalienable…” and
fundamental
a
sanitation.”
decent
nutrition,
and
life
20 sovereignty, andfinallyproductive activities. comes first, followed by irrigation toensure food uses asstated inarticle318.Human consumption water isalsofullyembodiedin theprioritywater The acknowledgement ofthehumanright to public policies,budgetary measures, etc measures for theiraccomplishment (by legislation, rights to become reality andto adopt thenecessary demands from theState institutions toguard these and strategies to make thessrights effective. It Therefore theState should adopt policies,plans The State isobliged to ensure thehumanrights
The right. drinking
United
water
Nations
and
recognised sanitation
as
on
a
July
universal
28 th
. of ) .
human 20
2010
.
23 yakukamay 24 yakukamay such as: management. Itincludesseveral key aspects, The article318 Water as anational strategic heritage for publicuse
21 Every
“Water It the because provisions”. accordance concession, responsibility. sanitation, public possession sanitation,
is
worth laws. form will use;
use”. public element
is
they be “Water
of remembering
a
it electric
But association, with That
provided
national
of privatization is drinking could
It isofutmost importance for water or
an
then, the can
the is for
communal. management
inalienable power,
to Article 318 be
State
lend law. nature
in
say,
strategic exploited only water
Art. capitalisation, that
them The
the telecommunications, and
of
by 249,
and
the
agreed
definition supply
The water
directly
state it
and goes onto say that
by
heritage
Constitution
it will constitutes human
private stated: public Purely publicorcommunity-based management
imprescriptible
contractual corporations”.
or is and be
transfer or
prohibited.” of community
exclusively by
existence. service “The “national for companies, irrigation
delegation
of
a public
of
roads,
provision
98 vital
conditions
ownership
of in
goods
its
port through
to
Art.
of
joint the onlyentities that canensure adequate use”, and“any form ofprivatization is prohibited”; as water isa“national strategic heritage for public This sectionagrees completely withtheprevious: privatization is strictly prohibited. of theState. For that reason any form of ensured that itsuseandmanagement isinhands and thedevelopment ofthecountry, ithasto be given that water isanessential heritage for life availability for thefuture generations. Inaddition, management inthepresent, to ensure resource The definition ofheritage assumesa responsible the construction ofthenew development model. becomes afundamental (strategic) element for vision ofwater asa“good” or“resource” ;water heritage for publicuse”, surpassestheprevious The definition of water asa“national strategic benefits. State northecommunities seekprofit orparticular the common interest are aform oforganization that also watches over they are the expression ofthecommunities, which public interest The State, by itsnature, hasto watch over the management are theState andcommunity systems
for facilities
may public
247 shareholder
public
agreements ventures
not defined
services
and
be use”.
unilaterally
others or
that or
was .
of Thecommunity systems because private
that any
drinking “Waters
only of
other couldn’t
a .
21 Thismeansthat neitherthe enterprises,
modified similar a
declarative
contractual
water are
even
national nature,
and by
be
by
laws
irrigation, formulation, affected
means form
is
goods
a or
State
in other
of
by of
.
the article318 goes on to say: and inorder to strengthen theirmanagement, In acknowledgement ofthecommunity systems community management isestablished: promote the mechanismto strengthen andconsolidate the and strengthen secondly, thecommunity services; place, theexpress order to recognize, consolidate two important aspectsto point outhere: inthefirst environment development inharmony withnature andthe establish thisright andpropose amodelfor rights to nature. There are many articles that The Ecuadorian Constitution isthe first to grant The agreement between key stakeholders to achieve community systems. Analliancerefers to astrategic the publicsector (State andmunicipalities)the community systems, through alliancesbetween It isclearthat thegoal isto strengthen the public-community alliances and promotion and communal strengthen
the the
rights
community provision
of initiatives the .
alliances ofnature andthe
management
of
to public
linked
supply between
services,
. to
and services.”
water “The
the
operation
State public through
management There are
conservation will
sector
of
the
the
to therural areas inthismunicipality (CENAGRAP), aimingat supplyingdrinkingwater Center for Rural Management ofDrinkingWater the DrinkingWater Boards to create theSupport is themunicipalityofCañaranditsalliancewith community allianceshave materialized Few are theexamples inwhichthepublic- strengthening themastheConstitution demands. to absorb thecommunity systems instead of of what thismeansandsomeofthempretend all ofthemunicipalitieshave a good understanding This isextremely important nowadays because not achieve thestrategic objective. because itisrecognized that bothare essential to known, above all,for theirpotential and strengths water. Itisassumedthat thesestakeholders are a common goal: inthiscase, thehumanright to of nationality processes. cycles, its and Article 71 “Nature,
the existence, of
develops,
rights
its ecosystems
or structure,
says
Every can
Pachamama,
of maintenance
is :
nature demand
entitled person,
functions
from
the to community,
where
related
and full
the compliance
and
respect
regeneration public
life
evolutionary .
reproduces . to to town Onecase
authority.” for
water
or
25 yakukamay 26 yakukamay formulation until the monitoring of their execution. elaboration cycle ofpublicpolicies,from the citizens andtheirorganizations alongthe This articleproposes theparticipation ofthe by theConstitution. Participation isanother novel principle introduced Participation ofusers inthewater management forests, among limits management “The It isestablished clearlyin 22 marine ecosystems have to bepreserved: ensure
Páramos: control
“The State
of
the others ecosystems wet
Article 85 the
declaration,
a will participation of
and fragile fragile
the
and the
regulate
dry
public
isvery clearto point outthat:
moorlands, sustainable Andean
and and
tropical villages
execution,
threatened coastal
the policies of Article 406 ecosystem
people,
conservation,
forests,
wetlands, use, and
ecosystems.”
and
evaluation
nationalities.” recovery
communities, ecosystems,
of mangroves, services which lakes,
cloud
and peat
and 22 will
bogs, meadows of thecitizens to influence thepublic policies. butalsotheresponsibilityservices, andobligation inside theinstitutions, which provide public This doesnotonlyimplyanactive participation and human regulated. the equilibrium affect to resources, recovery “The water resources: Article 411 Article 95 The participation even goes beyond this. organizations public process, participate “The
the
sources exploitation
State
citizens,
the hydrological
matters, consumption and
and planning
quality
hydrographic The states will
expresses specificmandates regarding of and actively bushes.
integrated
individually the
and sustainability guarantee
and
zones : of
and
ecosystems,
and
society…” cycle. water
in popular
will
quantity
of the management
management
basins
water be
All
resources.”
the and decision
the
activity control of
conservation,
collectively, in
of
and
the recharge priority
particular water
making
ecosystems
flows
of that
of
of State
the in and
will water
could linked
the
will
in
the
be
use
and
municipalities. into of are (* )
parochial: Ecuador.
the
parishes
third
The
The level which 22 irrationality in relation to water. government; asaresult there isdispersion and competences at thedifferent levels ofthe to drinkingwater, there isasuperpositionof This aspectisvery important because, inregard shared orlinked to theExecutive branch. to eachgovernment level andwhichonesare define which competences correspond exclusively Constitution. In other words, theideais toclearly has beenstated inthe governments Autonomy andDecentralization (COOTAD) The Organic CodeofTerritorial Organization, What istheCOOTAD ? municipal governments andrural parochial autonomous governments, provincial governments, (GADs) established intheConstitution: regional in theDecentralized Autonomous Governments and specifies the competences at the different levels law enforced sinceOctober 2010.Thislaw explains
cantons Published
parishes
administrative
are
similar
are
in
of
the .
Thislaw aimsat accomplishing what divided Ecuador
Registro to
units
articles 261 to 267
oficial
of
October
19 ofthe 23 th (*) isanew ,
2010. water management The COOTAD andthecommunal participation inplanningand execution ofpublic levels, aswell asthe community andwater users’ coordination between thedifferent governmental It establishes theobligation ofhaving a good Constitution proposed in regard to water. The COOTAD ratifies theprinciplesthat the related to drinkingwater. have theexclusive responsibility intheissues the Constitution andthe COOTAD, themunicipalities development, allofthemintervened. According to parochial boards, theregional corporations for provincial governments, themunicipalities, The executive branch, through theMIDUVI; water policies duties are established: autonomous municipalgovernment, thefollowing the exclusive competences ofthedecentralized In theArticle55 Drinking water intheCOOTAD water, « S management,
upply sewage,
the . oftheCOOTAD, whichrefers to
wastewater
following
environmental
public
treatment,
services
sanitation
solid
:
drinking
waste ,
…
»
27 yakukamay 28 yakukamay • • Article 137 • • • • • • particular water andsanitation. Insummary, thisarticle expresses the following:
services established for thepublicand community Quality control mechanismshave to be services encouraged to ensure thequalityofpublic Citizens’ participation andmonitoring have tobe governments are passedonto themby themunicipal and administrate which thepublicservices, The parochial governments can manage in order to favor thosewiththelowest incomes. The water tariff has to be fair anddifferentiated, coordination withtherural parishes. waste management, environmental sanitation) in (sewage system, wastewater treatment, solid The municipalitiesare responsible for sanitation community alliances community management through public- The municipalitieshave to strengthen municipalities. governments incoordination withthe the autonomous regional andprovincial hydrographic basinsisthecompetence of The conservation andmaintenance ofthe with theparochial andcommunity systems competence ofthemunicipalitiesin coordination Water andsanitation are exclusively inthe . . of theCOOTAD refers to theexercising ofthecompetence in ofsupplyingpublicservices, . . . Constitution and mentioned inthe COOTAD. management withintheprinciplesset by the important to start discussingthemodelsfor water are going to bedeveloped; therefore itisvery In thiscontext, thefunctionsand competences management linked ofthepublicservices to water. management visionthat impliesamore integrated in place but itdoesnotestablish how they shouldbeput exclusive andshared competences oftheGADs, In general, theCOOTAD limitsitselfto list the . Inotherwords, itdoesnotpropose a chapter 3 management of thecommunal Characterization As if I am thirsty for my own thirst formyownthirst ifIamthirsty As “… The truth isthattodayIam “… Thetruth and when I am about to drink and whenIamabouttodrink I wanttokillmythirst.” my hand trembles, my handtrembles, nostalgic aswell, ifinreality As Antonio Preciado
29 yakukamay 30 24 but This fulfill there moment The countryside, was for notice “Even SENAGUA: situation inaspeechgiven to theauthoritiesof A leaderofonethewater boards explained this issues inthepoorest sectors of willingness from the municipalities to solve these sometimes inallianceswithNGOsdue to thelack achieved thanks to thecommunity effort itself, however alarge partofthisaccomplishment was covered by thepoliciesimplemented by theIEOS, country, someoftheneedsthesesectors were most vulnerable sectors ofthepopulation. Inour community systems have become ananswer to the organizations recognized unanimouslythat Studies carried outby international and multilateral and what are theirstrenghts What are thecommunal systems
Amaguaña Martha
us,
not
municipal worse situation
their
was
though, was we
impossible
abandoned
Guanoliquín,
never no
requirements. for sent
to …
right motivated
governments those several raise
to received
the to dream, the
living us;
water
times speech municipalities need
they us
positive
in which
to
for to in . an
the made delivered
pursue be charge
those official
hills,
became recognized answers.
us
asking
who
a
moorlands, at
feel on written
very
that
reality
31
did
that
And by
to
difficult
July
not the work
it
2010
SENAGUA.
in several which country We responsibilities solve any It Water (the equipment, a that installation IEOS public Several managed the These The families, water ones They through
huge is a
JAAP are
clear private
municipalities
mee water
required
at who are a
places in we institutions Boards
investment problem
private doing that water
faces
ting to
the the
those worked,
that have our decided
boards)
the
of or
which
time,
forgotten one of that
a due
it, systems boards are pipes. we public
work who companies seen of wat pumping
and despite
that
do built,
you the
to today. for obviously, was
to did
in er in
are
our and However, to the
not company.
solve
the
the order received
boards successive always
all not
30 sectors,
completely take
operated,
here
the
banks,
huge
exist
effort station, see system construction years
feel fail.” the
to
problems a
for
of here right were
to
huge economic accomplish
nor
problem
the support
in
of We 24 ago.
presidents
instance
compete governments.
and
had the
our
maintained
are now,
live funded
water told came
part
vulnerable electric
to own
those that
our works
from
“no”. of
we
make crisis
of
boards the to
with
what by lack
reality. and
people.
the the
are
where
the
and
us
and in
of
the
the
31 yakukamay 32 yakukamay activities withsocialimpact. infrastructure), funeral costs, humanaidorother the community (road infrastructure andother ecosystems related to water, contributions to training, initiatives to protect micro-basins or available) is reinvested to expand theservice, solidarity are always present. Profit surplus(when For thispurposethe principlesofequityand of thecommunity. maximization asultimate goal,butthe well-being efficiency andadministration donot have profit to benefita publicservice the community. Their criterion for theirmanagement istheprovision of the rural and peri-urbanareas. Thefundamental profit andthey exist to supplydrinking water to organizations inaspecific territory. They donot The community systems are partofcommunity who consume themost: (which isthelarge majority)andpenalizes those This system favors thosewhoconsume theleast the JAAP ofShizhointhemunicipalityCañar. Differentiated tariffs were for instance appliedin Consumption (m > 25 21 -24 17 -20 12 -16 01 -11 3) Tariffs inthe JAAP ofShizho Base tariff (USD) Source: 0,50 0,50 0,50 0,50 0,50
CENAGRAP
Cost /additionalm Files,
Made the collective community work (mingas!!!). the water board, sincethey donotparticipate in 1 dollarto maintain thisright, asacontribution to the future willhave ahouse)pay amonthly fee of water buthave migrated oryoung peoplewhoin members (peoplewhohave theright to clean and improvement ofthesystem. Thepassive Profit surplusisonly reinvested inthe expansion supplied is performed. Water ofvery good qualityis analysis ofwater qualityat thesource andhouses to subsidize group thebigger ofusers. Regular the payment coming from theother40%allows where 60%pay theminimumconsumption, and Consortium Protos-CEDIR in2000.Ithas84 families The system was builtby thecommunity andthe 1,00 0,75 0,50 0,25 –
by
Protos, . 3
2011. on theState to functionandtheiroperation self-managing. Thismeansthat they donotdepend Community systems are autonomous and operation, maintenance, as well asthemonitoring. in theactive participation intheadministration, how peopletake care oftheinfrastructure, butalso empowerment, whichare notonlyreflected in the system hasresulted insolidprocesses of of theusers inthedesignandconstruction of present inthecommunity. Theactive participation specialized works, according to theknowledge work, materials found inthearea andmore they can contribute upto 70%)through collective the systems isbetween 30-40%(exceptionally community to thetotal cost oftheconstruction of cooperation viaNGO’s. The contribution ofthe support from theState and/or theinternational for thisreason they have, insomecases, received by meansofcommon work (community work), Generally, thecommunity systems have beenbuilt and maintenance are theirown responsibility Consumption m 15 -> 10 -15 01 -10 Source: .
Leonidas 3 Tariffs inthe JAAP ofCojitambo, Cañar possibilities to reach sustainability. of deterioration that reduces theirlifetime andthe majority ofthecases, butthey fall into aprocess only infrastructure, they are inaugurated inthe and withtheconception that these systems are down system, for example by theState andNGOs In contrast, whenthey are builtfollowing a top the sustainability ofthesesystems isguaranteed. and managed by theparticipation oftheusers, Bolivia shows that whenthesystems are built organizations inColombia, Ecuador, Peru and In general, research doneby international USD (29%) 1 462632(71%)andPlanInternational 600000 It costed 2061632USD, thecommunity gave has 2100families 23communities. andserves The system was builtbetween 1990and1993
Muñoz, Base tariff (USD) .
President 2 2 2
of
the Cost /additionalm
JAAP
de 2,00 0,20
Cojitambo, –
2011. 3
.
It
33 yakukamay 34 yakukamay 25 processes: consequences ofthevertical construction Research done by CEPAL clearlyidentified the community William CEPAL, water “A design implement, operation. apply taking
participatory traditions common of do the community
the
Santiago, projects Carrasco
and strictly not
creation into
beneficiaries. to
take construction
In in practice pay
and account
several technical addition, and Mantilla, Chile,
processes into are for
and culture
sanitation
their
abandoned sometimes March in account
the
execution cases
the The
Public
projects criteria
of
of later needs
are
2011.
execution the projects the
technologies,
the
policies
in
not
maintenance
projects,
beneficiaries
implemented.” of for and
quickly rural
that capacity
developed projects,
the
given
preferences
for
of go areas
creation,
drinking drinking because
without against
to which of
they is
and
are the the for
to 25
water
The community systems includesocialmonitoring work. importance oftheorganization and collective my rights andIcan demandthem)andthe (I work for thecommunity because that ensures includes andempowers theprincipleofreciprocity expression ofparticipation and responsibility. It affiliated family. Volunteering workisthehighest responsibility that makes possibletheright ofthe environmental), butasanindividualandfamily related to thesystems (social,technical and right to take partinthedecisionsallaspects Participation isnotonlyseenasanindividual The community systems are participatory. social regulation. deliberative andhasthemechanisms for direct systems isnotonlyrepresentative, butalso period is apossibilityto revoke theiradministration during theassembliesandifitisnecessary, there not get paid.They have to motivate theiragenda elected by direct participation; they usuallydo conflict solution.Intheassembly, theleaders are financial, social,organizational, political and regard to alltheaspectsofsystem: technical, discussion takes placeanddecisionsare madein monitoring isdoneviatheassemblies,where and transparency intheirmanagement
supply . Inthisway, democracy inthe community
and
sanitation
in
rural
areas,
. Social Latin America. sanitation results insuchlow rates inrural areas in reasons why theinvestment indrinkingwater and conglomerates. Thisisoneofthemost important viable, perceptible and “demonstrable” inurban to theimpactandpoliticvisibility, whichare more investment ininfrastructure consider criteria linked Generally, thegovernmental programs for 15 000USDperyear than 250families require amounts around the operation. Nevertheless, the systems withmore per year inaverage 3370USDto ensure its determined that eachcommunity systems needs maintenance. InCañar, for instance, ithasbeen and alsotake partintheadministration and significant amounts ofeconomic resources construction and rehabilitation, butalsogive contribute notonlywithlaborforce inthe the majorityofcommunity systems, users the geographic characteristics limitaccess.In is low, housesare dispersed and,inmany cases, needed inrural areas where population density the State The community systems result insavings for and how itmanages funds. because alotofattention isgiven totheassembly management ofeconomic resources istransparent corruption andbadpractices. In general, the Therefore, there are normallyfew cases of . Larger investments perinhabitant are .
positions are ad-honorem of andonlythesalary for theiroperation, sincethemajorityof community systems donotrequire bureaucracy workforce rationalizes anddecreases the costs. The From aneconomic point ofview, thecommunity work towards theiroperation andmaintenance. actively inthe construction, management and areas theopposite happens,theusers participate ensures theprovision Intherural ofthisservice. in themaintenance oftheinfrastructure, which where thewater comes anddonotparticipate payments,bill andsalary users donotknow from companies andthecitizens hasbeenlimited to the the relationship between the water distribution of thecommunity systems make. Inthecities, account theimportant contribution that theusers to construct infrastructure, butitdoesn’ttake into Usually, theState considers onlytheinvestment construction oftheproject. active socialparticipation intheplanningand (linked to hydraulic engineering),aswell asthe technical aspectsintheconstruction process of “social engineering”, whichaimsat integrating Many community systems were constructed out agreements by thecommunity whichrelies strongly insocial form ofmanagement feasible hasbeentheone an operator isneeded . . For that reason, theonly 35 yakukamay 36 yakukamay 26 knows entirely its components, how itoperates that theorganization owns the system and where thesystem isbeingbuilt,butabove all, adjusted to thespecific conditions oftheplace technical requirements, that themethods are that theconstruction isdoneaccording to the the technical staff andtheorganization, ensuring This methodology impliesadialoguebetween and quality of the service dependsonthis. and qualityoftheservice to water, because they know that thecontinuity and take care andpreserve ecosystems linked involvement carry outworks to protect sources Many of the community systems built withsocial water resources, water quantity andquality. that exists between theecosystems linked to For that reason, they know well therelationship consume originates better they fullyknow where the water they in theconstruction oftheinfrastructures, the community systems have taken anactive part The greater the degree inwhichtheusers ofthe involvement have anintegrated visionofwater. The community systems builtwithsocial and are “It confirmed thischaracteristic: by theForum for Water Resources in2007 and ensures itssustainability
Fernando Forum
was
those community
found for
with
Solis,
Water
that
the
et. contribution.”
Resources,
the greater al., .
Water better
effort,
Quito,
and
. maintained Astudy done 26
sanitation
participation 2007.
systems
community
systems but through alliancesthat are established inthe that cannot befulfilled by the water board itself, they can participate. However, training isaneed representatives andthey supportthemsothat emphasis ontraining theirleaders and Generally, thecommunity systems putalotof ships andnetworks. communities, which result inmultiple relation- permanently contact andexchange between communities. Therefore, they promote which meansthat they involve several In many cases thesystems are inter-communal,
in
Ecuador,
broader socialprocesses have multiplied. the Water Resources Law, theattempts to structure years, after the constituent andthe construction of applications beyond the community. Inthepast provision aswell asfor oftheservices, other organization becomes anessential part forthe processes are considered asvery valuable in many oftheseorganizations theassociative organizational processes to obtain access to water, of thecommunity systems have hadto experiment processes The community systems are linked to broader social social andenvironmental topics among theusers aboutorganizational, political, for theleaders to make efforts to raise awareness water management scheme . Upto thepoint where alarge majority . Itisalsocommon . . The 27 strengthen thecommunity systems’ organization. to produce concrete socialdynamicsinorder to over thepast decades, thesehave notbeenable experiences have beenorganized inEcuador community systems leadership andconflict management” management, coordination withinstitutions, and maintenance, information and record still “limitations fortheadministration, operation for instance, isstill low andinsufficient. There are not cover thesecosts. oftheoperators, Thesalary maintenance because ofthelow tariffs, whichdo to ensure theiradministration, operation and The smallersystems have thebiggest problems feasible withouttheintervention oftheState. of rehabilitation andimprovement whichisnot that was built 20,30or40years ago inneed of thecommunity systems have infrastructure nor clearprocesses for qualitycontrol. Alarge part have infrastructure andresources to water purify does notalways have agood quality water. Infact, alarge majoritysupplywater, which water qualitybecause notallofthemprovide clean some problems. Oneofthebiggest problems is Just like thestate systems, community systems face problems, aswell asothers that function efficiently. and functionallevels; there are somewithserious heterogeneous. They have different operational The operation ofthe community systems is systems Limitations ofthecommunity
Idem . Even thoughseveral training . Many donot 27 amongthe 37 yakukamay 38 yakukamay law that includesthem recognizes them.Theabsence ofawater resources framework, even thoughtheConstitution community systems isthelackofaclearlegal One ofthemajorproblems faced by the
position. to have theknowledge andcapability for the a leadership positionbecause they donotbelieve several reasons. Many users are afraid to take on the lackofrotation oftheirleaders. Thisisdue to A problem detected inthecommunity systems is Drinking Water (CENAGRAP) intheCañarprovince. the SupportCenter for theRural Management of are afew significant andsolid examples suchas Water Resources Law, they are still too basic. There and after theapproval oftheConstitution andthe have increased innumberduringthepast years systems are still incipient. Even though,initiatives The associative processes inthe community a significant percentage isnot yet recognized. though many ofthesystems are legally recognized, terms oftheirmanagement andoperation. Even entirely recognized at thelegal level as well asin organisms donotmake iteasy for themto be institutional competences between several State this done discussion 28 Water law
by
has
the Resources
and
Assembly not
approval been
Law,
further because 28
(April, Water andtheoverlapping of discussed.
some May uses
2010) and
legal
This
exploitation
requirements and legal
it
was bill
resulted finally includes
have and Sewage Law, establishes that thepeoplewho which constitutes theRural Drinking Water Boards periods oftime.Thedecree 3327ofApril1979, which are appreciated andtracked, over long contributions inthe form of community work, often demandstheusers to make significant The construction of community systems occupy are secondary mostly by menandthepositionsthat women cases. Managerial positionsare still beingoccupied recognized andwomen are excluded inseveral migration, the value oftheir role isnotalways which hasbecome more important dueto male the drinkingwater community systems, arole Even thoughwomen play animportant role in between leaders andtheirteams the State andthesocialorganizations, butalso favoring approaches still persist notonlybetween and training oftheirteam. Thepaternalistic and who stay upto date interms ofinformation very basic andnotsystematic. Few are theleaders of thedirective chart.Thetraining process is still There are nopoliciesfor thetraining andrenewal
not
not in a
approved. chapter many
been
conflicts
fulfilled about
This
the along and is
a .
community
job due
its
that
to preparation,
political
still systems. .
needs
reasons,
to
be
be donewithoutpublicfunding. lifetime ofthe system, rehabilitation works cannot way to ensure itssustainability. At theendof systems dependsonthealliances,whichisonly and maintenance costs. Thesurvival ofthesmall paying an operator andcovering theoperation supporting. Their tariffs are low. They donotallow The smallcommunity systems are notself- rights, whichresults intheexclusion ofnew users. water boards have extremely expensive connection or maintenance works, but alsotheworks donefor rehabilitation have beencounting, notonlythe construction construction ofthe system. However, someboards the numberofcommunity work shiftsdone for the of Connection”. Thisright was calculated basedon system could become amemberby paying a“Right did notparticipate inthe construction ofthe water . Following thismethodology, these in whichthepublic-community alliancescould play decentralized governments. Thisisfor sure anarea competent State organisms andtheautonomous acknowledge theinsufficienceof workdone bythe to bedone.Inthiscontext, itisimportant to of water sources, there isstill alotof work admirable initiatives to promote the protection Even thoughmany systems have encouraged the humanright to water sector, andit would beanimportant step to ensure competence inthedrinkingwater andsanitation the municipalities to efficiently exercise their the Water Resources Law urgent task that needsto bedonewithorwithout functioning andimproves theirmanagement isan systems, strengthens them,promotes their at therural level that recognizes the community Defining adrinking water management model an important role . . .
Thismodelwould allow 39 yakukamay 40 yakukamay chapter 4 systems rural drinkingwater alliance for the A public-communal CENEGRAP: “The waterboardsaswell complement thesestrengths, the municipalityhaveunique and different organizational,and different to be stronger and more to bestrongerandmore Belisario Chimborazo, Mayor ofCañar technical andeconomic The agreements tryto The agreements efficient together.” capacities. 41 yakukamay 42 yakukamay consensus. For that reason, thepresent isolation is inside rural organizations even asa tool to achieve personal interests andexclusion are still present In thesameway, the division, thedominanceof without receiving any feedback at asociallevel. of actionsandprojects, without effects and In that way we endupwithineffective repetition linked to theState donotcoordinate among them. little connection and even worse, theinstitutions departments, between thedepartments there is The governmental institutions are dividedin the Ecuadorian institutions and organizations. not easy, nordoesitconstitute apractice in through theConstitution, working together is a favorable constitutional andlegal framework Even thoughthepublic-communal alliances have other questions. initiative that hasgiven ananswer totheseand The CENAGRAP’s experience isamulti-stakeholder better results than working alone? system that demonstrates that thealliancesgive with aneffective and efficient inter-organizational When shouldwe join?Isitpossibleto come up approaches are absent automatic andimmediate, aslong collaborative As aresult, public-communal allianceswon’t be and between theseandtheState institutions. the result ofmistrust between theorganizations, . Why shouldwe join? and Suscal and sanitation inthe cantons ofCañar, El Tambo for theexecution ofaprogram for drinking water Ecuadorian Central for Agriculture (CESA) Services agreement withtheBelgianNGOProtos andthe decentralization policies)signeda cooperation which at theendof1996(inframework ofthe (CARC), Project “HighBasinoftheCañarRiver” in 1993by theIntegrated Rural Development Plan International. The work done was continued international NGO’s, suchas World Visionand Reconversion Center ofAustro (CREA) and Fund (FODERUMA) oftheCentral Bank,Economic the supportofIEOS, Marginal Rural Development significant numberof community systems with have beenworking. Inthe70sthey builta In theprovince, publicandprivate institutions which amajorityare indigenous areas includesmallandisolated communities of mortality andhighmigration indexes. Itsrural highlevelsservices, ofundernourishment, child and cattle production, low coverage ofbasic very low income indexes, weakening ofagriculture province ofCañar, oneofthepoorest inEcuador: The experience ofCENAGRAP issituated inthe CENAGRAP: conditions for its emergence .
. 29 sustainability ofthesystems. on material constructions, without considering the At that timethemajorityofinitiatives focused strengthened paternalistic and favoring practices. lack ofinter-institutional coordination, which to face thecommon problems at that time:the the sustainability oftheconstructed systems and stakeholder structure was established to ensure rural communities. At thesametime,amulti- the construction ofdrinking water systems in80 in order to implement anintegrated proposal for with otherlocal NGOs,suchasGAMAandCEDIR, years 2000,Protos resumed thework inalliance by theallianceCARC-Protos-CESA started In 1997,thedrinkingwater program promoted overcoming thedifficult state bureaucracy. third, itimproved efficiency thepublicservice from theState andinternational cooperation; and of thesealliancesto optimize the resources coming non-governmental organizations; second, theuse decentralization processes inalliancewith first, itestablished State policies to promote This event marked amilestone inthree ways:
CEDIR, in local from
Cañar,
management the
Protos,
water Cuenca,
Upyay
community
2006.
of
yaku. the
water
systems 29
and
to
sanitation
the
sustainable . Inthe
sector
43 yakukamay 44 yakukamay coverage rate was estimated to be40% When theproject started, thereal drinkingwater 30 regulations andrules; few operators had received did notpay thebillsintime(60%);there were no the leadership positions(17%);the communities was only50%;women hadalimited accessto the active population ofthemain organizations the baselineanalysis identified other problems:
Belisario
Chimborazo,
Ibidem. 30 However, 31 been supported processes gave themwithoutparticipation andappropriation institutions or contractors, whobuiltthemand of thesystems were constructed by external or operated efficiently; andalarge amount training (40%); thesystems were notmaintained At theendofinitiative, 80 water systems had
CEDIR,
Protos, . 31
Upyay .
yaku,
Ibidem. dynamic to empower the community andat the where theconstructive process generates asocial between them,butinterdependence relationships, elements andno hierarchies are established These two aspectsare notconsidered asindividual maintenance (AO&M) to ensure itssustainability the system for itsadministration, operation and local capacities andthe collective appropriation of community organization, thedevelopment of social aspectsrelated to thestrengthening ofthe and designofthesystem, were mixed withthe the technical aspectslinked to theconstruction was carried outbasedonamethodology where fact, theconstruction process ofthe80 systems was integrated later oninto theinitiative. In followed duringthesystems’ construction, which to thecreation ofCENAGRAP was themethodology It issure that oneoftheelements that contributed construction The methodology: thewater systems are atechnical andsocial to achieve acommon goal (supplywater to the one hand,between several stakeholders inalliance This resulted inadoublefeedback flow: onthe construction ofthedrinking water rural systems. a process that took placesimultaneously withthe organizational construction oftheCENAGRAP was An initialobservation has tobemade:the building amulti-stakeholder structure for its management The initialstrategy: combining theexecution ofwater systems and . 32 sector material construction. which ensures thecorrect development ofthe same time to strengthen thesocialorganization, propose asustainable management ofthewater the municipalities,NGO’s andlocal spaces to material constructions, sinceitisprojected onto of anorganizational structure, which goes beyond the construction ofthe systems andthecreation rural communities); ontheotherhand,between administrative andoperational capacities. the CENAGRAP, to strengthen theirtechnical, staff responsible for thedifferent sectors of training organizations andoperators own the system; participation, to make theleaders, main control andparticipation ofmenand women; management, aswell as to promote theactive the relationship of women with water andits the community systems: strategies directed to reach thesustainability of The methodology isbasedonfocuses and actor ofaprocess ofsocialconstruction. states that thecommunity isthemainsubjectand the “24steps methodology orsocialengineering”
Idem. . for thewater boards andtechnical 32 Themethodology known as gender, to understand 45 yakukamay 46 yakukamay 33 joint solution. the problem andtheiravailability to work ona second degree organizations, water boards) about ties, parochial boards, State institutions,NGO’s, interests ofthedifferent stakeholders (municipali and get to know thedifferent conceptions and In thephaseofevaluation the goal was to identify institutional structures: ACORDES. was developed by experts infacilitation ofinter- of theinitiative andanimplementation phase that with thelocal stakeholders, aphaseofconstruction in three moments orphases:aphaseofevaluation That isthereason why thesystems were created planned anddeveloped were built,theproposal hadto beextremely well and theparadigms uponwhichthesesystems frustrations with regard to therural water projects If thehistorical andsocialcontext hadleft alotof adapted to thelocal context Preparatory works: theconception ofthemulti-stakeholder structure
Marc management
Craps,
Collaborating
of
rural
drinking .
for
water:
water 33
an -
ACORDES
inter-institutional
-
Université -
experience to findabaseandadequate legal framework. agreements between thepartiesvia consultations with thework ofcommissions to search for construction. The workshops were complemented organizational chart,asafirst exercise forthe analysis oftheorganizational system andapossible point, thedevelopment ofjoint visions,the and methodology to reach consensus asstarting where focus was given to organizers, theobjectives between themultiple stakeholders were held, stakeholders was done.Workshops andmeetings action strategies and logics related to eachofthe of thereference framework, work paradigms, was alsoanalyzed. Inaddition,adeeper study institution and their organizational experience possible contributions, the external image ofeach The institutional identity, relevant background,
de
Cuenca
for
COOP
the
sustainable
-
K.U.Leuven,
2001 of allthepartiesandwithout the fact that the solvency, efficiency, transparency, independence been achieved by thegroup withouttechnical the different parties.This role wouldnot have ThisgroupCEDIR. managed to gain thetrust of and spokesperson: theConsortiumProtos- possible thanks to theintervention ofamediator under confrontation, around a common topic was together stakeholders whountil thenfunctioned construction ofa collaborative structure, bringing Therefore, theideato contribute to the indigenous communities andtheurbanmestizos. the cultural ethnic division between therural of theinitiative. Thismistrust resulted inpart from governments, considered asthetwo central actors mistrust between thecommunities andthelocal faced astrong initialproblem: thehistorical The startup ofamulti-stakeholder structure Importance ofastakeholder intherole ofmediator andspokesperson In the infrastructure, personnel andresources, thesupply collaboration agreements, thedispositionof into resources andactions by formalizing visions andagreements reached were materialized Finally, duringthe requirements for themulti-stakeholder structure. process, theinstitutional obligations andthe legal negotiation and to create ajoint visionofthe together alltheinterested parties, to start adirect construction phase,itwas aimedat bringing implementation phase,the During thepreparatory phaseoftheinitiative, a from thepossible local conflicts. (even thoughitwas notneutral) andit kept away the group because ithadarather objective opinion On theotherhand,itwas anadvantage to have local partiesthemselves. to becareful to let theinitiative emerge from the temporal andexternal party. That iswhy they had experience to implement it,buttheGroup was a it hadcreated theproject, hadtheresources and under theleadership oftheGroup itselfbecause construction ofthe systems, buttheinitiative was On theonehand,because they hadarole inthe Protos-CEDIR acted asamediator was complex. However, thepositionfrom where theConsortium construction works. budget was available to carry outthetechnical and influenced future collaboration. learned to know eachotherandinteract, which collaboration was created, where theparties questioning. Inthis way thebase for future of experimentation, evaluation and continuous stakeholders; itwas developed through asequence of joint creation andlearningbetween allthe These preparatory works became aprocess monitoring ofthemulti-stakeholder structure. administeredof theservices collectively andthe
47 yakukamay 48 yakukamay An organization chartbased onhorizontal integration representative figure forthe water boards, Another sensibleaspectwas to finda been solved intheEcuadorian legislation. and NGO’s fall; thisisanaspectthat still hasnot under whichlegal figure themunicipality, boards For example, itwas extensively analyzed how and faced during thecreation ofthese roles. It was important to thenanalyze thedifficulties of that time. parochial boards, Water andSanitation Secretary boards, political organizations ofthepopulation, could take were analyzed: themunicipality, water possible roles andcompetences that eachone It started from anorganizational chart,where the central position until that moment. system inwhichonlyonestakeholder hadthe the definition ofthe roles,in order toimprove the the biggest challenges was theidentification and take partinamulti-stakeholder structure. Oneof holders, theirvisions,capacities andlegitimacy to detailed inventory was doneto identify the stake reason thechoicewas madeto create aboard social andpolitical organizations, and forthat association of boards was criticized bythelocal dispersed intherural environment. Theideaofan assembly withoutlegal character An operative team was formed by a coordinator, center andtheotherparties. responsible for thecommunication between the follow-up for thetechnical personnel andis policies, appoints theoperative team, carries outa municipality. Thisboard defines strategies and elected inthegeneral assembly andtwo from the made upoutofthree members oftheboards organism for decisionmaking.Thisorganism was A Board ofDirectors was established assupreme institutions) without right to vote. members, thelatter ones(NGOsandState made between thepermanent andcooperative supporting NGOs.Acleardifferentiation was of thecommune wanting to participate, andthe municipality, thedifferent legalized water boards collaborative agreement between the Finally, itwas decidedto have amultilateral .
issues incoordination withtheBoard ofDirectors monitor thesystems regularly andsupporttheir part andonefor thelower part).Thisteam hadto warehousemen for thetwo offices(one forthehigh an accountant, two caretakers andtwo a legal advisorrecognized by themunicipality, per eachofthe25boards, anengineer, a technical promoter, anorganizational promoter in adecreasing way as well asavehicle andto contribute economically agreed to construct theoffices, provide equipment, contribution ofthepartnerinstitutions. Protos USD 0.10/month peruser, inaddition to the to theneedsofcenter andtheboards give the municipalitygives anannualfund,according established basedonacontribution table inwhich and operators . Theeconomic resources were .
• • different participants: complementary setup ofresponsibilities heldbythe The organisation was defined bymeansofa Clear definition of stakeholders’ roles
JAAP Protos–CEDIR Consortium Municipality Contribution participating organizations %2002-2006 Organization to water to guiding andimplementing publicpolicies related operative team. They alsohad to cooperate technical capacities that were absent inthe structure, madepublicresources available and The Municipalitygave legal supportto the the municipality boards, aswell asinfluencing andinteracting with the dialoguesandbrainstorming between water assembly meetings they shouldplay a role in maintenance oftheirsystems, andduringthe should beresponsible for theoperation and The communities anddrinking water boards . 58,3 % 36,1 % 2002 5,5 % . Chart 5: 2003 40,5 % 45,0 % 14,5 % 25,0 % 48,3 % 26,7 % 2004 2005 15,0 % 55,0 % 30,0 % Source: 70,0 % 30,0 % 2006
Protos. 0 % 49 yakukamay 50 yakukamay strengths andpotentials. together thisallianceandto complement their multi-stakeholder structure, as well as to construct which could allow themto feel partofthenew responsibility between thesetwo participants, It was aimedat developing afeeling ofjoint regard to drinkingwater provision andsanitation. the municipalitieshad exclusive competency in In 2009,there was already acleardefinition that linked to decentralization were taken into account. the role became more andmore clearastheideas Later, after theapproval ofthenew Constitution, there was noalegal framework to supportit. initiative wasbasedonpolitical interests because At thedesire thebeginning, to promote the The role oftheparticipants was notalways clear. increase Municipality andthecommunities was going to decrease gradually, whilethecontribution ofthe agreement that thiscontribution was going to the ConsortiumProtos-CEDIR, butunder aclear the majoreconomic contribution was done by provide were defined. According to theagreement, that thecenterand theservices was going to new capacities inthe operating team were created the technical basesofthecenter were presented, During thisperiodofinstitutional construction, First period:CENAGRAP’s startup (2002-2006) Three periodscan beidentified duringitsinstitutional life: contribute to thesustainability oftherural drinkingwater systems. this multi-stakeholder structure, aiming at providing that publicservices can Protos-CEDIR, acting as cooperating entity, subscribed an agreement to create On June24,2002,15community systems, CañarMunicipalityandthegroup communal alliancesare possibleto achieve CENAGRAP through its9years ofexistence isthereal proof that thepublic- Periods inthehistory ofCENAGRAP . . Government support oftheEuropean UnionandtheBelgian contribution ofProtos-CEDIR, through thefinancial which were constructed andequippedwiththe the construction ofthecenters inCañarandZhud, municipality gave landfor distribution ofthebudget was accomplished. The Protos-CEDIR USD11700 USD 1000,themunicipalitywith7100and The first year the JAAP’s contributed with . . In5years thepercentage
51 yakukamay 52 yakukamay good qualityandat fair prices, contributed to this the operation ofthe warehouses withmaterials of throughservices, anactive training process and boards intheprocess. Inaddition,thesupport Protos-CEDIR, which allowed to includethese to theconstructive work done by theConsortium Center (from 15to 55water boards affiliated) due This was theperiodwithgreatest growth inthe • • CENAGRAP was: packageThe basicservice implemented by the 34 growth • •
Collaborating University rural experience implementation oftwo warehouses. of good qualityandat afair pricethrough Provide thecommunity systems withmaterials beyond local capacities. Technical adviceincase ofdamages that go management andprevent damages community systems to supporttheir Permanent follow-up viafieldvisits to the water community systems inCañar. and socio-organizational aspects to thedrinking Provide training inadministrative, operational
drinking .
of
for
Cuenca,
for water
the 34
water:
sustainable
service.
COOP,
an
inter-organizational
K.U Marc
management
Leuven,
Craps,
. 2001.
ACORDES,
of
the
36 35 IWRM. of in plans “CENAGRAP, and thevisionofCENAGRAP was established: In 2008,alongterm Strategic Planwas structured institutionalize theCenter. debate was taking placeabouttheneedto water boards, whileat thesametimeanimportant thatof theservices CENAGRAP provided to the This periodwas characterized by theconsolidation 2009s) institutionalization (2007 -mid Second period:CENAGRAP’s functioning quite well. organizational as well asthe technical part was operation, above 62%,whichindicated that the community systems hadanacceptable the technical team oftheCENAGRAP. In2003,the obtained recognition andensured the efficiency of CEDIR, themunicipalityandcommunity systems The alliancebetween theConsortium Protos-
CENAGRAP. Belisario Ordoñez gender, administrative considered percentages
the Cañar,
and communities
It
quality
has under
Chimborazo. Marcelo. manages
18 Plano
with are full
variables:
and
of the
achieved recognition
Estratégico, the regard
operational
and framework the
service Ibidem, 35
safe rural organizational,
through to
the
and
access
points 2008, and systems
aspects,
of
local quality
a
legitimacy” water
Solis study out
to
water
in
as social, clean
that
of Helder,
that
the right well
water.
these
policies,
water Canton
as
36 and
its modeofoperation. role inregard to drinkingwater inrural areas and determined theorganic structure oftheCenter, its proposals andagreements inabodyoftext which together withthe Board ofDirectors putdown the and discussion.Anexternal legal adviceteam to develop thislegal instrument viadialogue A participatory process was set upinorder structure the legal recognition ofthismulti-stakeholder of theCENAGRAP was developed; thisaimedat Formalization and Regularization fortheOperation Further, theideaofhaving anOrdinance of the Center asapublic-communal alliance water intherural areas, theinstitutionalization of construction ofthe communal policies related to and convenient advocacy services; andthe ability ofthecommunity systems through efficient This planset three fundamental cores: thesustain .
. - order to improve theircapabilities. Board ofDirectors andto theoperational team in aspects, gave adviseandgeneral supportto the technical supportinadministrative andaccounting During thissecond period,thegroup provided undefined duringthefirst period. tributary topics were regulated, whichremained the process. Inaddition,administrative, laborand Boards), whichwas amajorissuefor debate during two ofthemainparticipants (Municipality and allows to ensure horizontal participation between of theBoard ofDirectors was established andthis With theapproval oftheordinance, thestructure well asby theCantonal Board the ordinance was approved by theAssemblyas respecting itscriteria andopinions.InApril2009, spaces for theparticipation ofthe water boards, entity for CENAGRAP), at thesametime,itopened of Directors (whichconsolidated asastrategic space for horizontal interaction insidethe Board administration. Themunicipalityprovided a the political willingnessofthemunicipal the ordinance hadnotbeenpossiblewithout The process ofelaboration andapproval of . 53 yakukamay 54 yakukamay Center boards showed ahighlevel ofownership ofthe tested thevalidity oftheordinance andthewater Municipal Administration. Thenew authorities This periodstarted withthechange inthe framework (mid-2009suntilnow) Third period:Center’s re-adjustment to theordinance andnew legal lity actionsin the Board’s Assembly. CENAGRAP into theirown, respecting itsautonomy. This was complemented by accountabi Furthermore, thePlanningDepartment ofthe municipalityincludedtheplanningof rural management ofwater, aseven theMajor oftheCanton joinedtheBoard ofDirectors. on theotherhand,municipalityreaffirmed the validityofthis structure asa policy forthe On theonehand,boards showed astrong identification withthealliance; its participants. This discussionhaspermitted greater rapprochement and ownership oftheCenter by ment inrural areas new municipalpoliciesrelating to water manage- beginning. Itdeveloped itsactionsaccording to the standing andstrengthening thisalliancesincethe The municipalityshowed great interest inunder Administration . Municipal government Town Councilman
Municipal Major . For that reason, arevision
promoters Technical Delegation Structure ofCENAGRAP Board ofDirectors
ofthe
Social promoters Three representatives - JAAP’s Assembly JAAP as follows: graphically can be representedordinance, current The CENAGRAP’s structure, according to the closer andempowering theCenter municipal administration, whichaimed at working the ordinance andtherequirements ofthenew challenge to adequate theiroperational rules to The structures oftheCENAGRAP accepted the which was presented intheBoard’s Assembly and modification ofthe ordinance was proposed, ’s
Warehouse Material
.
-
. democratic behavior was institutionalized During thisperiod,aparticipatory and the authorities at that timemadeitpossible to remains. Onceagain, thepolitical willingness of management oftheBoard ofDirectors that still 37 and problems are found. system upto the basinlevel, where thesesources This ishow thefocus changes from withinthe problems andconcerns aboutthesetwo topics management at thetime andtheincreasing due to theintegrated visionof water resources and water quality were included:protection of water sources the Center, from 2009onwards, two key aspects alreadyIn addition to theservices established in achieve joint agreements
In committee and cantonal her are
regard
delegate 2 one
people,
representative
councilman. to
participate
the
and in
delegation a
.
a Theseaspectswere included new
councilman
In
ordinance without
of
addition,
. the
of
the canton
right designated
the
Municipality, the
to
Major
development coordinator
vote
by
or 36
the inthe his/
these
.
not onlyinourcountry, butalsointhewholeSouth and sanitation have services seriousdeficiencies Previously, we have seenthat theprovision ofwater this kindofanalliance. not aguarantee for thehumanright to water. organisms have proofed that private management is America andthe international andmultilateral However, after several negative experiences, Latin community systems have problems andlimitations. continues to bepostponed; thepublicand provision inurbanareas, butinrural areas it Improvements have beenmadeinregard to water American region together”. in otherwords: bemore strong andefficient An agreement triesto complement thesestrengths, economic capacities that are uniqueanddifferent. the municipalitieshave organizational, technical and capacities oftheother.“The water boards, as well as alliance that bothpartiesacknowledge the value and other to achieve agoal. Therefore, itisimplicitinan participants who recognize that they can helpeach An allianceinvolves thereunion oftwo ormore of amulti-stakeholder structure Principles for theconstruction
38
Belisario Recursos de Cañar,
discusión,
desde 37
Chimborazo. Hídricos, TheCENAGRAP isanconcretisation of
Segundo la .
experiencia
Quito,
El
Encuentro
programa
2003.
de
CEDIR
Nacional,
de
,
agua en
Documentos
Foro potable
de
los en
55 yakukamay 56 yakukamay among others) theonlyfeasible modelinmany of dispersion, geographic conditions, highunit costs, the rural environment (low population density, recognizing that given thespecific conditions of The public-community alliancesstart by more complex. environment where theprovision is ofservices alliances between them,inparticulartherural management, for instance thecommunity and faces thechallenge ofstrengthening thepublic Therefore, to ensure thisright, theregion of thesystems andlater administration, operation systems contribute considerably to theconstruction municipalities. However, historically, the community constitutionally itis competence ofthe responsibility relies withtheState and While water isahumanright, the and maintenance the boards take over theadministration, operation economic andtechnical supportandtraining; while The municipalitieshave to ensure water quality, this field. levels ofinvestment occurred inthelast decades in efficiency andmuchlesswiththe oftheseservices systems northemunicipalitiesalone can ensure the In therural context, neitherthecommunity municipalities and community systems. efficiency isthrough the The way to expand thecoverage andgain these regions isthecommunity management . complementarity financial ofthe .
materials inthearea of thedrinkingwater systems. They shouldalso criteria for design,execution planning, and AO&M technical staff shouldmaster technical andsocial municipalities The public-communal allianceimplieshaving strong Nicaragua (Law 722) in Ecuador (Constitution and COOTAD) andin In fact, inLatin America they are only recognized economic resources andhumansustainability with respected: thecommunity model,whichfunctions that starts to befeasible andhasto bevalued and a new modelfor the management ofpublicservices are typical oftheprivate management. They follow operate under the corporate criteria of profit, which private The community systems are neitherpublicnor These systems dependlargely ontheirown providing economic resources, work andavailable NGO’s andthecommunity systems themselves a co-investment withparticipation ofthe State, the community systems onehasto talk about and maintenance. Therefore, at thelevel of autonomy andself-management. . They donotbelongto theState anddonot , interms oftheircapacities . . . Their .
time began to interact withseveral municipal this decentralized structure, which inalapse of was possiblebecause themunicipalityrespected Center”. Infact, thestability oftheCENAGRAP change thepersonnel orusetheresources ofthe could nottake anything from thewarehouse, Several participants referred to the fact that “they institution will have inthe eyes ofthemunicipality. to respect the Once theinitiative hasbeen formed,itisimportant analysis ofwater quality. should have laboratories to perform regularly the systems. For that purposethemunicipalities monitoring ofthequality well asmechanisms for regulation, control community systems andthemunicipalities,as agreements needto bereached between the The public-communal alliancesalsoimplythat counterpart of themthat assumeseriouslytheir roles as and isolated water boards, butbetween agroup alliances cannot happenbetween themunicipality significant levels of and systems), withstrong organizations, implies accessto legal security(legalization ofthe In thecontext ofthecommunity systems, this systems translate into strengthening ofthecommunity have capacities for monitoring andtraining which social control . . relative autonomy that thisnew . Thisalsoimplieshaving associativity because the ofthewater suppliedto transparency and the CENAGRAP ordinance was auseful andsimpletool to secure the Water Resources Law, still notapproved). The andSanitation,Services thenew Constitution and boards law, draft legal billoftheDrinking Water disappearance, omissionofthe drinkingwater Environmental Sanitation intheMIDUVIandits and extended (InclusionoftheSecretariat of made theprocess ofinstitutionalization difficult institutional changes happenedinthe country that ordinance participants, towards theapproval ofthemunicipal that confirms thealliancebetween thepublic term agreement (10years), asaregulating tool The CENAGRAP evolves onthebasisofalong the authoritieschange every 5 years. temporality threatens longterm initiatives, when and thelimited longterm planning.Thepolitical the political influence inthelocal governments permanence andcontinuity, especially considering safe withoutits An alliancesuchastheCENAGRAP would notbe consolidate itsidentity. but always protecting itsautonomy that allows to by themunicipalityandaffiliated totheCenter, works together withthewater boards supported drinking water theconnection unitto supervise projects andto work, inparticular, withthe the budget received, to carry outenvironmental included intheplanningto give accountability of departments . Alongtheway, strong legal and . Inthisway, thestructure was . institutionalization that ensures its 57 yakukamay 58 yakukamay systems came together for itsformation, but When theCENAGRAP started, 15community rural environment inCañar Acceptance oftheinitiative inthe in therural drinkingwater systems ofCañar Consequences ofthepublic-communal alliance 22.50 %andthebigones(more than181families) 10%. families) represent 68.75%,themediumsize (between 81-180families) As itisshown inChart7,thesmaller water boards (between 12 -80 The smallest system supports12families, while thebiggest serves 500. that serve 6764families inCañarwithapopulation of33020people. Nowadays, theCENAGRAP has82drinkingwater community systems In thefollowing chart thisgrowth can beseen: of therural water systems. accordingthat itissupplyingservices to theneeds important legitimacyintherural communities and it grew very rapidly Source: 2011 2010 2009 2008 2007 2006 2005 2004 2003 2002 Year Growth oftheCENAGRAP
CENAGRAP, Chart 6: Number ofsystems .
Thisshows that ithasan made
by 82 73 70 60 59 55 50 25 15 15
Protos,
2011 In 2010,themunicipalitycontribution to the recurrent expenditures was increased to USD83215(88 %) Contribution ofthecommunal systems andpublicgovernance savings solidarity withthoseleast favored. structures systems andalliances,inwhichthebigger andtheState show The smallsystems can onlyensure theiroperation through multi-stakeholder could ensure asustainable management ofthesystem. Source: and isolated community systems 12,20or60families serving paying low tariffs, possible to ensure thehumanright to water community systems. Thisreaffirms that themulti-stakeholder structures make it The fact isthat more thantwo thirds ofthemembers oftheCENAGRAP are small Type of water boards in the CENAGRAP, according to family composition - 2011 Total More than181familles 121 à180familles 81 à120familles 41 à80familles 12 à40familles families Kind ofboard, according to thenumberof Boards AO&M Boards (RE) Municipality (RE) Participant Evolution ofthe contributions to therecurrent expenditures (RE)andAO&M, 2003-2010 50 2003 1 6 . . . 473 413 505
84 12 2004 CENAGRAP, 3 . . . Chart 7: 919 175 285 168 . 18 2005
Itisimpossibleto imaginethat poor made 4 . . . 583 364 350 water boards Chart 8:
Number of by
Dennis 185 22 2006 3 . . .
988 533 185
García, 82 17 39 8 9 9 198 Source: 39 2007
5 Helder . . . 143 831 653
CENAGRAP %
Solis, 202 45 2008 11,0 11,0 20,7 47,6 5 100
9,8 2011 . . . 695 636 020
-
Protos. 235 45 2009 5 . . .
214 636 690 Made
245 by 83 2010
5 Protos . . . 769 215 791 59 yakukamay 60 yakukamay administrative personnel, whoare essential forthe that allow to cover thecosts ofthetechnical and essential to cover the recurrent expenditures symbolic. Themunicipalcontribution hasbeen the contribution ofthe water boards ismore increased andbecame more representative, while CENAGRAP increased, municipalcontribution that theaffiliation ofthe water boards tothe contributions to theCenter, it can be concluded From afirst look at the evolution ofthe operation oftheCENAGRAP. is USD0.10permonth pereachfamily for the (12 %).Thecontribution ofthe community systems and thecontribution oftheboards to USD5769 Evolution ofthecontributions to therecurrent expenditures (RE)andto thecost ofAO&M 2003-2010 100 150 200 250 300 50 years 20032004200520062007200820092010 ...... US$ 000 000 000 000 000 000 0 Graph 1: of users, itcan beseenthat themunicipality contributions are dividedamongthe total number operation ofthemulti-stakeholder structure. If the contributes upto USD2 water management comes from thecommunity alliance. Clearly, themajorcontribution to rural that they generate underapublic-communal boards, itwould nothave theeffects andimpacts resources inabilateral way to eachofthewater results. Infact, ifthemunicipalitywould give these per family, theState can achieve significant figure issignificant because witha low investment In thecontext ofamulti-stakeholder alliance,this This figure can beseenas rather low, butitisnot. . 90 peruseryear Boards -RE Municipality -RE Boards -AO&M . size systems manage to pay USD60andthesmaller pay anoperator USD200permonth, themedium the systems. For example, whileabigsystem can implications for the management andoperation of this aspect,there are huge differences that have with lessthan30families provided USD552.In up to USD14600yearly inAO&M, asmallone system withmore than280families contributed size ofthesystem. Similarly, in2010,whileabig Obviously, thecontributions accordingvary to the and maintenance (AO&M) ofeachtheJAAP’s. systems through theiradministration, operation of construction and rehabilitation laborof52 If we addupalltheinvestment done interms systems that thecommunity systems have withtheirown the numberofaffiliations andthe responsibility significant rate sinceits formation, because of terms ofAO&M hasincreased at asustained and community systems linked to theCENAGRAP in As seeninGraph 1,thecontribution ofthe boards was USD1370369 period 2003-2010,thecontribution ofthe water Canton ofCañarin2010was USD245791.Inthe operation andmaintenance ofrural water inthe systems oftheCENAGRAP for theadministration, stated that thecontribution ofthe community USD 3367peryear. From thisfigure, it can be community system oftheCENAGRAP in2010was The average contribution in AO&M ofeach USD 5oreven less . .
. in savings for theState ofupto USD2350581in the community systems ofCENAGRAP resulted easy to seethat, duringtheperiod2003-2010, systems by thecommunity (USD980212),itis human right to water inrural areas the publicsector andthecommunity to ensure the again theneedofcomplementarity between bution ofthe community systems, shows once The municipalcontribution, as well asthe contri- water management .
. 61 yakukamay 62 yakukamay support inresource’s auditsandstrengthening of elaborating andupdating the internal regulations, conflict resolution, advisingin organizing, social visits,thefollowing issues were discussed: tools andmaterials andflow control. Duringthe Emergency Fund,advisingintheacquisitionof in theoperation andmaintenance, access to the budget planningto fixmajordamages, correction been: prevention ofdamage intheinfrastructure, The maintopics discussedduringthevisitshave 2010, 78routine visitsand205upon request. and 104visitsuponrequest were done,whilein affiliated were visited. In2009,123 routinevisits In thepast two years, 100%ofthewater boards their families. supply water insufficient quantity andquality to members ofthesystem andtheirresponsibility to strengthen themanagement capacities ofthe to extend theirlifetime. Furthermore thesevisits and maintenance ofthesystems, whichallows They provide advisewithregard to theoperation and socialtopics are discussedduringthesevisits routine visitsandupon request. Technical The technical team makes two kindsofvisits: Monitoring visits rural water systems ofCañar Impact oftheservices provided by theCENAGRAP inthe available for thecommunities. and friendly;they were willingto work and were The users testify that the technical team was kind the leadership . .
the operative team andthe water boards (AVINA, from otherentities to strengthen the training of Group. Lately, CENAGRAP managed to findsupport developed by the Center of the and withthe support methodological supportoftheManualsfor Training experiences. Allofthisisachieved withthe workshops inthesectors andfieldvisits to exchange different mechanisms: workshops between leaders, technical, socialandenvironmental aspectsby using training oftheboard representatives andusers in This technical team isresponsible for theperiodic communication andmanagement ina team. administration for the community systems, internal water sources, leadership, organization andbasic technicalquality monitoring, processes to protect drinking water andenvironmental sanitation, water topics suchasmaintenance oftheinfrastructure for technical team provides to thewater boards in process, aimingat improving theadvisethat the The Center hasdeveloped acontinuous training the water boards Training for thetechnical team and record theirdailyactivities).Inthis way, theleaders makes iteasy for thecommunity to control and the tariffs, software for payment collection(which accounting records, calculations andupdate of water boards: payroll, list ofusers, meter reading, for themanagement of theadministration ofthe At thesametime,aset of tools were developed CAMAREN andWaponi) . Evolution ofthesalesandwarehouse inventory processes that theusers doonayearly basis of thetechnical team intheauditsandcontrol expenses. Inaddition,there isa constant support keep good track ofthecontributions andnecessary 2010 2009 2008 2007 2006 2005 2004 2003 Total Year CENAGRAP 2003-2010(USD) Chart 9: 247 73 22 25 19 71 17 12 Total sale 4 . 759,00 ...... 017,46 304,12 770,70 869,28 322,64 946,73 312,83 . 302,76 Total inventory Source: 49 31 32 27 25 21 21 10 ...... 502,89 781,39 199,59 810,48 445,74 180,02 757,55 962,03
Protos . actions. role they play inmonitoring oftheleaders’ contribute to thedecisionsandimportant as operators leader isawoman and5boards have women directive structure, in17%oftheboards the systems, 100%have at least onewoman intheir forward. For instance, outofthe82affiliated management ofthewater boards hasbeenput and theirwork andcontribution to the Women participation hasbeenmore promoted Greater participation ofthewomen not affiliated. affiliated totheCENAGRAP, as wellas forthose construction and rehabilitation ofthe systems begins to buymaterials andaccessoriesfor the happens in2010because theMunicipality system inthecommunity ofQuilloac.Thesame and accessoriesfor theconstruction ofthe the ConsortiumProtos-CEDIR bought materials desire to strengthen andincrease thesesales,so In 2006,salesincreased drastically due to the process results inUSD49500funds2010. in aperiodof8years. Asustained capitalization approximately USD247302.76were reported (in regard to theirquality)andontime.Sales of for givingmaterials ofgood quality, at fair prices The warehouse hasearnedagood reputation The warehouse for materials . Theusers recognize theirabilityto 63 yakukamay 64 yakukamay Unit oftheMunicipalityanalyzes it,visitsthewater submits anapplication, a technician from the Water according to thenumberofusers. Once thewater board used to calculate theamount that they can receive, between 10-15water boards peryear basedonatable The fundhasalimited budget that allows to support recurrent costs anditsuseiswell regulated municipality, additionally to thebudget given for the beyond theircapacities. Thisfundisgiven by the affiliated water boards paying forthe costs that go An Emergency Fundwas created to supportthe Emergency Fund . 10 20 30 40 50 60 70 80 ...... 000 000 000 000 000 000 000 000 0 2003 2004200520062007200820092010 Evolution ofthesalesandwarehouse inventory, operators as atraining mechanism for thewater board andtheir resources. Theimplementation also ofthefundserves the realization ofauditsonthemanagement ofthe regulations, the alternation oftheirleaders and fulfillment ofthe tariff payments, theupdate oftheir management ofthewater boards, suchas:the conditions to promote improvements inthe The regulations to usethisfund establish some the solutionwith water board. the acquisitionofmaterials andimplementation of board andmakes aproposal for atechnical solution, for CENAGRAP 2003–2010(inUSD) . Graph 2: total inventory total sales institutions. the financial cooperation of development support Management Unit,Ministry ofPublic Healthand have thesupportof Cantonal Environmental protection of water sources. These campaigns permanent campaigns took placeregarding the an environmental dimension management ofcommunity systems now including This demandallowed to take astep furtherinto the degradation existing inthedifferent communities. its quantity due to theproblems ofenvironmental relevance was given to preserving water qualityand in 2008 constructed andduringaninter-boards meeting The demandappeared whentheStrategic Planwas conservation oftheirsources and watersheds. the affiliated water boards: the protection and wasIn 2009and2010,anew service includedto The protection ofthesources andtheirwatershed . Duringthisevent, important priorityand . From 2010onwards, water boards was USD10000 The financialandnon-financial contribution of the 2010 USD9000andtheMunicipality6500 The Group gave for thiscomponent in2009and boards initiatives were developed in23 affiliated water In 2009and2010,environmental protection and between water boards state ofthesource, anevaluation process within of theinitiative, periodicmonitoring toassessthe land where thesources are located, theexecution protection, negotiations withthe owners ofthe environmental analysis, actionswith regard to protection: delimitation ofthe area viaan set thesteps that needto betaken to achieve water Supporting theprotection of water sources and sheds hasaseriesofpr . . ocedures, which . .
65 yakukamay 66 yakukamay that allow to strengthen thetopics started by relationships withsimilarmunicipaldepartments the Municipality. Thisshows thecoordination of PublicHealthandtheDrinkingWater Unitof water boards withthesupportfrom theMinistry were organized, whichinvolved alltheaffiliated Until 2010,two campaigns to analyze water quality campaigns Water quality monitoring andcontrol public-communal alliances multi-stakeholder structures resulting from the internationally in regard to the feasibility ofthe become animportant reference, nationally and private entities. Thishasallowed CENAGRAP to American level, amongseveral public,socialand experience at thelocal, regional, national andLatin The technical team hasdisseminated the Center andinfluence Dissemination ofthe Ministry ofPublicHealth. the technical team, theDrinkingWater Unitandthe constantly beingexecuted. Thisremains apriorityin boards that needwater qualityimprovement are The corrective actionsand proposals inthe water of boards andinsideeachsector were organized. implications ofdrinkingpolluted water, at thelevel several campaigns to raise awareness aboutthe been easy to achieve Fund andthecommunity systems through thesupportofEmergency In this way, 59 water boards have water chlorination CENAGRAP . . Inorder to implement it, . Thiscomponent hasnot . management ofwater, suchastheConstitution, the construct legal proposals related to thecommunal forums andmeetings for dialogue to discussand The CENAGRAP hasjoinedseveral debate significant progress. kind ofalliancesare possibleandcan showcase the development ofpractical examples that these such astheForum, butthisisalsotheresult of proposals constructed collectively inplatforms alliances intheConstitution, isthe resultofthe and themandate to establish public-communal the recognition ofthe community management charge ofelaborating theConstitution. Insome way given to theAssemblyinMontecristi, which was in significant proposals through this forum that were Resources Forum inAzuay (Cañar) andhasmade The Center hasparticipated actively inthe Water experience. part ofthescope oftherelationships withinthis America Water Network and otherentities make the Towns, ETAPA, Ministry ofPublicHealth,Latin ACRA, CAMAREN,USAID, SENAGUA, Secretariat of make projects become areality. AVINA, CARE, disseminate theirproposals, buildalliancesand organizations andNGO’s madeitpossible to Networking withState institutions, social Water Law andtheCOOTAD . and conclusions Learning outcomes chapter 5 shape of things. I return tothe shape ofthings.Ireturn « I return totheelemental « Ireturn and fire and thecolor and fire transparency andcalm..» transparency after havinglovedthesoil air andwater, Jorge Carrera Andrade
67 yakukamay 68 also coordination groups; ensure the the Overcoming trengths andlimits oftheconstitutional andlegal framework
allocation framework
serious
S the
the
sustainability
capacity
and a
among
of structural
of
sustainable economic
strengthen theseinitiatives and to define clearlywho regulates and recognizes them. that reason, itis important to promote theapproval ofthe Water Law inorder to there isstill noclearlegal model to protect thepublic-communal alliance. For allowed inthecurrent legislation. Despite ofthe favorable constitutional framework, The CENAGRAP managed to reach institutionalization thanks tothe ordinance;this is CENAGRAP rural areas anditalsopresents adefined model for thepublic-communal alliances: communal management for strengthening theprovision ofdrinkingwater inthe in spite oftheirlimitations. This experience shows theimportance ofthepublicand unavoidable to organize andstrengthen thepublicsector, aswell asthecommunity by thesectors ofthesociety that lookafter the common interest. Therefore, itis these proposals? That istheprinciplethat thehumanright to water hasto beensured management through public-communal alliances and thecommunity The Constitution states that water management canonlybedone bythepublicsector Currently inEcuador, we have afavorable legal framework for water management. a
new
the and
model
public problem of efficiency
resources the
proposals .
and water for
requires:
development;
of community
to
. the and Italsopoints outthat theState hasto strengthen thecommunity
about
ensure
service
sanitation
the
complete
creation the systems
providers; the
necessary
systems political
and
of to
public take
integrated social
investments; without willingness
advantage
policies
participation . Whichisthebasicprinciplebehind
affecting
water
from of
the of
local
management. their
the creation
the and
governments
central
complementarity most
monitoring;
of
vulnerable
State policies
to
under
the
act;
that
and
69 yakukamay 70 yakukamay alliances withthecommunity andtheparochial boards asresponsible participants. process; to linkthesocial,environmental andeconomic aspectsintheirmanagement; to make plans for territorial organization; to insertdrinking water andsanitation inthe development to integrate theplanningofdrinkingwater sector withthelocal development andthe GAD’s. Inthecase ofdrinkingwater andsanitation, themunicipalities have the responsibility organization at thedifferent levels. This fact presents a variety of valuableopportunities forthe competences, aswell asto ensure theplanningprocesses for development andterritorial Governments (GAD’s) experience anhistorical moment: receive andpractice theassigned From theconstitutional mandates andthe COOTAD, theDecentralized Autonomous An opportunity for theGADs financial responsibility inthesector. proximity to capitalize theproblems ofthepopulation, their technical resources andtheir bureaucracy. Themunicipalities,ontheotherhand,asdecentralized State entities, usetheir control, anintegrated visionofnatural resources management andmanagement without with theirsocialorganization, their collective mechanisms for water management andsocial between thekey participants: themunicipalityand community systems. They contribute The key for thesuccessofallianceiscomplementarity andthejoint responsibility operation andmaintenance. economic andtechnical supportandtraining; whiletheboards take over theadministration, were doneover thelast decades inthisfield.Themunicipalities have toensure water quality, human right to water and sanitation is fulfilled, taken into account the levels of investment that context, neitherthecommunity systems northemunicipalitiesalone can ensure that the is through thecomplementarity ofthemunicipalitiesand community systems. Intherural regions isthecommunity management. Theway to expand thecoverage andgain efficiency geographic conditions, highunit costs…). Inmany cases, theonly feasible modelinthese into account thespecific conditions intherural context (low population density, dispersion, drinking water andsanitation coverage intherural areas. Thesealliancesare needed taking This experience clearlyshows that thepublic-communal alliancesare away to expand the Public andcommunal complementarity municipalities anddecrease thoseoftheNGO’s. as astrategy to increase thecontribution ofthe the NGOsto gradually leave thealliance,aswell the sustainability to clearlydefine a strategy for CENAGRAP to transfer thecompetences andfor process, ithasbeenvery important for the the initialprocesses to create thealliance.Inthis integration andintervention, inparticularduring development, whichhastaken uptherole of of key alliessuchasNGOs committed to rural An essential element hasbeenthepresence participants. to reality apublicpolicyagreed uponseveral investment andintegration, therefore to bring These alliancesare aninspiringframework for the efficiency ofthelimited resources available. dispersion ofinitiatives and toimprove the organizations. Thisisa contribution to reducethe and water boards, butalsofrom otherState potentials notonlyfrom themunicipalities that allows theintegration of resources and The public-communal alliancespropose amodel stakeholders capabilities from different Integration ofresources and
more efficient. systems, makingthemanagement ofthesector quality monitoring helpto prevent damages inthe programs, water sources protection and water such astraining, warehouse, emergency fund and prevention. that are Theservices provided, The State alsosaves resources through monitoring and GAD’s State, notyet visualized by thecommunity systems 2 350581.Thisresults insignificant savings for the contributed intheperiod2003-2010to USD of thesystems, it is estimated that theCENAGRAP to thisfigure the contribution forthe construction management ofwater was USD245791.Ifwe add community systems (until 2010) to therural This meansthat thecontribution ofthe73 3 367 the CENAGRAP interms ofAO&M in2010was USD annual contribution ofthe community systems of contribution to the construction works. The average of thesesystems istheAO&M, butalsothe management inrural areas. Themajorcontribution contribution ofthe community systems to water tois necessary doanew assessment ofthe From theexperience withtheCENAGRAP, it savings for thegovernment Communal systems result in .
.
71 yakukamay 72 yakukamay agreements feasible hasbeentheonedone by thecommunity, whichrelies strongly insocial ofanoperatorsalary isneeded.For that reason, theonlyform ofmanagement their operation, sincethemajorityofpositions are ad-honorem andonlythe decreases thecosts. Thecommunity systems donotrequire bureaucracy for From aneconomic point ofview, thecommunity workforce rationalizes and impacts that they generate underapublic-communal alliance in abilateral way to each ofthewater boards, itwould nothave theeffects and alliance, thisfigure issignificant. Ifthemunicipality wouldgive these resources users ofthecommunity systems, butitisnot.Inthecontext ofapublic-communal This figure can beseenasinsignificant, ifitisdivided bythe total of familiesand In 2010,themunicipalcontribution for the recurrent expenses was USD83214. operation oftheCENAGRAP. as well asthetechnical andadministrative personnel costs, whichare vital for the The contribution ofthemunicipalityisessential to cover the recurrent expenses, Resources increase inthepublic-communal alliances .
. the key for thesocialsustainability ofthedrinking character inallthephases oftheprocess. There is and where thecommunity becomes themain technical andsocialaspectshave anequilibrium focusing onthesocialconstruction inwhichthe the infrastructure. Thesystems have to bebuilt methodology, whichexceeds thefocus basedon essential to have aparticipative technical-social For theconstruction ofthe water systems, itis adapted to thelocal context. affirm that this process have tobeparticipatory and communal alliancetakes place.Itisobvious to multi-stakeholder initiative, inwhichthepublic- of thewater systems withthe construction ofa that integrates simultaneously theconstruction Therefore, itisimportant to establish astrategy target inrelation to theservice. which allows to monitor theprogress towards a planning andterritorial management processes, to common management processes, withinthe the systems notinanisolated way, butlinked that itisessential to realize the construction of competence isestablished. Theexperience shows because intheConstitution of2008this exclusive developed many water-related interventions, many smallandrural municipalitieshave not yet This statement ismaybe related to thefact that water sector inrural areas the public-communal allianceshave to bepromoted interventions, to be aware that in theshort term It isimportant that whenstarting water-related water systems andmulti-stakeholder structure Simultaneous development ofthe . .
sector, aswell asfor accountability. for thedialogue,planninganddevelopment ofthe ensures that themunicipalityhasaninterlocutor a higherlevel oforganization ofthe water boards role that eachsector has.Inthiscontext, promoting of thepublic-communal allianceisto recognize the element for socialempowerment. Anessential part representation andassociation, asanessential community organizations, as collective spaces for promote andensure thestrengthening ofthe and political opportunism.Itis relevant to relationships promote thepaternalism, favoring Municipality creates acounterparty relationship withthe associativity withthe community systems that alliances, isimportant to have ahighlevel of For theimplementation ofpublic-communal communal systems of association between the The need for ahigherlevel . Thebilateral JAAP’s-Municipality 73 yakukamay 74 yakukamay management ofthecommunity systems hasto be Further, therespect to theautonomy intheinternal structure created which respect therelative autonomy ofthenew the principlesofadministrative decentralization, A public-communal alliancedevelops better under The multi-stakeholder structure’s autonomy represented) similar, where theparticipants intheallianceare tothe services theJAAP’s (Board ofDirectors or orientation for theoperative teamthat provides ensure therequest to take strategic decisionsand a public-communal allianceisalsoessential to also for thewater boards andusers. Similarly, and accountability, notonlyofthoseinvolved but mechanisms for evaluation monitoring, planning, At thesametime,itisnecessary to set clear parties. the alliancecan replace thespecific roles ofthe group. Theroles shouldnotbeconfused; neither that empower theautonomy ofthepartiesand toIt isnecessary set clearroles withinthealliance and specialized structures organizations, instead tending to create technical politicization bythe cantonal authoritiesandsocial These two elements avoid andreduce theriskof very clear . . .
. long term publicpolicies policies intheCanton to guarantee integral and its integration into theglobal water andsanitation Canton’s water to policies,itisnecessary ensure If thepublic-communal allianceispartofthe generation ofpublicpolicies a fundamental factor inthe The multi-stakeholder structure, unity orwater company methodology for intervention at thelevel of the inventories, prioritization of interventions, and at theCanton level, suchastheMaster Plan, structure to thejoint construction of water policies It isimportant to integrate themulti-stakeholder systems whichcan beintegrated into thisstructure the construction and/or rehabilitation ofthe new policies isimportant; they work simultaneously for CENAGRAP) provides andthemunicipalwater a multi-stakeholder structure (suchasthe The integration between that theservices . . . citizens. lishing publicpoliciesbasedonthedemandsof is alsostrengthened andthere isroom for estab- between themunicipalitiesand communities of thesociety towards theCenter; therelationship ally decisions cannot betaken by oneentity unilater bility andlegitimacyoftheinterventions, sincethe to theCenter for increased services thetrust, credi- water management at therural level. Itsintegration participation ofthe water boards inthedrinking able. Oneofitsmajorachievements hasbeenthe CENAGRAP hasproven to befeasible andsustain After 9 years ofoperation, the experienceofthe sustainability Participation guarantees . Asaresult, there isastrong socialcommitment - - within thepublicadministration. personnel and/or specificunits for the water sector rural systems inaparticipatory manner, ensuring in particulartrying to provide theservices to the by considering theapplication oftheprinciples, in themunicipaladministration? Onehas to start not very likely to occurdueto thefew resources tures inmunicipalitieswhere decentralization is the size ofthemunicipality. How to create struc- It isalsoimportant to consider theadaptation to sustainability oftheinterventions. water boards, whichisafactor that increases the legal possibilities for developing allianceswiththe water companies. Itisimportant to work onthe kinds ofmodelspre-exist, suchasthemunicipal the local contexts because insomecases other scenarios involves theanalysis andadaptation to Replicating themodelofCENAGRAP inother scenario Adapt to theconditions ofeach 75 yakukamay 76 yakukamay or establish allianceswithotherentities to regularlyassess water quality. systems andmunicipalities regulations. Forthat purpose,themunicipalitiesshould have laboratories quality ofthewater suppliedby thecommunity systems, by common agreement between community The public-communal alliancesalsoinvolve establishing control andmonitoring mechanismsfor the The need for regulation andcontrol mechanisms water boards andlocal society upto date established inorder to keep themunicipalentities, information abouttheCenter’s activities have tobe Similarly, clearmechanismsfor communication and which cannot besolved by thelocal capacities. the process aswelland socialmonitoring, asguidancealong it isessential to have a team that provides technical During theorganization ofthe community systems, Importance ofatechnical team . Suchateam helps to solve problems . technical staff. and operative capacities ofthe members and training to strengthen thetechnical, administrative involvement ofleaderandmembers; andprovide of women; promote participation toachieve the clear gender strategies to promote theinclusion drinking water inrural areas, itisessential to set For strengthening thecommunity systems for Gender, participation andtraining 77 yakukamay