2.1 Water and Sanitation in Benin - Strategic Framework

MDG ACCELERATION FRAMEWORK Access to Safe Drinking Water and Basic Sanitation

May 2013

Design: José R. Mendes

Cover photo credits: UNDP Benin

TABLE OF CONTENTS

LIST OF ABBREVIATIONS AND ACRONYMS...... 9 FOREWORD...... 13 1. SUMMARY...... 15

1. Accelerating achievement of MDG 7 in Benin: context and relevance...... 15 2. Obstacles to equitable and sustainable access to drinking water and sanitation...... 15 3. Interventions likely to accelerate equitable and sustainable access to drinking water in the rural sector..17 4. Interventions likely to accelerate equitable and sustainable access to drinking water in the urban and peri-urban sectorurban and peri-urban sectors...... 18 5. Interventions likely to accelerate equitable and sustainable access to basic sanitation...... 19 6. Cross-cutting intervention affecting both the water and sanitation sectors...... 20

INTRODUCTION...... 22

I. OUTLINE OF THE OVERALL MDG SITUATION IN BENIN...... 26 1.1 PROGRESS AND CHALLENGES IN ACHIEVING THE MDGs...... 27 a. General poverty analysis...... 27 b. Brief outline of the situation regarding the other MDGs...... 28 c. Links between MDG 7C and the other MDGs...... 32 1.2 PROGRESS, DIFFICULTIES AND CHALLENGES IN ACHIEVING MDG 7C...... 34 a. Indicators...... 34 b. Equitable and sustainable access to drinking water...... 34 Major difficulties linked to access to drinking water...... 38 Challenges to overcome for access to drinking water...... 38 c. Access to basic sanitation...... 40 Major difficulties associated with basic sanitation...... 42 Challenges to overcome for access to basic sanitation...... 42 d. Probability of achieving MDG 7C, according to current trends...... 42 Access to drinking water...... 43 Access to basic sanitation...... 44

4 II. STRATEGIC INTERVENTIONS...... 46 2.1 WATER AND SANITATION IN BENIN - STRATEGIC FRAMEWORK...... 47 a. General context...... 47 b. Strategic framework relating to the supply of drinking water in the rural sector...... 48 c. Strategic framework relating to the supply of drinking water in the urban and peri-urban sectors...... 51 d. Strategic framework for hygiene and basic sanitation...... 53 National sanitation policy...... 53 National Health Development Plan (2009-2018) of the Ministry of Health...... 55 Promoting hygiene and basic sanitation...... 55 2.2 SELECTION OF INTERVENTIONS WITH THE POTENTIAL TO ACCELERATE PROGRESS TOWARDS MDG 7C...... 56 a. Priority interventions...... 56 b. Equitable and sustainable access to drinking water in the rural sector...... 56 c. Equitable and sustainable access to drinking water in the urban and peri-urban sectors...... 59 d. Equitable and sustainable access to basic sanitation...... 60 e. Links between chosen interventions and planning documents...... 62

III. ANALYSIS OF BOTTLENECKS...... 68 3.1 EQUITABLE AND SUSTAINABLE ACCESS TO DRINKING WATER IN THE RURAL SECTOR...... 69 3.2. EQUITABLE AND SUSTAINABLE ACCESS TO DRINKING WATER IN THE URBAN AND PERI-URBAN SECTORS...... 74 3.3 EQUITABLE AND SUSTAINABLE ACCESS TO BASIC SANITATION...... 76

IV. ACCELERATING PROGRESS TOWARDS MDG 7C PRIORITY SOLUTIONS...... 84 4.1 EQUITABLE AND SUSTAINABLE ACCESS TO DRINKING WATER IN THE RURAL SECTOR...... 85 4.2.EQUITABLE AND SUSTAINABLE ACCESS TO DRINKING WATER IN THE URBAN AND PERI-URBAN SECTORS...... 90 4.3 EQUITABLE AND SUSTAINABLE ACCESS TO BASIC SANITATION...... 93

V. ACCELERATING MDG 7C ACTION PLAN...... 106

VI. IMPLEMENTATION AND MONITORING PLAN...... 114

BIBLIOGRAPHY AND INFORMATION SOURCES...... 130

5 LIST OF FIGURES

FIGURE 1. EVOLUTION OF MONETARY POVERTY 2009-2011...... 27

FIGURE 2. MAP SHOWING TARGETING OF AREAS ABLE TO ACHIEVE MDG 7C ON ACCESS TO DRINKING WATER (PROPORTION OF THE POPULATION WITH ACCESS TO DRINKING WATER)...... 37

FIGURE 3. CURRENT EVOLUTION OF FUNDING FOR DRINKING WATER IN THE RURAL SECTOR...... 40

FIGURE 4. PERCENTAGE OF THE POPULATION USING FLUSHING TOILETS OR LATRINES, BY COMMUNE, IN 2010...... 41

FIGURE 5. PROPORTION OF THE POPULATION USING AN IMPROVED DRINKING WATER SOURCE IN BENIN...... 43

FIGURE 6. PROPORTION OF THE POPULATION USING AN IMPROVED SANITATION FACILITY, ACCORDING TO SECTOR...... 44

6 LIST OF TABLES

TABLE 1. EVALUATION OF MDG ACHIEVEMENT IN BENIN...... 30

TABLE 2. SITUATION OF GOALS AND TARGETS IN BENIN...... 31

TABLE 3. CORRELATION BETWEEN DRINKING WATER AND HYGIENE AND SANITATION, AND THE OTHER MDGS...... 33

TABLE 4. MDG SITUATION IN THE WATER AND SANITATION SECTOR...... 35

TABLE 5. LINKS BETWEEN PLANNING DOCUMENTS AND CHOSEN INTERVENTIONS...... 63

TABLE 6. SUMMARY OF PRIORITY INTERVENTIONS...... 66

TABLE 7. SUMMARY OF BOTTLENECKS SPECIFIC TO SELECTED INTERVENTIONS...... 80

TABLE 8. SUMMARY OF SOLUTIONS FOR ACCELERATING PROGRESS FOR ACHIEVING MDG 7C...... 98

TABLE 9. BENIN ACTION PLAN...... 108

TABLE 10. IMPLEMENTATION AND MONITORING PLAN...... 115

7 LIST OF PANELS

PANEL 1. BEST PRACTICE: GIVING RESPONSIBILITY TO COMMUNITIES...... 48

PANEL 2. BEST PRACTICE: LEASING FACILITIES...... 50

PANEL 3. BEST PRACTICE: CROSS-SUBSIDIZATION OF TARIFFS AT NATIONAL LEVEL...... 52

PANEL 4. BEST PRACTICE: PUBLIC-PRIVATE PARTNERSHIP FOR PROMOTING HYGIENE AND BASIC SANITATION...... 54

PANEL 5. BEST PRACTICE: TRANSFERRING SOCIAL INTERMEDIATION TO COMMUNES...... 57

8 LIST OF ABBREVIATIONS AND ACRONYMS

AEP Drinking water provision (Approvisionnement en eau potable) AEV Village water supply system (Adduction d’eau villageoise) AfDB African Development Bank AFD French Development Agency (Agence Française de Développement) AfricaSan Pan-African Conference on Sanitation and Hygiene AGETIP Public Benefit Developments Executive Agency (Agence d’Exécution d’Intérêt Public) AGETUR Urban Developments Executive Agency (Agence d’Exécution des Travaux Urbains) AH Hygiene assistant (Assistant d’hygiène) AI Institutiona support (Appui institutionnel) AIR Quick impact actions (Actions à impact rapide) ANCB National Association of Communes of Benin (Association Nationale des Communes du Bénin) ARV Antiretroviral ATPC Community-led total sanitation (Assainissement total piloté par la Communauté) AUE Association of water users (Association des usagers de l’eau) BDI Integrated databank (Banque de données intégrées) BF Standpipe (Borne fontaine) BN Benin or Banque Nationale BP Individual connection (Branchement particulier) CBRST Beninese Centre for Scientific and Technical Research (Centre Béninois de la Recherche Scientifique et Technique) CBWAS Central Bank of West African States CD Committee chair (Comité directeur) CDMP Departmental Committee on Public Contracts (Commission départementale des marchés publics) CDMT Medium term expenditure framework (Cadre de dépenses à moyen terme) CePEPE Centre for the Promotion and Supervision of Small and Medium-sized Enterprises (Centre de Promotion et d’Encadrement des Petites et Moyennes Entreprises) CFA Franc African Financial Community Franc CGPE Water point management committee (Comité de gestion des points d’eau) CIE Water Unit Initiative (Cellule Initiative Eau) CISE Digital and Monitoring and Evaluation Unit (Cellule Informatique et Suivi-Évaluation) CNE National Water Board (Conseil National de l’Eau)

9 CNRMP National Regulatory Committee on Public Contracts (Commission Nationale de Régulation des Marchés Publics) CREPA Regional Centre for Low-cost Drinking Water and Sanitation (Centre Régional pour l’Eau Potable et l’Assainissement à faible coût) DAEP Directorate for Drinking Water Supply (Direction de l’Approvisionnement en Eau Potable) DAF Directorate of Administration and Finance (Direction de l’Administration et des Finances) DANIDA Danish Agency for International Development DAO Tender documentation (Dossier d’appel d’offres) DDC Directorate of Capital Expenditure (Direction des Dépenses en Capital) DDMEE Departmental Directorate of Mines, Energy and Water (Direction Départementale des Mines, de l’Énergie et de l’Eau) DDS Departmental Directorate of Health (Direction Départementale de la Santé) DG-Eau General Directorate for Water (Direction Générale de l’Eau) DHAB Directorate for Hygiene and Basic Sanitation (Direction de l’Hygiène et de l’Assainissement de Base) DNSP National Directorate of Public Health (Direction Nationale de la Santé Publique) d-SIGFiP Departmental Integrated Public Finance Management System (Système Intégré de Gestion des Finances Publiques départemental) EDSB Demographic and health survey in Benin (Enquête démographique et de santé a Bénin) EMICOV Integrated Modular Survey on Household Living Conditions (Enquête modulaire intégrée sur les conditions de vie des ménages) EPE Equivalent water points (Équivalents points d’eau) EU European Union FADeC Support Funds for the Economic Development of Communes (Fonds d’Appui au Développement Économique des Communes) FDAL Ending open defecation (Fin de la défécation à l’air libre) FN-Eau National Water Fund (Fonds National de l’Eau) FPM Manually operated pump (Pompe à motricité humaine) FSD Social development funds (Fonds social de développement) GIRE Integrated water resource management (Gestion intégrée des ressources en eau GIZ German International Development Agency (Deutsche Gesellschaft für Internationale Zusammenarbeit) GSEA Water and sanitation sector group (Groupe sectoriel eau et assainissement) HAB Basic hygiene and sanitation (Hygiène et assainissement de base) HDI Human Development Index IDWSD International Drinking Water Supply and Sanitation Decade InS Social intermediation (Intermédiation sociale) INSAE Institute for Statistics and Economic Analysis (Institut National de la Statistique et de l’Analyse Économique) JICA Japan International Cooperation Agency MAF MDG Acceleration Framework

10 MDAEP Ministry of Development, Economic Analysis and Forecasting (Ministère du Développement, de l’Analyse Économique et de la Prospective) MDG Millennium Development Goals MDGLAAT Ministry of Decentralization, Local Governance, Territorial Administration and Management (Ministère de la Décentralisation, de la Gouvernance Locale, de l’Administration et de l’Aménagement du Territoire) MEF Ministry of the Economy and Finance (Ministère de l’Économie et des Finances) MERPMEDER Ministry of Energy, Oil and Mining Research, Water and Renewable Energies (Ministère de l’Energie, des Recherches Pétrolières et Minières, de l’Eau et des Energies Renouvelables) MOD Delegated project management (Maîtrise d’ouvrage déléguée) MPDEPP-CAG Ministry for Forecasting, Development, Evaluation of Public Policies and Coordination of Government Action (Ministère de la Prospective, du Développement, de l’Évaluation des Politiques Publiques et de la Coordination de l’Action Gouvernementale) MS Ministry of Health (Ministère de la Santé) NER Net School Enrolment Rate ODA Official Development Assistance OHADA Organization for the Harmonization of Business Law in Africa (Organisation pour l’Harmonisation en Afrique du Droit des Affaires) OPB Objective-based programme-budget OSD Strategic orientations and development (Orientations stratégiques de développement) PANGIRE GIRE national action plan (PANGIRE) PAP Priority actions programme (Programme d’Actions Prioritaires) PC-Eau Commune-based water management planning (Programmation communale de l’eau) PDE Water master plan (Plan Directeur Eau) PEA Autonomous water point (Poste d’eau autonome) PEPAR Project to support access to drinking water and environmental sanitation in the rural sector (Projet d’appui à l’accès à l’Eau Potable et à l’Assainissement environnemental en milieu Rural) PER Regional Investment Programme (Programme Économique Régional) PHA Hygiene and sanitation promotion (Promotion de l’Hygiène et de l’Assainissement) PHAC Commune-based hygiene and sanitation plan (Plan d’hygiène et d’assainissement communal) PIP Public Investment Programme PNDS National Health Development Plan (Plan National de Développement Sanitaire) UNDAF United Nations Development Assistance Framework UNDP United Nations Development Programme PPP Purchasing power parity

11 PPBS Planning, programming, budgeting and monitoring process (Planification- programmation-budgétisation-suivi) PPDE Company Forecast and Development Plan (Plan Prévisionnel de Développement de l’Entreprise) PPHA Hygiene and Sanitation Promotion Programme (Programme de Promotion de l’Hygiène et de l’Assainissement) S Eau Water Services (Services de l’Eau) SAGE Water Management and Administration Blueprint (Schéma d’Aménagement et de Gestion des Eaux) SBEE Beninese Electricity and Water Company (Société Béninoise d’Électricité et d’Eau) SCO Civil society organization SCRP Growth for Poverty Reduction Strategy (Stratégie de Croissance pour la Réduction de la Pauvreté) SDAGE Water Management and Administration Master Blueprint (Schéma Directeur d’Aménagement et de Gestion des Eaux) SHAB Basic hygiene and sanitation service (Service d’hygiène et d’assainissement de base) SIGFiP Integrated Public Finance Management System (Système Intégré de Gestion des Finances Publiques) SIS Social intermediation structure (Structure d’intermédiation sociale) SME Small and medium-sized enterprises SONEB National Water Company of Benin (Société Nationale des Eaux du Bénin) SPHP Public Hygiene Promotion Service (Service Promotion de l’Hygiène Publique) SQEAB Drinking Water Quality and Basic Sanitation Service (Service Qualité de l’Eau de Boisson et Assainissement de Base) SSE Monitoring and evaluation system (Système de suivi-évaluation) TFP Technical and financial partners WADB West African Development Bank WAEMU West African Economic and Monetary Union WB World Bank WSP Water and Sanitation Program

12 FOREWORD

In the light of the Millennium Declaration, the the following sectors: water and basic sanitation, Government of Benin is making every effort to primary education, and agriculture. implement public policies that will enable it to achieve the Millennium Development Goals This report includes an action plan for the (MDGs). This approach, using development drinking water and sanitation sector. It was policies, enables national efforts to focus on developed using a participatory process. clearly defined objectives. These, in turn, make Several consultations took place with sector progress possible. The MDG Acceleration stakeholders and with civil society. These were Framework (MAF) is therefore an appropriate conducted through the water and sanitation means of strengthening efforts to achieve those sector group (GSEA), under the general MDGs that are most under threat. coordination of the Ministry of Development, Economic Analysis and Forecasting (MDAEP). The United Nations System provided the MAF Technical support was provided by the UNDP tool following the review of progress in 2010, as Regional Centre at Dakar and its country office part of the 2000-10 report. This is another clear in Benin. Holding two major workshops was an sign of the continued commitment of the United important part of this consultative process. The Nations alongside our peoples. first was methodological. It took place from 2 to 5 November 2011 at Ouidah. This workshop MAF is a methodological approach. It provides facilitated integration of the MAF approach the Government of Benin and its partners with through identifying, ranking and prioritizing a systematic means of identifying, prioritizing interventions, bottlenecks and acceleration and removing obstacles to achieving the MDGs solutions. These outcomes were endorsed during where there is a risk that the targets will not the second workshop, which was technical. It be met. An MDG target is considered off-track took place at Cotonou from 6 to 7 December when the current rate of progress gives reason to 2011. believe that it will not be achieved. Acceleration increases the rate of progress in a way that will The action plan will thus facilitate more effective enable the target to be achieved by 2015. The identification of the bottlenecks preventing acceleration in question results from removing goals from being achieved. Actors involved the principal bottlenecks that are preventing include the State, technical and financial partners implementation of the key interventions. (TFPs), and local organizations. In addition, the plan identifies the high-impact interventions As such, a range of potential high-impact thatshould be the focus of efforts at national solutions has been proposed. These are intended level to accelerate the achievement of Target to remove the obstacles and, consequently, C of MDG 7. This action plan is consistent with accelerate MDG achievement. Benin is seizing existing strategies in the sector and with the this opportunity. With the national priorities in growth and poverty reduction strategy. mind, it has been decided to apply this tool in

13 In the light of the Paris Declaration and the document. We also wish to express our sincere Busan commitments, the technical and financial gratitude to all technical and financial partners partners of the ministries responsible for for their ongoing support. basic sanitation, water and development are committed to the decisions taken. Finally, the Government calls on all national and international actors to make an active The Government of Benin would like to take this commitment to the implementation of this opportunity to offer warmest congratulations document for the benefit of the people. to all those who were involved in creating this

The Minister of Health The Minister of Development, Economic Prof. Agr. Dorothée A. Kinde Gazard Analysis and Forecasting Marcel de Souza

The Minister of Energy, Oil and Mining Research, Water and the Development of Renewable Energies Norbert Kassa

14 1. SUMMARY

1. Accelerating achievement of MDG 7 in drinking water source rose from 50 percent in Benin: context and relevance 1990 to 63.6 percent in 2011. During the period 1990-2009, the proportion of the population using an improved sanitation facility rose from In September 2010, the United Nations 12 percent to 41.9 percent. conducted an overall evaluation of what remained to be done in order to achieve the It is in this context that, in October 2011, MDGs. In certain countries, the rate of progress the government of Benin approved MAF towards achieving the MDGs has been slow. In development. Its purpose is to improve progress August 2011, UNDP, in partnership with other towards achieving Target C (Halve the proportion United Nations agencies, produced the MDG of people without sustainable access to safe Acceleration Framework (MAF). Its purpose is to drinking water and basic sanitation) of MDG support the aforementioned countries in their 7 (Ensure environmental stability). Within the decisions regarding how to accelerate their rate MAF framework, there are numerous reasons for of progress. choosing water and sanitation. These include:

This new process offers governments and their • The cross-cutting nature of the impact of partners a systematic means of identifying and improving access to water and basic sanitation prioritizing: on all the other MDGs and, consequently, on poverty reduction • Bottlenecks preventing MDG achievement • The 2010 special evaluation report on MDG • Solutions aimed at removing those obstacles implementation showed that achieving the and, as such, accelerating MDG achievement MDGs is still possible in these two sectors. The government of Benin has also endorsed The process of applying MAF is led by national this decision through the Priority Action governments. It works in harmony with existing Programme (PAP) of 2011-2015. This document national mechanisms. stipulates that,»by the 2015 deadline, it is expected that the MDGs will be achieved in the Some development indicators in Benin have water and basic sanitation sectors [...] together improved. Nevertheless, if current trends with significant progress with regard to the continue, it will be difficult to achieve most other Millennium Development Goals.» 1 of the MDGs by 2015. This is especially true in the areas of access to drinking water and basic 2. Obstacles to equitable and sustainable sanitation. In effect, access to drinking water and access to drinking water and sanitation basic sanitation continues to be a major worry for a large part of the Beninese population. The The principal difficulties encountered in proportion of the population using an improved implementing the interventions are as follows:.

1. PAP 2011-215, p. 5, § 10.

15 Access to drinking water Access to basic sanitation

1 limited capacity for absorbing resources, implementing programmes/projects and monitoring and evaluation

2 lack of qualified human resources

3 limited consideration given to technologies insufficient resources allocated to the basic appropriate to difficult hydrogeological sanitation subsector areas in the activation of policies and strategies, as well as in the design and implementation of sector programmes

4 insufficient capacity to produce drinking water in cities with special status

The challenges to be faced are as follows:.

Access to drinking water Access to basic sanitation

1 reducing disparities in access in favour of reducing inequalities in access between the populations with low incomes, especially in rural and urban sector the rural sector

2 the problems of funding for the subsectors of drinking water provision and basic hygiene and sanitation in a context of diminishing resources

3 access to drinking water in small centres or agglomerations with high population density: these have been without access until now because transporting water requires large investments which that are scarcely financially viable for the National Water Company of Benin (SONEB, Société Nationale des Eaux du Bénin).

3. The MDG 7C MAF covers three chosen areas The identified and prioritized needed of intervention: interventions [I] necessary and bottlenecks [B] identified are summarized below. • Equitable and sustainable access to drinking water in the rural sector • Equitable and sustainable access to drinking water in the urban and peri-urban sectorurban and peri-urban sectors • Basic sanitation.

16 I.1 Increasing the number of water points, B.3 Poor functioning in the Integrated Public especially in departments with low levels of Finance Management System access, including: Zou at 57 per centpercent, Atlantique at 58.8 per centpercent and Donga Priority solutions: at 60.2 per centpercent. Special attention • Pprioritizing expenditure associated with will be given to reducing disparities within drinking water provision communes and in difficult hydrogeological areas, and to maintaining achievements in I.2 Accelerating implementation of integrated regions that already have decent provision of water resource management (GIRE) water points. Two bottlenecks have been identified: Three bottlenecks have been identified as barriers to implementing this intervention: B.4 Delays in establishing instruments for GIRE implementation: Water Management B.1 Limited consideration given to technologies and Administration Blueprint (SDAGE); Water appropriate to difficult hydrogeological areas Management and Administration Scheme; SAGE in the design and implementation of sector early-warning system for the National Action programmes. Plan (GIRE or PANGIRE)

Priority solutions: Priority solutions: • Conducting building work for water facilities • Developing and applying management through delegated project contracting (using instruments and mechanisms (DG-Eau existing executive agencies) SUCCESS software, commune management • Creating high-output boreholes in the software) and establishing the relevant bodies departments of Bourgou, Mono, Couffo, Atacora, Donga, Plateau, etc. B.5 Limited technical capacity of the principal • Iimproving the management framework for actors: central and decentralized SState, projects by establishing a water executive communes, private sector, civil society and civil agency to be responsible for both urban and society organizations (CSO), etc. rural building works • Creating facilities in areas with low levels of Priority solutions: access • Providing capacity strengthening for • Managing and rehabilitating facilities that are personnel in the sector with regard to GIRE. out of order I.3 Strengthening the capacities of communes B.2 Lack of coordination and leadership in as facilities owners, and of their key partners the sector giving rise to inequalities in the geographical distribution of funding Three bottlenecks are seriously hindering the implementation of this intervention: Priority solutions: • Ensuring respect for the commune-based B.6 Delay in transferring powers/resources to management of water facilities by other communes stakeholders: other ministerial departments, international and national NGOs, etc.

17 Removing this bottleneck will contribute to B.9 Delays in the procurement process leading to accelerating the rate at which facilities are limited use of credit created and, as such, to improving access. Priority solutions: Priority solutions: • Creating a special unit equipped with a • Promoting intercommunal cooperation for point person in the Directorate of Capital the sharing of means and responsibilities Expenditure (DDC) (application decrees of the law on • Authorizing the alignment of SONEB with the intercommunal relations and decentralized Uniform Acts of OHADA (Organization for the cooperation) Harmonization of Business Law in Africa) for a swifter procurement process B.7 Limited technical capacity of communes to • Extending the distribution networks and assume their responsibilities as facilities owners, increasing the capacity of water production and to implement sector reforms at local level, equipment. including monitoring of social intermediation structures, and monitoring of infrastructure I.5 Improving access to water for creation disadvantaged sections of the urban and peri- urban populations with low-cost connections Priority solutions: • Iimplementing a programme to strengthen This intervention is often hampered by two the technical and financial capacities of the bottlenecks: principal actors, i.e., the State and communes, in support of decentralization in the water B.10 Lack of flexibility in paying connection costs sector Priority solutions: B.8 Lack of qualified personnel for managing • Offering greater flexibility in payment complex facilities modalities for connection costs by creating a system of instalments to benefit households Priority solutions: categorized as disadvantaged • Support for technical and financial strengthening of communes and various B.11 Lack of an overall policy on regular actors. provision to peripheral areas and peri-urban agglomerations 4. Interventions likely to accelerate equitable and sustainable access to drinking water in Priority solutions: the urban and peri-urban sectorurban and • Putting a specific global policy into operation peri-urban sectors in those areas by strengthening synergies between DG-Eau and SONEB. I.4 Strengthening the drinking water supply system in the urban and peri-urban sectorurban I.6 Safeguarding electricity during the and peri-urban sectors production and distribution of water

This intervention is often hindered by the budgeting and finance bottleneck.

18 This intervention will only be effective only if the Among the bottlenecks to effective following priority bottlenecks are removed or implementation identified for this intervention, mitigated:. the following have been prioritized:

B.12 Lack of policy and planning for the B.15 Risk of a lack of visibility for hygiene and safeguarding of electricity during the production sanitation activities as a result of the reforms and distribution of water underway in the Ministry of Health

Priority solutions: Priority solutions: • Creating and implementing a strategic plan for • Continuing awareness-raising activities safeguarding electricity regarding hygiene and sanitation, in tandem • Iincorporating 3 billion CFA francs into the with monitoring implementation of the reform 2013 Public Investment Programme (PIP) for the acquisition of ten 10 electricity generators B.16 Failure to exercise prerogatives on the part within the framework of safeguarding of communes in the implementation of PHA electricity: functioning and maintenance costs will be covered by SONEB Priority solutions: • Revising the document relating to PHA B.13 Lack of availability of appropriate implementation, and creating a national infrastructures and equipment: solar energy strategy in order for the role of the communes systems, turbines, etc. to be effective • Copying and distributing those two documents Priority solutions: • Ppromoting alternative energy installations B.17 Limited budget allocations and complicated procedures for releasing credit to Hygiene B.14 Lack of internal funding to cover costs and Basic Sanitation Services and transferring associated with safeguarding resources to communes

Priority solutions: Priority solutions: • Giving financial support to SONEB to balance • Strengthening advocacy with the Ministry of its accounts Health, Ministry of the Economy and Finance, • Using matching funds from the National Water Programming and Planning Directorates and Fund (FN-Eau), in development: implementing technical and financial partners TFPs for an a flat- rate contribution for developing drinking increase in the subsector budget water provision. • Strengthening the mechanism for implementing the Support Funds for the 5. Interventions likely to accelerate equitable Economic Development of Communes (FADeC) and sustainable access to basic sanitation • Revising procedures and training agents in the new procedures I.7 Boosting the approach of promoting hygiene and sanitation (PHA) in the rural B.18 Limited capacity of the private sector, sector, with priority given to the departments and of civil society and NGOs to participate in most in need: Atacora, Donga, Collines, implementing PHA Couffo, Borgou and Mono

19 Priority solutions: I.9 Strengthening the system of information • Further training for actors already trained and monitoring and evaluation in PHA and extending training to actors in areas that have not benefited from the PHA B.21 Limited technical capacities with regard to approach monitoring and evaluation plans on the part of the main actors: central and decentralized State, I.8 Creating and implementing commune- communes, private sector, civil society and civil based hygiene and sanitation plans society organizations

Among the bottlenecks to successful Priority solutions: implementation identified for this intervention, • Prioritizing resources allocated to monitoring the following two have been prioritized: and evaluation of interventions

B.19 Limited capacity of communes to create B.22 Non-application of the operational effective strategies for resource mobilization able provisions of the relevant document on the to support implementation of the commune- monitoring and evaluation system level hygiene and sanitation plans Priority solutions: Priority solutions: • Scheduling mini-reviews at departmental level • Training commune-based actors in advocacy, in among decentralized services, civic authorities marketing to the State and the TFPs, in funding and other sector stakeholders mechanisms, and in the twinning process B.23 Lack of a gateway for exchanging sector B.20 Limited capacity for facilities ownership on statistics with those of the National Institute for the part of communes Statistics and Economic Analysis (INSAE)

Priority solutions: Priority solutions: • Publicizing and disseminating tools, including • Implementing a consultation framework for objective-based programme budgets, INSAE-Water and Sanitation guides to presenting accounts, and guides to commune-based facilities ownership, as well as supporting implementation of the requirement to present accounts in all the communes • Extending and expanding the training process in various tools for commune-based actors • Implementing the plan created in 2011 to transfer powers to communes

6. Cross-cutting intervention affecting both the water and sanitation sectors

20 21 INTRODUCTION

Photo: Giacomo Pirozzi - UNDP Benin Benin is a country of low human development. Its • Improving hygiene practices through human development index (HDI) was estimated widespread use of the process of hygiene and at 0.427 in 2011. 2 However, a rising trend has been sanitation promotion apparent since 1980 when the HDI was estimated It is in this context that Benin recently undertook at 0.252. This encouraging HDI evolution is to create an MDG Acceleration Framework reflected in improvements to the general level (MAF) for the purpose of improving progress of education and health. It is especially apparent towards achieving MDG 7: water and sanitation. in the substantial increase in life expectancy This commitment was demonstrated when the over the last 10years. Nevertheless, while some Government of Benin endorsed the process development indicators have improved since the during the Council of Ministers on 5 October 2011. beginning of the 1990s, progress towards the Millennium Development Goals remains slow. There were numerous reasons for choosing water and sanitation within the framework of the During the 1980s, the annual economic growth MAF process. These include: rate was, on average, 2 percent. In the 1990s, • The effective cross-cutting nature of the it saw significant progress with an annual rate impact that improving access to water and of 5 percent. However, it should be noted that, basic sanitation has on all the other MDGs and, since 2003, the economy of Benin has been consequently, on poverty reduction experiencing a period of deceleration. The • The 2010 special report assessing MDG average growth rate is now 3 percent. This is implementation showed that it is still possible below the annual population growth rate of to achieve the MDGs in these two sectors: 3.25 percent. According to the results of the it requires onlya demonstration of political Integrated Modular Survey on Household Living willingness in dealing with the bottlenecks Conditions (EMICOV),3 poverty remains a matter preventingsmooth implementation of of serious concern. Indeed, 36.2 percent of interventions. Beninese people currently live below the poverty threshold. This compares with 35.2 percent in The Government of Benin has also endorsed this 2009. It will be difficult to achieve the majority of decision through its Priority Action Programme the MDGs by the 2015 deadline if current trends (PAP) 2011-2015, part of its Growth for Poverty persist. This is especially true in the areas of Reduction Strategy (SCRP). That document education, health, access to drinking water and states, «[I]t is expected that, by the 2015 deadline, basic sanitation, and poverty reduction. the MDGs will be achieved in the water and basic sanitation sectors [...] together with significant In terms of drinking water and sanitation, there progress with regard to the other Millennium are numerous challenges to be considered Development Goals». 4 including: • Limited capacity for absorbing resources, implementing programmes/projects and monitoring and evaluation • Widespread implementation of commune- based programming

2. UNDP, National Human Development Report (HDR), 2011 3. EMICOV, 2011. 4. PAP 2011-215, p. 5, § 10.

23 This document describes the main analytical phases that, in line with MAF methodology, contributed to the creation of an agreed action plan. It also sets out the priorities that will enable the acceleration ofprogress towards achieving MDG 7C.It is divided into five chapters.

The first chapter describes the MDG situation in Benin with a general overview. It focuses on progress achieved and difficulties encountered in achieving MDG 7C, as well as the main challenges associated with accelerating progress towards MDG 7C. The second chapter concerns interventions organized within a strategic framework relating to drinking water and basic sanitation in Benin. It also covers the choice of interventions with the potential to accelerate progress towards MDG 7C.

The third chapter summarizes the systematic analysis of bottlenecks thatneed to be removed, or mitigated, for the effective implementation of the chosen priority interventions. The fourth chapter suggests solutions based on their impact on MDG 7C acceleration and on their feasibility. Finally, the last chapter concerns the action plan. It includes the conditions necessary for conducting the priority interventions; the bottlenecks affecting those interventions; suggested solutions; and the parties responsible for implementation. This action plan is accompanied by an implementation plan and a monitoring and evaluation mechanism.

24 25 I. OUTLINE OF THE OVERALL MDG SITUATION IN BENIN

Photo: Elsie Assogba - UNDP Benin The outline of the MDG situation is the result of in 2011. This refers to the percentage of the a comparative analysis of the special evaluation population that cannot meet its food and report of 2000 - 2010 on MDG implementation non-food needs as represented by the poverty in Benin, and the progress report on the Growth threshold. As such, there has been a rise of and Poverty Reduction Strategy (SCRP) 2010. This almost one percentage point. Nevertheless, chapter analyses the progress and challenges in the depth of poverty (P1) is in decline. This achieving the MDGs in general and those relating measures the average deficit in consumption to MDG 7C in particular. with reference to the poverty threshold. It fell from 0.104 in 2009 to 0.098 in 2011. This same diminishing trend is also apparent in poverty severity (P2), which measures inequalities 1.1 PROGRESS AND among the poor. It fell from 0.045 in 2009 to CHALLENGES IN 0.039 in 2011. These changes in the depth and severity of poverty suggest a reduction in ACHIEVING THE MDGs inequality between 2009 and 2011.

A. GENERAL POVERTY ANALYSIS

Poverty is a multi-faceted phenomenon. According to the recent results of the 2011 EMICoV survey, the incidence of poverty (P0) rose from 35.2 percent in 2009 to 36.2 percent

FIGURE 1: EVOLUTION OF MONETARY POVERTY 2009-2011

BENIN 36,2 35,2

39,7 Rural 2011 38,4 2009 Urbain 31,4 29,8

0 10 20 30 40 50

Source:Ministry of the Economy and Finance (MEF), Rapport d’avancement de la Stratégie de Croissance pour la Réduction de la Pauvreté (SRCP), 2012. [Progress report on the Growth for Poverty Reduction Strategy]

27 In Benin, monetary poverty is at its most experiencing food insecurity is 12 percent, i.e., prevalent in the rural sector. In effect, while the 972,000 people nationally. Around 1,048,000 aggravation of poverty is more apparent in the individuals are considered at risk of food urban sector, it remains predominant in the insecurity, i.e., 13.2 percent of the population. rural sector, where it affects some 40 percent of The number of people experiencing food people. Between 2009 and 2011, 11 out of the 12 insecurity in the rural sector is estimated at departments that Benin comprises experienced 710,000. This is more than twice the figure for an aggravation of monetary poverty. In the the cities: 262,000 people. same period, 45 out of 77 communes recorded an incidence of monetary poverty above the B. BRIEF OUTLINE OF THE SITUATION national average, according to the MEF.5 This REGARDING THE OTHER MDGs situation is largely a result of limited economic growth, low agricultural production, uneven With regard to the education sector, the Net distribution of wealth and a lack of economic School Enrolment Rate (NER) of children diversification. It also arises from the difficulty aged between 6 and 11 has shown an overall in accessing energy and productive resources, improvement in comparison with the period especially in the rural sector. 2006-2007. At national level, the NER has risen from 61.1 percent in 2006 to 76.2 percent in Conversely, the situation in terms of non- 2007. The latter figure represents 78.3 percent monetary poverty is better than that described of boys and 73.9 percent of girls. The target is above. Non-monetary poverty is expressed by 100 percent by 2015. This trend is acceptable at means of a composite standard of living index national level. However, it masks some disparities thatindicates the scale of suffering in terms of between communes and between districts. general comfort in housing, ownership of durable goods, hygiene and access to social services. In Since 2005, there has been significant progress 2011, 30.2 percent of the population of Benin regarding completion of primary education. were affected by non-monetary poverty. The Despite this, in 2008, only 61 out of every 100 figure for 2009 was 30.8 percent. The rural sector children reached CM2 (final year of primary is more affected by non-monetary poverty, as school). This represents a fall in the rate of it is by monetary poverty. Nevertheless, rural completion in comparison with 2007, when the households experienced an improvement in rate reached 66 percent, against an expected their conditions in 2011 in comparison with 71 percent. These data show the poor retention 2009: the incidence fell from 35.2 percent to rate within the system and how much remains 32.9 percent. The opposite occurred with urban to be done in order to achieve universal primary households, which experienced an aggravation education in line with the MDGs. of poverty. An analysis of the impact of various actions In terms of food security, according to the 2008 and measures implemented has shown that Global Analysis of Vulnerability, Food Security the level of literacy among people aged 15 and Nutrition report (AGVSAN, Analyse Globale and over remains high. However, there are de la Vulnérabilité, de la SécuritéAlimentaire et significant gender disparities and disparities de la Nutrition), the proportion of households between departments. In effect, the literacy rate

5. MEF, Rapport d’avancement de la Stratégie de Croissance pour la Réduction de la Pauvreté (SRCP), 2012. [Progress report on the Growth for Poverty Reduction Strategy]

28 was around 30 percent in 1990. By 2007, it had The Gender Empowerment Measure has reached 60.5 percent: an average rate of progress been increasing for a few years, although the of two percentage points per year. However, it trend is weak: from 0.454 in 2006 to 0.634 in remains modest in comparison with the expected 2011. Women are in a minority in salaried jobs rate of development for the purpose of the and hold very few posts in decision-making MDGs. Furthermore, the apparent developments bodies. At parliamentary level, the rate of are not positive for women. The literacy rate for women’s representation was 8.4 percent in women aged 15 to 24 is 50 percent, compared 2011: a decrease compared to the 2006 level. In with 72.4 percent for men. government, the proportion of women ministers is around 30.7 percent. On the question of gender, the ratio of girls to boys, especially at primary school level, is notable. In health matters, analysis of the evolution of the In 2007, there were around 8 girls to every 10 boys. infant/child mortality ratio reveals a downward By comparison, in 1994 the ratio was a mere 5 girls trend. In effect, the ratio was 195 per 1000 in to every 10 boys. This ratio has evolved in line with 1990. It fell to 125 per thousand in 2006, and to the expectations of the MDGs. 115 per 1000 in 2011. The trend of this indicator is therefore fairly consistent with the parameters There is now parity at nursery school level and, to of the relevant MDG: 2 percent annual reduction some extent, at primary level. Nevertheless, it must between 1990 and 1996, and 4.37 percent be said that the gap widens, to the disadvantage annual reduction between 2001 and 2006. If this of girls, at secondary and higher level. latter rate of evolution continues, the target will be achieved by 2018. With regard to the infant In terms of the involvement of women in mortality ratio, it fell at a rate of 5 percent each managing public affairs at local level, the situation year between 2001 and 2006. This gives reason is not very inspiring, especially bearing in mind to suppose that the target of 33 deaths per 1000 the two local elections of 2003 and 2008. These live births will be achieved by 2015, if this rate is took place in the context of the decentralization maintained. process underway since 2003. There was an increase of 0.43 percent in the representation According to the Demographic and Health of women between the two rounds of local and Survey in Benin (EDSB),6 maternal mortality municipal elections. The proportion of women remains high: estimated at 397 maternal deaths elected as local representatives was 4.18 percent per 100,000 newborns. However it has seen a in 2008, with 60 women representatives out 20 percent reduction since 1996 when it was of a total of 1,435 commune councillors. This estimated at 498 per 100,000 live births.7 At the compares with 3.75 percent in 2003, with 45 current annual reduction rate of 2 percent, MDG women representatives out of a total 1,200 5A will not be achieved until 2040. Even if the communal councillors. The situation varies from annual rate of reduction could be doubled, MDG one region to another. 5A would not be achieved until 2020, five years after the 2015 deadline. Government initiatives in support of the health sector, especially free provision of caesarean sections, could contribute to achieving this target.

6. Demographic and Health Survey in Benin 2006 (EDSB III) 7. Demographic and Health Survey in Benin 1996 (EDSB I)

29 During the period 2007 to 2011, the prevalence in respect of the MDGs: 41 percent in 2009. The rate of HIV infection stabilized at around MDG target is for 75 percent of the Beninese 1.7 percent. In terms of access to treatment, population to have access to an appropriate between 2009 and 2011 there was a notable gap sewage disposal facility by 2015. between the number of people living with HIV/ AIDS for whom antiretroviral (ARV) treatment On the question of official development was envisaged and those who were actually assistance (ODA), while the nominal aid figure receiving treatment. increased for Benin during the 1990s, from the 2000s onwards the volume of this assistance has Regarding the environment, the proportion of decreased. In terms of GDP, the proportion of protected lands is increasing: 23.9 percent in 2006 ODA hovers around 20 percent. compared with 11.4 percent in 2002. However, this increase is still limited. Furthermore, carbon The principal constraint affecting global dioxide pollution is increasing. The volume of partnership is the mobilization of ODA in order carbon dioxide emission per inhabitant rose to fund the shortfall in MDG achievement. This from 0.2 to 0.3 thousand tonnes between 2000 is estimated at 12 percent of GDP, i.e., funding and 2003. of an average of 280.4 billion CFA francs each year over the period of 2007-2015. This currently In Benin, access to drinking water continues to be constitutes a major challenge, given that the flow a major worry for a large part of the population. of external resources, including ODA, is one of the In effect, at national level, the proportion of the transmission channels of the global financial and population using an improved drinking water economic crisis to sub-Saharan African countries. source rose from 50 percent in 1990 to 57.8 In conclusion, the global analysis of poverty and percent in 2001, and to 63.6 percent in 2011. MDG achievement presented in this chapter is Meanwhile, the proportion of the population summarized in Table 1 below. using an improved sanitary facility remains low

TABLE 1. Evaluation of MDG achievement in Benin

Goals Situation in 2002 Situation in 2010

1. Eradicate extreme poverty and hunger Unlikely Unlikely 2. Achieve universal primary education Unlikely Likely 3. Promote gender equality and empower women Unlikely Unlikely 4. Reduce child mortality Unlikely Likely 5. Improve maternal health Unlikely Unlikely 6. Combat HIV/AIDS, malaria and other diseases Unlikely Likely 7. Ensure environmental sustainability Unlikely Unlikely 8. Develop a global partnership for development Unlikely Unlikely Source: Consultants’ interpretation of the 2010 evaluation report on MDG implementation

The improbability of achieving all the MDGs by planning documents were generally much less 2015 is related to the fact that the development ambitious than those of the MDGs. goals of previously implemented strategy and

30 TABLE 2. Situation of goals and targets in Benin

MDG Indicators for monitoring Goals and targets 1990 2006 2010 target progress in Benin figure for 2015 1. Eradicate extremepovertyandhunger

1A: Halve, between 1990 and Proportion of population below $1 (PPP) 53,3 % 52,8 % 51,6 % 26,7 % 2015, the proportion of people per day whose income is less than one dollar a day Incidence of poverty 43,5 % 37,2 % 35,2 % 25 %

1C: Halve, between 1990 and Prevalence of underweight children under- 38,8 % 18 % 19,4 % 2015, the proportion of people five years of age who suffer from hunger

2. Achieve universal primary education

2.A: Ensure that, by 2015, NER 38,3 61,1 100 children everywhere, boys and girls alike, will be able Rate of completion of primary schooling 17,1 56,5 100 to complete a full course of primary schooling Literacy rate of 15-24 year-olds, women 47 100 and men

3. Promote gender equality and empowerwomen

3A: Eliminate gender disparity Ratios of girls to boys in primary, secondary 36,9 100 in primary and secondary and tertiary education education, preferably by 2005, and in all levels of education no Proportion of seats held by women in 9,3 50 later than 2015 national parliament

4. Reducechild mortality

4A: Reduce by twothirds, Under-five mortality rate 195 125 65 between 1990 and 2015, the under-five mortality rate Infant mortality rate 105 75 35

5. Improve maternal health

5A: Reduce by a quarter, Maternal mortality ratio 473 397 0 between 1990 and 2015, the maternal mortality ratio

5B: Achieve, by 2015, universal Contraceptive prevalence rate 25 42 4 100 access to reproductive health

6. Combat HIV/AIDS, malaria and other diseases

6A: Have halted by 2015 and Prevalence rate of HIV infection 0,6 1 begun to reverse the spread of HIV/AIDS

31 MDG Indicators for monitoring Goals and targets 1990 2006 2010 target progress in Benin figure for 2015 6. Combat HIV/AIDS, malaria and other diseases

6B: Achieve, by 2010, universal Proportion of population with advanced 2 50 access to treatment for HIV/ HIV infection with access to antiretroviral AIDS for all those who need it drugs

6C: Have halted by 2015 and Incidence and death rates associated with 150 138,6 120 begun to reverse the incidence malaria of malaria and other major diseases

7. Ensureenvironmental sustainability

7A: Integrate the principles Proportion of land area covered by forest 30 21,3 30 of sustainable development into country policies and programmes and reverse the loss of environmental resources

7B: Reduce biodiversity loss, CO2 emissions, total, per capita and per $1 0,1341 0,2909 0,01341 achieving, by 2010, a significant GDP (PPP) reduction in the rate of loss

7C: Halve, by 2015, the Proportion of population using an 50 % 63,6 % 100 % proportion of people without improved drinking water source sustainable access to safe drinking water and basic Proportion of population using an 12 % 37,2 % 75 % sanitation improved sanitation facility

7. Assurer un environnement humain durable

8A: Develop further an open, Net ODA, total and to the least developed 18,1 20 rule-based, predictable, non- countries, as percentage of OECD/DAC discriminatory trading and donors’ gross national income financial system

Source:Ministry of Forecasting, Development and Evaluation of Public Policies, and of Coordinating Government Action (MPDEPP- CAG), 2010 special evaluation report on MDG implementation in Benin.

Following a multi-criteria analysis, and taking C. LINKS BETWEEN MDG 7C AND THE OTHER into account the absolutely essential nature of MDGS drinking water and sanitation, the Government of Benin has chosen to guarantee that target With some four years to go to the deadline, Benin C of MDG 7 will be achieved as a matter of will have to accelerate its efforts, with the support priority. This raises two basic questions. First, of its development partners, to achieve MDG what progress has there been in achieving MDG 7C. «Halve, by 2015, the proportion of people 7C? And second, what challenges remain to be without sustainable access to safe drinking water overcome? and basic sanitation»

32 It is clear that, without the acceleration important, given the obvious impact that water framework, Benin will not come close to and basic sanitation have on the other MDGs, as achieving MDG 7C. Acceleration is even more the table below shows.

TABLEAU 3. Correlation between drinking water and hygiene and sanitation, and the other MDGs MDG Links with water, sanitation and hygiene

1. Eradicate extre- • The security of household water supplies is essential for the eradication of poverty. This is mepovertyand- especially true for populations that depend on subsistence farming. It is also the case in a hunger growing number of countries with limited water resources. • Drinking water, decent sanitation and appropriate behaviour in terms of hygiene are at the heart of the fight against chronic diarrhoea and debilitating diseases that reduce productivity. • A water supply close to households saves time and energy that would otherwise be spent in fetching water over long distances. It also contributes to improving nutrition and productivity. • An adequate water supply is essential for small-scale market gardening, livestock rearing, micro-businesses, etc. It is an important factor for household food security and for family incomes, especially for poor families and women.

2. Achieve universal • Having individual sanitary facilities that are clean and secure, and access to water points for primary education washing, encourages school enrolment and reduces drop-out rates. This is especially true for girls who have reached the age of menstruation. • Available drinking water and decent sanitary facilities are positive factors in attracting girls and women teachers to school. They increase the enrolment rate and contribute to successful completion of schooling and the quality of the general learning environment.

3. Promote gender • The health of women and girls, their personal lives and safety are greatly improved when they equality and have access to private sanitary facilitiesin the community and in schools. empowerwomen • Women and girls benefit directly when water services are available close to home. It reduces the burden of having to travel long distances to fetch water. • Household food security is enhanced when there is an adequate, and convenient, water supply available to women for small-scale food production. • Involving women in decision-making regarding equipment for water and sanitation, and increasing their capacity for using and maintaining that equipment, gives women new skills for dealing with other development needs, strategic and practical needs especially.

4. Reducechild • Improved hygiene, decent sanitation and drinking water prevent the principal cause of mortality diarrhoea. It is a condition that kills between 1.6 and 2.5 million children aged under five every year: more than any other illness. • Improving conditions for hygiene, sanitation and water quality is the only means of reducing mortality linked to chronic diarrhoea in young children. • Water for household food security improves the nutrition state of children by enabling them to benefit from the micronutrients and proteins supplied by garden vegetables and domestic livestock.

5. Improve maternal • Where water is available, good hygiene and sanitation are essential for hygiene and a safe health environment. • Hygiene education, skills and appropriate practices, especially hand washing, are essential for hygiene relating to the delivery of babies.

33 MDG Links with water, sanitation and hygiene

6. Combat HIV/ • Easy and convenient access to drinking water, appropriate sanitary facilities and good hygiene AIDS,malaria and habits are essential in the fight against chronic diarrhoea and opportunistic infections in other diseases people living with HIV/AIDS. They also reduce the risk of spreading diarrhoea-related diseases in the environment. • Clean water and good hygiene practices in preparing food for newborns are extremely important when HIV-positive mothers decide to stop exclusive maternal breastfeeding.

7. Ensureenviron- • Appropriate management of the disposal of sewage and other household waste is the key to a mental sustaina- sustainable environment. bility • Equitable management of water resources is essential for a sustainable environment.

8. Develop a global • An extended partnership might include civil society, international institutions and the public partnership for and private sectors. Such partnerships contribute greatly to improving service provision, skills development and appropriate behaviour, as well as local and sustainable management of water services and sanitation. At the same time, equity is guaranteed. • A holistic approach through partnerships allows a greater potential for synergies and sustainability in the development of the sector.

Source: West-African Development Bank (WADB), Stratégied’intervention de la Banqueouest-africaine de développementdans les secteurs de l’eau potable et de l’assainissement des pays de l’UnionÉconomique et MonétaireOuestAfricaine[West-African Development Bank intervention strategy in the drinking water and sanitation sectors in the countries of the West African Economic and Monetary Union: WAEMU] 2010

1.2 PROGRESS, B. EQUITABLE AND SUSTAINABLE ACCESS TO DRINKING WATER DIFFICULTIES AND The situation at national level is continually CHALLENGES IN evolving. As such, the proportion of the ACHIEVING MDG 7C population using an improved water source rose from 50 percent in 1990 to 75.7 percent in 2010, A. INDICATORS according to EMICOV.9

Progress achieved in pursuit of MDG 7C, since According to this survey, 80 percent of women 1990, has been measured using the following have access to an improved drinking water indicators: (a) the proportion of the population source compared with 77.1 percent of men. using an improved drinking water source and (b) This trend is much more marked in the rural the proportion of the population using improved sector than in the urban sector. On this basis, sanitation facilities. it can be said that, where water supplies are not easily available, it is women and girls who routinely take responsibility for collecting and transporting water.

9. MDAEP-INSAE, EnquêteModulaireIntégréesur les Conditions de Vie des Ménages (EMICOV) [Integrated Modular Survey on Household Living Conditions].Follow-up survey 2010, 2011.

34 TABLE 4. MDG situation in the water and sanitation sector

MDG Indicators Point of Situation Target departure in 2010 2015 7. Ensure Water environmental Proportion of population using an improved drinking 57,8 % – 100 % (2001) sustainability water source in the rural sector

Proportion of population using an improved drinking 75,5 % – 100 % (2006) water source in the urban sector

35,0 % Coverage of drinking water provision in rural sector (2002) 57,2 % 67,3 %

47,0 % Coverage of drinking water provision in urban sector (2002) 58,5 % 75,0 %

20 % Proportion of water points out of service in rural sector (2002) 9,6 % 7 %

Additional population served in rural sector (inhabitants) 119 750 437 250 1 364 500 (2002)

479 Number of new equivalent water points constructed (2002) 1715 4 912

172 Number of equivalent water points rehabilitated (2002) 34 546

Sanitation

32,0 % Proportion of population using an improved sanitation (2002) 44,0 % 69,0 % facility 8

32,3 % Rate of coverage of sewage disposal facilities for (2002) 44,4 % 69,1 % households

59,5 % Rate of coverage of sewage disposal facilities in schools (2006) 77,0 % 100,0 %

Source: Republic of Benin, SCRP performance monitoring framework, 2011-2015

8. For the rates of usage, we took whole numbers just under the coverage rates while waiting for confirmation of these figures from the EMICOV surveys underway.

35 While this progress is significant, it falls short have rates of access below 70 percent. They of the MDG expectations (90 percent by 2009). should be targeted by the chosen interventions It is very unlikely that the target of 100 percent set out in Chapter 2 of this report, using the MAF comprehensive coverage can be achieved by approach to correct the disparities as effectively 2015 if current trends continue. as possible.

This national trend is comparable to the trends apparent in the rural and urban sectors, with marked disparities between and within departments.

For example: in the rural sector, the departments of Zou, Atlantique and Donga have levels of access that are significantly below the national average of 69.3 percent in the rural sector. These are, respectively: 57.0percent, 58.8percent and 60.2 percent.

Similarly, the urban sector is not immune tothis phenomenon. The urban parts of the departments of Alibori, Donga and Atacora have levels of access of, respectively: 56.5 percent, 69.4 percent and 69.5 percent. These are far below the urban national average of 85.4 percent.

Here, it should be said that the same realities are reflected in the rates of access to drinking water in communes. This should be taken into account in order to achieve greater equity. Unfortunately, the 2010 EMICOV data are disaggregated at commune level. As such, they do not provide details on the situation at district level. This would have made it possible to identify areas more effectively for targeting through interventions.

Figure 12, below, is a map showing access to drinking water. Without differentiating between sectors, it illustrates the scale of the disparities. Green indicates the communes that have a rate of access to drinking water of 70 percent or above, bearing in mind that the national average is 75.7 percent. The communes marked in yellow

36 MAP SHOWING TARGETING OF AREAS ABLE TO ACHIEVE MDG 7C ON ACCESS FIGURE 2 : TO DRINKING WATER (PROPORTION OF THE POPULATION WITH ACCESS TO DRINKING WATER)

37 This progress has been possible thanks especially • Quantitative and qualitative shortage of to projects such as the Initiative Eau (Water human resources Initiative) Programme in semi-urban centres; the • Limited consideration given to technologies Multi-year Support Programme for the Water appropriate to difficult hydrogeological areas and Sanitation Sector (PPEA); the Development in the activation of policies and strategies, as Support Programme for the Water and Sanitation well as during the design and implementation Sector; the various development support of sector programmes programmes in the water and sanitation sector in • Insufficient capacity to produce drinking water rural areas; and the Village Hydraulics Programme in cities with special status of the AgenceFrançaise de Développement (French Development Agency). Difficulties affecting progress towards the MDG target concerning access to drinking water are The capacity of DG-Eau (General Directorate for analysed in greater detail in Chapter 3 of this Water) to undertake building works has more report. than doubled in that time. In effect, between 1992 and 2004, outputs represented around Challenges to overcome for access to drinking 550 equivalent water points per year. During the water 2006 administrative cycle, execution capacity exceeded 1000 equivalent water points. From Taking into account the rate of progress, 2007 onwards, it remained steady at 1,800. difficulties encountered and the target of The execution capacity of DG-Eau has been full access to be achieved by 2015, the main strengthened to more than triple the original challenges to overcome are: level. This has enabled significant improvement in access to drinking water for rural populations • Reducing disparities in access to the benefit of and those in semi-urban areas. populations with low incomes, especially in the rural sector At the same time, works conducted by the international NGOs based in Benin, other The persistence of disparities is the result ministerial departments and other organizations of first-generation strategies for providing should also be cited. A budget reform occurred drinking water in the rural sector. These were prior to these programmes and projects. This based on a demand-led approach. In effect, instituted the programme budget approach implementation of the demand-led strategy allowing substantial increases in financial was affected by the existence of communities resources. with limited funding capacity for mobilizing, or releasing, the obligatory financial contributions Major difficulties linked to access to drinking to the construction of facilities. These poor water communities generally lack water points because the decentralized water service is based Greater progress would have been achieved had exclusively on demand. For the initial investment there not been difficulties of various types, in in water facilities, at least 60 percent of the particular: community’s financial contribution is mobilized • Limited capacity for absorbing resources, through an account with the local mutual implementing programmes/projects and agricultural credit fund. monitoring and evaluation

38 In practice, villages or settlements with limited • Promoting the participation of women in financial capacity were overlooked because managing facilities in a context of delegating they lacked a mechanism for managing their facilities management to private operators financial contribution. This practice was disadvantageous to populations in poor areas This reform requires better supervision as a matter where mobilizing the financial contribution of urgency. The sustainability of achievements constituted a serious barrier to accessing a water needs to be protected, particularly the practice point. However, in the past three years, there of ensuring that water point management has been a gradual resolution of this situation committees have least one woman on their thanks to the communes taking responsibility executive body. In the early years of delegating for the beneficiaries’ contribution. It is worth facilities management to private operators, there strengthening this new role for communes in was a certain level of participation by women. order to accelerate access to drinking water. This was due to the recruitment of women to the posts of water officer or manager for complex • Meeting the demand for drinking water in small drinking water supply systems in the rural centres or agglomerations with high population sector. This gender dimension deserves to be density strengthened by the new facilities owners, with the help and advice of the decentralized water These small centres or agglomerations with high services, in order to improve results. population density are still without access to drinking water. This is because providing a water • The problems of financing the subsector in a supply requires large investments that are not context of diminishing resources really financially viable for SONEB (National Water Company of Benin). What happened in the city of In general, funding for the drinking water supply Savé is a typical example. In effect, the supply of subsector is largely provided by external sources. drinking water to this city was made possible as a The contribution of internal resources remains result of a sugar-producing company mobilizing limited: 20 percent on average. Nevertheless, surface waters for agro-industrial purposes, there has been an improvement in the volume of i.e., growing sugar cane and producing sugar. internal resources over the last five years. Figure 3 A proportion of this water is delivered to the below shows the scale of cuts in resources. In the SONEB regional directorate. The water is treated short term, this threatens to affect consolidation and then supplied to households in Savé and of achievements in water point creation. its surroundings. If agro-industrial needs ever result discontinuation ofprovision to SONEB, the possible consequences are fairly evident. This risk threatens the supply of drinking water in Savé. It would be desirable for the Government of Benin to mobilize the necessary investments in order to remove this pressure on water in Savé permanently.

39 C. ACCESS TO BASIC SANITATION areas, at departmental and commune levels. In effect, according to 2009 EMICOV data, 84.1 The proportion of the population using an percent of households in rural areas do not improved sanitation facility rose from 12 percent have latrine or toilet. This compares with 18.3 in 1990 to 41.9 percent in 2009. percent in the urban sector. The department of Littoral (Cotonou) has the lowest proportion While there has clearly been progress, it is not of households without a latrine or toilet at 9.4 enough to indicate achievement of MDG 7C, i.e., percent. Meanwhile, the highest levels are 75 percent by 2015. The situation as observed in found in the departments of Atacora, at 92.2 2010 is illustrated in Figure 4 below. percent, Alibori at 92.1 percent, and Collines at 87.8 percent. Along with a shortage of revenue, The majority of households in Benin, 58.1 socio-cultural practices may explain these percent, do not have a toilet or latrine. There is trends. Figure 4 shows the extent of disparities considerable disparity between rural and urban across Benin.

FIGURE 3: CURRENT EVOLUTION OF FUNDING FOR DRINKING WATER IN THE RURAL SECTOR

4 Allocations en milliards de F CFA en milliards Allocations

0 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

Ress. Intérieures Ress. Extérieures

Source : DG-Eau.

40 FIGURE 4: PERCENTAGE OF THE POPULATION USING FLUSHING TOILETS OR LATRINES, BY COMMUNE, IN 2010

41 These results were achieved through the According to the reportLivre Bleu du Bénin11 (Benin interventions cited. They show that access to Blue Book), since the first African conference on basic sanitation services remains rudimentary, sanitation was held in 2002 in Durban, South especially in the rural sector. Africa, the proportion of funding provided by technical and financial partners (TFPs) has Major difficulties associated with basic increased for sanitation. The budget for the sanitation Directorate of Hygiene and Basic Sanitation (DHAB) has increased from less than one billion Progress to date comes with certain challenges in 2002 to 1.6 billion in 2005. This increase, that are making it difficult to achieve the targets. although substantial, falls far short of what is The following are of particular note: needed to achieve the MDGs in terms of hygiene • The resources allocated do not reflect the and sanitation. That sum is estimated at around priority assigned to the basic sanitation 5 billion per year solely for promoting sewage subsector during the financial planning for the disposal facilities and hygiene. 12 health sector • Limited capacity for absorbing resources, The national budget allocation for hygiene and implementing programmes and projects, and sanitation remains very small. On average, less monitoring and evaluation than 2 percent of the health sector budget is • Quantitative and qualitative shortages in spent on the area. It should be stressed that the human resources. hygiene and sanitation subsector would not appear to receive as much attention as drinking Chapter 3 of this report presents an in-depth water provision in terms of budget allocation. analysis of the difficulties that have affected For example, during the period 2000-2004, the successful implementation of interventions. public funds allocated to sanitation in the rural sector represent no more than 10 percent the Challenges to overcome for access to basic funds given to drinking water provision. 13 sanitation Furthermore, the budget for the hygiene and Various experiences bring to light the numerous sanitation subsector continues to shrink year challenges to be faced. These include: survey of on year. basic sanitation in Benin; difficulties encountered in implementing interventions; and the need to achieve the target of a 75 percent rate of access to improved sewage facilities. Those challenges include: • Reducing disparities in access between the rural and urban sector • Funding issues for the hygiene and basic sanitation subsector

11. Livre Bleu Bénin: L’eau, l’assainissement, la vie et le développement durable, 2006. (Benin Blue Book: water, sanitation, life and sustainable development, 2006) 12. According to Water and Sanitation Program (WSP) and DHAB, 2008. 13. H.J. Raad et al., 2006, quoted in Livre Bleu Bénin, 2006.

42 D. PROBABILITY OF ACHIEVING MDG 7C, the rate required for the MDGs. There is a clear ACCORDING TO CURRENT TRENDS gap between the two. This underpins the choice of water for the implementation and activation For a better visual representation of the of the acceleration framework. The purpose is current evolution of the indicators relevant to to reverse current trends in order to achieve the MDGs, Figures 5 and 6 show the general full access to drinking water for the Beninese trends of the two subsectors. population by 2015.

Figure 5 shows the current situation resulting Access to drinking water from the implementation of sector-based strategic planning without MAF. It is clearly a Figure 5 shows the current trend in drinking water matter of extreme urgency to reverse the current access, in rural and urban sectors, compared with trend, as it will not allow MDG 7C to be achieved.

FIGURE 5: PROPORTION OF THE POPULATION USING AN IMPROVED DRINKING WATER SOURCE IN BENIN

100.0

90.0

80.0

70.0

60.0 63.6 62.2 69.3 58,0 50.0

40.0

30.0

20.0

10.0

0.0 1990 1995 2000 2006 2009 2015

current evolution MDG route Linear (current evolution)

Source : UNICEF survey 1990; EMICOV 2001, 2006, 2009

43 In order to accelerate progress, emphasis must Following analysis, and taking into account the be on interventions with a very high impact that absolutely essential nature of drinking water can be implemented quickly. At the same time, and sanitation, the Government of Benin has priority must be given to reducing disparities pledged to ensure the achievement of MDG between communes and between departments. 7, through target C, as a matter of priority. In In the urban sector, emphasis must be on the order to achieve this, it is necessary to conduct small centres and peri-urban areas. It should a review of progress achieved in this sector. This be noted that statistical data pertaining to should be done from a historical perspective in these small centres are not included in the order to identify best practice and high-impact outcomes of EMICOV 2010. Nevertheless, these actions more effectively. It is also, and especially, small centres develop rapidly on the outskirts necessary to analyse the bottlenecks that are of cities. The Hêvié district in the commune of preventing implementation of relevant actions AbomeyCalavi is an example of this. There is also and to look for appropriate solutions. Successful increasing need for drinking water to supply the implementation of these actions remains agglomerations that result from the conurbation strongly dependent on the harmonization of of cities. At the same time, the rural sector must efforts on the part of the Government and the be the guide for priority interventions in those technical and financial partners. departments where delays were apparent in 2010. There must also be an effective reduction In Chapter 2, emphasis will be on the actions in the obvious disparities between communes taken, and best practice, that have already made and departments. With MAF fully implemented, it possible to achieve results, even where there is the water subsector should be back on target room for improvement. in terms of the relevant MDG, i.e., 100 percent access by the end of 2015.

Access to basic sanitation

In the case of hygiene and basic sanitation, there has been less obvious progress. In effect, the proportion of the population using an improved sanitary facility rose from 11 percent in 1990 to 30 percent in 2001, and to 34.3 percent in 2007. There is a marked disparity between the rural and urban sectors, as Figure 6 shows.

While there has been progress, if it continues at the current rate, achieving the MDG targets will not be possible. Furthermore women are more likely to acquire and use sanitary installations than men.14 It is therefore important to take this into account in all programmes that involve latrine provision.

14. EMICOV, 2009.

44 FIGURE 6: PROPORTION OF THE POPULATION USING AN IMPROVED SANITATION FACILITY, ACCORDING TO SECTOR

80 77,43 75 73,03 70 68,14 66,21 64,62 64 60 62,19 62,7 51 58 50 42 46 37 39 40 34,6 35,4 Rates 34,3

30 23,71 25,14 20 13,91 14,55 14,67 18,58 15,88 10

0 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 Year

rural sector MDG projection urban sector

Source : DHAB/Ministère de la Santé, 2011.

45 II. INTERVENTIONS STRATÉGIQUES

Photo: Elsie Assogba - UNDP Benin This chapter reviews the implementation of One of the major outcomes of this conference interventions relating to different national was the International Drinking Water Supply and strategies from the 1990s to the present. High- Sanitation Decade (IDWS) from 1980 to 1990. impact strategic interventions that could strengthen MDG 7C are identified through this The projects and programmes that were funded retrospective analysis. These interventions have as a result led to clear improvements in access been subject to evaluation based on criteria such to drinking water for populations, together with as scope, speed of impact, target populations the creation of some basic sanitation facilities. and evidence of impact. However, there was not enough emphasis on hygiene practices in the implementation of these Interventions that are essential for accelerating interventions. progress towards MDG 7C have been selected and prioritized on the basis of this evaluation. Statistics show that, in 25 years, the level of water provision rose from 10 percent in 1980 to In order to take into account the specific 41 percent in 2005 in the rural sector and from circumstances relating to water and sanitation, 17 percent to 50 percent in the urban sector.15 as well as the disparities highlighted in the As such, it is clear that decisions were made to preceding chapter, the analysis concentrates carry out important, and valuable, works in the specifically on the following three areas: (a) field of drinking water supply for urban and rural drinking water in the rural sector, (b) drinking populations in Benin. water in the urban and peri-urban sectors, and (c) basic sanitation. Conversely, the ‘hygiene and sanitation’ element has not enjoyed the same attention. According to the 2006 Livre Bleu Bénin, in 2005 the proportions of the urban and rural populations without access 2.1 WATER AND to proper sanitation systems were 60 percent and SANITATION IN BENIN - 90 percent, respectively.

STRATEGIC FRAMEWORK There are three significant phases apparent in the evolution of the drinking water supply and A. GENERAL CONTEXT basic sanitation sectors. Each of these stages was characterized by different research methods:16 The United Nations Water Conference, which • The IDWS, which took a technical approach took place in Mar del Plata in 1977, took various - numerous facilities were constructed but decisions including: there was very little mobilizing of beneficiaries • The need for a systematic evaluation of around interventions water resources - the conference called on • A phase known as «support programmes for all countries to create sector policies and water and sanitation sector development» - this strategies for themselves that would contribute was based on giving responsibility to grassroots to reversing the trend by their implementation communities with the support from NGOs • The principle of universal access to water by 2000 • A decentralized drinking water and sanitation service with commune-based ownership of facilities, in line with decentralization legislation

15. Livre Bleu Bénin, 2006, p. 60. 16. Livre Bleu Bénin, 2006.

47 B. STRATEGIC FRAMEWORK RELATING TO In this context,a new national drinking water THE SUPPLY OF DRINKING WATER IN THE provision strategy for the rural sector of Benin RURAL SECTOR was created for 2005-2015. The strategy is intended to enable the sector to adapt to the In general, it can be said that the field of drinking decentralized environment. In effect, henceforth water provision in the rural sector has undergone the communes must be responsible for a series of structural reforms including: managing facilities in the sector. It is therefore disengagement from the State, promotion necessary to adapt certain tools in line with of the private sector, decentralization and the options selected at national level. The new devolution. There have also been sector reforms: reforms had the advantage of safeguarding, or budgetary reform, handing responsibility to building on, the achievements of the previous communities, involvement of civil society, etc. In strategy of 1992-2002. This is especially apparent addition, a system of integrated water resource in the practice of user responsibility for the managementknown as GIRE (Gestionintégrée construction and management of water points des ressources en eau) has been adopted. in order to ensure local ownership.

PANEL 1: BEST PRACTICE: GIVING RESPONSIBILITY TO COMMUNITIES

The 1992-2002 strategy provided a reason for giving responsibility to users in the construction and management of facilities. In effect, this user responsibility was consolidated through the water subprojects conducted by the communities. At the time, the water service recruited NGOs involved in social intermediation to support communities in conducting the processes. Once a community dossier had been prepared, which included mobilization of the required financial contribution, the water infrastructure was put in place in the locality in question.

In order to ensure the sustainability of facilities created in this way, a water point management committee was entrusted with the management of the infrastructure. This committee was democratically elected and required always to include a woman. This committee was also responsible for ensuring hygiene around the water point and for maintenance.

These provisions made it possible to provide continuous access to the drinking water service for populations. The principal factor for success is that these were community initiatives, organized and managed among peers.

Water services are now decentralized structures creating and using facilities. As such, DG-Eau will dependent on DG-Eau. They are required to focus continue to exercise its governance function, their activities on advice-support to communes which consists of developing and implementing regarding effective application of the legislation, the water policy. as well as respect for the rules in planning,

48 The 2005-2015 drinking water provision strategy The strategy opts for an approach of gradual for the rural sector is an instrument of Beninese transfer to facilities management at commune national policy on drinking water distribution level. In this context, the strategy establishes and water infrastructure equipment in the rural the responsibilities of each party within the sector. Based on demand, the strategy embodies organizational framework of activities. It takes the following principles: into account whether funding comes from • Decentralization of the decision-making the commune itself; from investment funding process through the communes - planning for allocated to the department; or from national this purpose is based on user demand investment funds, for example Support Funds • User contribution to financing, management for the Economic Development of Communes and replacement of equipment and to (FADeC). monitoring facilities • Attempts at reducing the cost price of water by The principle of paying for water is now well- considering low-cost technical solutions and established in the rural sector in Benin and has efficient management been extended to drinking water distribution • Promoting the private sector in activities equipment. Water prices must make it possible to involving building, use, monitoring and social cover all the costs incurred in water production, intermediation, with efforts to encourage as well as in servicing, monitoring, maintaining professionalism among all the actors, especially and replacing water pumping equipment. The local actors operating in the sector commune is responsible for promoting the • Strengthening the technical and administrative principle of user payment for drinking water. In decentralization of the central administration order to make it sustainable, management of in its role as sector regulator, as well as the drinking water service in the rural sector is establishing working relations between the gradually being organized around the principle decentralized structures and communes of delegation.

These principles also concern cross-cutting New facilities, especially village water supplies, themes, especially gender promotion and the are immediately put out to lease. In these cases, fight against HIV/AIDS. While these are not private operators are recruited to manage water strategic focal points in the drinking water systems on the basis of an invitation to tender. sector, they are nevertheless determining factors As such, we are seeing a gradual process of in achieving the goals in question. Actions professionalization of water management. underway include the creation of a gender focus unit at central level, with point persons in the In the case of basic facilities, management is decentralized water services. A focus unit for the entrusted to a delegation chosen from among fight against HIV has been created to conduct the community. The monitoring process in this awareness-raising and prevention activities type of management has led to experiments in the workplace. These provisions have had a with water meters sited at boreholes equipped knock-on effect on the design consultancies, with manually operated pumps. borehole development companies, and social intermediation structures, as well as on the communities receiving the facilities.

49 PANEL 2: BEST PRACTICE: LEASING FACILITIES

The second principle of the 2005-2015 public water supply strategy for the rural sector stipulates that users must contribute to financing, managing and replacing equipment, and to monitoring facilities. Consolidation of this principle is resulting in effective professionalization of facilities management.

The option to lease has been selected and broadly implemented by state actors and communities as a means of managing village water supplies and basic facilities.

More than 157 leasing contracts for village water supplies (complex water systems) were signed and implemented by the end of December 2010. The process was evaluated during the first quarter of 2010.

It is in the interest of private operators (lessees) to maintain the network in good working order. The result is better access to drinking water for populations. Furthermore, royalties collected by communes enable them to plan for extending networks and thereby increase populations’ access.

Certain interventions have wisely prioritized Today, the programmes for supplying drinking the creation of village water supplies water in the rural sector automatically cover covering numerous villages and semi-urban all villages or settlements of 250 inhabitants agglomerations. These include the «Initiative or more thatdo not have access to drinking Eau» («water initiative») for semi-urban centres, water. This compares with a minimum of 500 which has national coverage, and the programme inhabitants during the 1990s. Furthermore, for supplying drinking water and sanitation in isolated villages with fewer than 250 inhabitants Atlantique and Zou. Initiative Eau was created are also considered within the parameters for in line with the Paris Declaration requirements inclusion in the social objective of drinking regarding technical and financial partners and water. With the commune-based programming, their cooperation with national procedures. The these areas are subject to a prioritization process initiative involves a pooling of financial resources aimed at reducing disparities in access. in order to strengthen access to drinking water for populations in semi-urban centres. These The disengagement of the State from the are settlements with a population of over 2,000 decision-making process is reflected in the inhabitants. Under the initiative, standpipes are ending of activities to build state-run facilities. created at a rate of 1 per 500 people. These activities are being transferred to the private sector. All of this has enabled acceleration of access to water services for populations. Similarly, the The aforementioned new approach to AFD village water project implemented in the implementation has made it possible to department of Collines was the precursor of the accelerate the creation of facilities. This has commune-level programming approach. This been achieved by awarding contracts for small approach is based on prioritizing disadvantaged lots of 20 to 30 facilities, a practice thathas areas and, as such, reducing inequalities. encouraged the creation of small and medium- sized enterprises (SME) in the sector.

50 Benin has opted for the strategy of integrated In order to improve performances in the area water resource management, or GIRE, in order to of drinking water provision in the urban sector, ensure sustainability in drinking water provision to SONEB adopted a water master plan for the communities and to all users involved. The strategy period covering 2003-2012. This is a planning will provide better governance of resources in the tool for the drinking water provision sector in country. Indeed, following the World Summit the urban context. The master plan enables on Sustainable Development in Johannesburg identification of needs and investment priorities (September 2002), GIRE was recognized as the key over a 10-year period. To date, each of the 61 element for achieving the MDGs, especially in the water systems managed by SONEB has its own area of water and sanitation. investment plan.

GIRE implementation has led to some significant In 2006, a drinking water provision strategy was advances at legislative and institutional levels as created for the urban sector, covering the period well as in the technical context. These advances 2006-2015, with reference to the MDGs. As a are apparent in the implementation of GIRE result, the SONEB water master plan was updated. instruments, especially the following: a) creating and endorsing the national GIRE action plan; The new 2006-2015 urban sector drinking water b) creating the water management blueprint provision strategy in Benin largely revolves for Ouémé; c) developing and disseminating a around three principal objectives that are based methodological guide to establishing protected on achieving the MDGs: drinking water catchment areas/points; d) • Achieving an average water supply rate for updating the hydrogeological map of Benin; and urban populations of 75 percent at national e) launching a feasibility study for implementing level by 2015, i.e., 3 million people served a flood warning system in the Mono Basin. • Ensuring economic viability of drinking water provision activities and public water services C. STRATEGIC FRAMEWORK RELATING TO • Guaranteeing accessibility of drinking water THE SUPPLY OF DRINKING WATER IN THE for populations on low incomes URBAN AND PERI-URBAN SECTORS In order to achieve these objectives, the strategy is based on the following four principles. The national water company SONEB is responsible • Actors including central government, local for supplying drinking water in the urban sector. organizations, SONEB and civil society exercise The company was created in June 2003 as a their respective roles within a consistent legal result of the reform of the electricity and water and institutional framework. The approach is sectors, which led to the separation of the two one of complementarity. activities. Previously, they had been managed • Achieving the MDGs is based on the ongoing, by the former Beninese Electricity and Water and harmonious, development of the drinking Company (SBEE, SociétéBéninoised’Electricité water provision sector in the urban context. et d’Eau). With the creation of SONEB, the • The sustainability of drinking water provision respective areas of responsibility of DG-Eau in the urban context rests on the efficient and and SONEB were clarified and delineated more cost-effective management of public water effectively. This took place in consultation with services. local organizations in order to ensure that • Accessibility of drinking water for populations populations of peri-urban areas were included in on low incomes is a fundamental requirement the programmes. for national solidarity.

51 Within the framework of this strategy, the cost- • Strengthening drinking water provision efficient management of water services clearly systems will guarantee the sustainability of supply. In this • Drinking water provision for Cotonou, Porto context, it is vital for the costs of water services, Novo, Lokossa and Natitingou including investment and usage costs, eventually • Safeguarding the supply of drinking water, to be fully covered. To achieve this, the tariff reflected in the gradual implementation of system now depends on a cross-subsidization generator relays to serve as back-up during the of tariffs at national level. This is intended to – rather frequent – power-cuts.This guarantees guarantee the sustainability of the drinking continuity in the production and distribution water provision to small cities served by systems of water, to the benefit of populations that are not economically viable. Through these interventions, 42,000 new SONEB currently supplies 69 commune subscriptions were registered on the network administrative centres. At the end of December between 2005 and 2010. This represents 504,000 2010, it had 165,00017 subscribers. Some 80 members of the public, with one connection for percent of the demand for water is concentrated every twelve people. in Cotonou, Porto-Novo, Parakou and Abomey/ Bohicon. The rest comes from secondary cities In the case of peripheral areas or peri-urban and small urban localities. agglomerations, withongoing needs and high number of inhabitants involved, it is important In the urban sector, drinking water provision has to find a formula that takes past experiences seen tangible efforts made in terms of providing into account, e.g.,social connections. At the modern hydraulic facilities to cities, as well same time, all existing constraints such as the as improvements in service levels and in the existence of private, independent water points, management of water services. must be considered. Such a formula should make it possible to provide a sustainable water supply Essentially, the interventions that have to that section of the population, accelerating strengthened access to water for urban and peri- MDG achievement as a result. urban populations are as follows:

PANEL 3: BEST PRACTICE: CROSS-SUBSIDIZATION OF TARIFFS AT NATIONAL LEVEL

Le système tarifaire actuel est appliqué uniformément dans toutes les villes du Bénin et repose sur une péréquation des tarifs dans le cadre de la solidarité nationale pour assurer la continuité de l’approvisionnement en eau potable des populations des villes secondaires et petites localités desservies par les systèmes d’AEP économiquement non viables.

Cette péréquation permet au citoyen béninois pauvre ou non, où qu’il se trouve sur le territoire national, d’accéder au service d’eau potable de la SONEB au même prix.

17. Annual report on the Company Projected Development Plan and Contract Plan, 2010 adminstrative cycle

52 D. STRATEGIC FRAMEWORK FOR HYGIENE base) have been created in 10 of the 12 new AND BASIC SANITATION departments. Hygiene assistants have been trained, recruited There are various framework documents relating and supplied to health centres in every to the hygiene and basic sanitation sector, commune in Benin. including: These hygiene assistants are the cornerstone • A national sanitation policy document adopted of implementing hygiene and sanitation in 1995 promotion. • A national sanitation development plan (PNDS) covering the period 2009-2018 Giving municipalities and communes the capacity • A manual on promoting hygiene and basic to plan and manage basic sanitation services. sanitation, created in 2005 Social intermediation has been handed over to These documents constitute the frame of communes. reference for a minimum level of coordination Since 2008, financial resources have been between the different interventions in the sector. transferred to the communes within the framework of the multi-year support National sanitation policy programme for the water and sanitation sector (PPEA, Programme Pluriannueld’appui au The national sanitation policy was adopted secteur de l’Eau et de l’Assainissement) and by the Government in 1995. It is based on five also through the NGO Protos since 2002. The fundamental principles, as follows: purpose is to enable them to conduct activities 1. Implementing sustainable and effective relating to hygiene and basic sanitation, e.g., institutional structures for managing social intermediation, building institutional sanitation services latrines, and promoting family latrines. 2. Promoting sanitation programmes created on A guide to commune-based facilities the basis of demand expressed by communities management for hygiene and sanitation has 3. Communities’ contribution to financing been produced and distributed throughout the facilities, their use and maintenance country. Several communes have undertaken 4. Developing the skills of local entrepreneurs to create their own commune-based hygiene and artisans and sanitation plan (PHAC, Plan d’hygiène et 5. Promoting technologies adapted to financial d’assainissement communal). These plans capacities and management by the State, could play a key role in accelerating progress municipalities and beneficiaries where the actions involved directly meet the needs expressed by beneficiaries. The PHACs The implementation of the aforementioned are based on the principle of prioritizing. national policy has resulted in the following: As such, they enable the needs of the most disadvantaged and vulnerable populations Strengthening the State in its role of promoter to be taken into account. These plans have and coordinator for sanitation programmes. been created in seven pilot communes where they have been very warmly received by the Hygiene and basic sanitation services (SHAB, technical and financial partners. In 2011, the services d’hygiène et d’assainissement de German aid agencies released over 2 billion CFA francs for the implementation of these plans.

53 Through the development organization SNV, A number of social intermediation structures the Netherlands has funded the development and design consultancies have been given of 14 plans. The international NGO Helvetas a mandate by communes and/or DHAB to has launched two. conduct activities and/or carry out studies for A plan is being finalized for skills transfer. This the sector. uses a road map that all the actors share. Several strategic partnerships have been formed with national and international Strengthening the role of the private sector NGOs. These include: CREPA, SNV, Helvetas, and of NGOs in supporting communities and Protos and Plan-Benin. The purpose of the providing services. partnerships is to conduct hygiene and basic sanitation activities. These partnerships have a Today, the Directorate for Hygiene and Basic decisive effect in the subsector as they enable Sanitation (DHAB), and its decentralized the partner institutions to play a pivotal role bodies, are no longer responsible for running in improving populations’ access to sanitation basic sanitation facilities. These are managed facilities. As an example, between 2008 and by private companies. 2010, Plan Benin has created 600 family latrines and some 70 latrines for schools for the use of populations in Atacora and Couffo.18

ENCADRÉ 4: BONNE PRATIQUE : PARTENARIAT PUBLIC PRIVÉ POUR LA PROMOTION DE L’HAB

Today, the sector capacity to take action results from the actual capacity of private actors. Promoting the private sector is also a product of applying the principles of the national sanitation policy.

Since 2008, PPEA activities to build public latrines have been exclusively conducted by private enterprises, involving around 2000 covered latrines.

In 2006, on behalf of Plan Benin, CREPA built 500 latrines in Couffo in less than six months. This outcome is down due to the existence of a fully-functioning professional hygiene and sanitation network at local level.

It is important to consolidate these achievements, • Numerous communes have a service which remain rather fragile. This involves responsible for hygiene and basic sanitation. strengthening the skills and capacities of • Commune-based agencies have received different actors, especially through the following training in various forms initiated by DHAB. undertakings. • Most of the senior staff involved in hygiene • Various social intermediation structures and basic sanitation services, as well as other have been created in order to promote DHAB staff, have received supplementary hygiene and sanitation. training. In some cases, this is at their

18. Report on the European project to support access to drinking water and environmental sanitation in the rural sector (PEPAR, Projetd’appui à l’accès à l’Eau Potable et à l’Assainissementenvironnemental en milieu Rural) 2011.

54 own initiative and leads to qualifications. • Improving behaviour-changing communica- Alternatively, training may be part of a tion - awareness-raising campaigns have been programme run by DHAB or its the partners organized in the media and elsewhere, espe- involving internships or short workshops. cially on the subject of hand-washing • Strengthening the capacities and skills of The challenge is to create and implement a plan service providers for capacity-strengthening for public service actors in hygiene and basic sanitation. The plan • Promoting the creation and implementation of needs to include the actors at all levels: central, commune-based hygiene and sanitation plans devolved and decentralized. While awaiting such • Accelerating the transfer of hygiene and a plan, DHAB should make thebest use possible sanitation activities to communes of resources including: the panel of technical • Scalability of the approach of hygiene and assistants made available by its technical and basic sanitation promotion in the rural sector financial partners; lessons learned in training centres, including CePEPE, CFME and CREPA; Promoting hygiene and basic sanitation and its own competences in responding to the urgent needs for capacity-building required for The approach of hygiene and basic sanitation MDG achievement in 2015. promotion (PHA, promotion de l’hygiène et de l’assainissement à la base) is part of the National Health Development Plan (2009-2018) process of promoting facilities for hygiene and of the Ministry of Health basic sanitation. It is a process that emphasizes education and raising awareness about hygiene. In the 2009-2018 national health development PHA is underpinned by a social marketing plan document, the Ministry of Health has given strategy involving the creation and appropriate significant space to hygiene and basic sanitation. use of family and institutional latrines, cesspools, This is set out in Programme 1 of Strategic Area hand-basins, etc. 1 entitled «Prevention and fight against disease and improving the quality of care». Through PHA, actors on the ground, such as builders and ‘relaiscommunautaires’ (community This programme has been implemented through link persons), promote a range of technology thorough preparation, environmental sanitation options adapted to different areas of the country. and behaviour-changing communication. It Five departments have benefited from this contributes to improving individual and collective intervention as part of a pilot project. These are: behaviour in health matters, and in sanitation Atlantique, Zou, Collines, Borgou and Alibori. in the surroundings and living conditions of populations. Key areas of interventions are activated through actions including: • Strengthening the intervention capacities of decentralized structures - a special credit line has existed for the basic hygiene and sanitation services (SHABs) at departmental level since 2008

55 It is necessary ensure that the private sector and covering the two sectors of water and basic NGOs are able to implement the PHA approach sanitation. Nevertheless, they are dealt with properly, as described below, to the benefit of separately by sector. their clients, i.e., the communes. A. EQUITABLE AND SUSTAINABLE ACCESS TO DRINKING WATER IN THE RURAL SECTOR

2.2 SELECTION OF The strategic interventions have been chosen from an extensive list. They have the potential to INTERVENTIONS WITH reduce the delay in providing access to drinking THE POTENTIAL TO water for populations in the rural sector. The chosen interventions are presented with the ACCELERATE PROGRESS solutions to the various bottlenecks in Table 8. In the text, the interventions are presented in boxes TOWARDS MDG 7C so that they can be clearly identified.

The current MAF for MDG 7C covers the three A.1 Increasing the number of water chosen intervention areas. These are: points, especially in departments with • Equitable and sustainable access to drinking limited levels of access (Zou: 57 percent; water in the rural sector Atlantique: 58.8 percent; Donga: 60.2 • Equitable and sustainable access to drinking percent). This will involve targeting dif- water in the urban and peri-urban sectors ficult hydrogeological areas and redu- • Equitable and sustainable access to basic cing disparities within communes, as sanitation well as maintaining achievements in regions that are already well supplied. The necessary priority interventions have been As such, there is a strong possibility of identified for these areas. These must be subject improving women’s access to water: 77 to acceleration by 2015 in order for populations percent for women compared with 75.3 to have access to drinking water and basic percent for men sanitation services. Access to drinking water is a condition of social This selection of priority interventions was justice, dignity, equity and peace. It must be preceded by an analysis based on lessons guaranteed for all and be sufficient, acceptable learned in Benin and elsewhere. During the and non-discriminatory. In terms of the diagnos- analysis, emphasis was on the scope and speed tic analysis, the departments of Zou, Atlantique of the impact of the interventions on the targets. and Donga appear to be suffering a more serious Implementation of these strategic interventions delay in the provision of access to drinking water. will enable a reversal of the current trends Their levels of access are far below the national so that MDG 7C can be achieved. Within the average of 69.3 percent in the rural sector. The framework of this analysis, it should be stressed figures are: 57 percent in Zou; 58.8 percent in that strengthening the capacities of communes, Atlantique; and 60.2 percent in Donga. These de- and strengthening capacities for monitoring partments are home to 29.5 percent of the rural and evaluation, are cross-cutting interventions population of Benin. This is why it is important to

56 include them in order to increase access to drin- With regard to the type of infrastructure to be king water for the benefit of the 41 percent of created in order to accelerate access, it is advi- communities still waiting for it. sable to concentrate on creating complex facilities or multi-village water supplies. In Zou and Atlantique, there is a high population density New water points must be constructed as a mat- with locations relatively close to each other. Vil- ter of urgency in those priority departments. For lage water supplies in the form of small distri- this, it is necessary to capitalize on the interven- bution networks are recommended for reaching tions described and analysed at the beginning of the greatest possible number of people. An this chapter, i.e., Initiative Eau, PADEAR, PAEPAR intervention currently underway, in tandem with and PPEA, while aiming to consolidate achieve- the project to supply drinking water and sanita- ments in other departments. Obviously, access tion in the rural sector, has opted for complex mapping has been used to target intervention facilities in the form of village water supplies and locations. As such, the communes that should stand-alone water stations. In Donga, however, benefit from individual attention are: the mixed option is advisable in order to take into • In Atlantique: Kpomassè 51.3 %, Allada 57.7 % account the wide distribution of inhabited areas and Zè 58% and the existence of small, semi-urban centres. • In Donga: Copargo 51.4 % and Ouaké 54.8 % The Japan-UNDP emergency programme is an • In Zou: Covè 48.6 %, Zagnanado 50% and Za- example of this approach. Conducted exclusively Kpota 51% in Atacora and Donga, it involved the creation of boreholes and water supply systems.

PANEL 5: BEST PRACTICE: TRANSFERRING SOCIAL INTERMEDIATION TO COMMUNES

Unlike the earlier strategy of 1990-2002, the strategy of 2005-2015 emphasizes decentralization of the decision-making process. This is achieved through the communes which that do their planning based on user demand. Since its implementation, this principle has underpinned the comprehensive transfer of social intermediation to the communes in order to strengthen their ownership of facilities, in line with decentralization legislation.

Today, the significant progress in evidence means that communes have taken over from the beneficiaries in mobilizing the initial financial contribution to the investment.

This measure has enabled communes to accept their role of managing facilities and ensuring that they are closely monitored. Furthermore, the fact that communes have effectively taken responsibility for the beneficiaries’ contribution has assisted access to drinking water in disadvantaged areas.

57 The transfer of social intermediation to com- Through this intervention, there will be general munes is now a reality in all communes of Benin. implementation of the facilities ownership model Nevertheless, there must be emphasis on safe- now in use. It will become part of commune- guarding achievements for those places that based programming for water facilities, have with water points. thus reducing disparities in access to water. Furthermore, it is expected that the communes will significantly improve the technical and A.2 Accelerating GIRE implementation financial monitoring of leased facilities in order to guarantee sustainable access to water services This intervention is intended to guarantee for populations. Pilot projects were conducted the sustainability and availability of water as part of the multi-year water and sanitation of acceptable quality and quantity for the programme (PPEA) financed by the Netherlands satisfaction of all users, as well as access and implemented between 2006 and 2012. These to drinking water within the framework of involved transferring resources to communes to integrated water resource management (GIRE). carry out social intermediation and construct The general principles of GIRE include promoting simple facilities, i.e., around seven to 10boreholes. solidarity and the primacy of the human Widespread implementation of this model would dimension. In addition, this approach makes it enable significant development of capacities in possible to guarantee equitable and sustainable communes and, as such, strengthen their role access to drinking water for impoverished as the sole owners of facilities. Nevertheless, populations. implementing this intervention would require serious commitment from the State. Thus far, If available water resources are mobilized only the technical and financial partners have sustainably for domestic purposes, especially ensured the effectiveness of transfers. Such among low-income populations, then poverty commitment would mean avoiding repeated will be reduced and the Beninese population will recourse to official development assistance. flourish all the more effectively.

In terms of consolidating gender-related A.3 Strengthening the capacities of progress, it is advisable to boost the role of communes as facilities owners, and of advice-support from the decentralized water their key partners services to communes. This should result in responsible and effective coaching. Delegation The transfer of social intermediation is a reality of facilities management is now being in the rural sector. As such, this intervention implemented and communes are making use of is aimed, first, at strengthening the effective private operators. It is therefore useful to include exercise of ownership over the facilities in provisions for promoting gender issues in tender question. Since the administrative cycle of 2008, documentation for facilities leasing. Fortunately, this area has been entirely transferred to 74 out there has not been any reluctance in this regard: of the 77 communes. They issue service contracts in the department of Plateau, there are women with the social intermediation structures. in charge of water supply networks, notably in Nevertheless, further efforts may be required at Ketouwith the Sodji and Idigny village water this level. The required funding is included in the supplies. Similarly, in Atacora, a woman is the commune development plans. lessee of the village water supply of Birni, created as part of the Initiative Eau. This gender aspect is

58 highly strategic as water-related matters concern B. EQUITABLE AND SUSTAINABLE ACCESS women especially. When women are involved TO DRINKING WATER IN THE URBAN AND from the start, there are fewer problems in PERI-URBAN SECTORS households and in society. B.1 Strengthening drinking water sup- A.4 Strengthening the system of infor- ply systems in the urban and peri-urban mation and monitoring and evaluation sectors

This intervention contributes to applying the The drinking water supply system in cities with operational provisions of the document on the special status, especially Cotonou, no longer advice-support system for water sector in the rural meets the water needs of the populations. This context. The aforesaid document was approved is due to rapid demographic evolution and in 2008 when objective-based programme to the antiquated equipment. This strategic budgeting was adopted, and strengthened, at all intervention can be seen in the renewal of levels: central, decentralized and commune-level. antiquated pipework. The aim is to reduce the In particular, the intervention contributes to the network leakage rate, which was 29 percent in systematic recording of data using the SUCCESS 2010. It is understood that one of the factors accountancy software. This will facilitate the limiting the access of populations to drinking creation of analytical reports on related activities, water in the urban sector is the limited self- outcomes and expenditure. Furthermore, the financing capacity of SONEB for funding the intervention aims to strengthen the effectiveness renewal of these installations. of the planning, scheduling, budgeting and monitoring process of DG-Eau. This will make This intervention involves compacting and budget decisions clearer and more transparent extending the network. As such, it will be while respecting the fundamental principle of possible to accept new consumers in the areas in objective-based programme budgeting in order question, in line with the dynamic of population to ensure equity in the coverage of village water growth and urbanization. In effect, the process supply facilities. of compacting the network will enable it to be strengthened. It will also strengthen provision This strengthening is also intended to facilitate of the drinking water services by meeting relations between decentralized services and previously unsatisfied demand and expectations. communes for the purpose of information sharing. Similarly, increasing the network has the advantage of extending the pipework into In addition, this intervention is justified by the peripheral urban areas. These have previously need for reliable information that is regularly been neglected due to lack of investment on updated on the monitoring and understanding the part of SONEB. It should be noted that the of water as a resource. Indeed, effective project plans have been created with this in implementation of GIRE requires good sector mind. Furthermore, in recent years, SONEB has data regarding this resource. taken advantage of opportunities provided by the State within the framework of relocating the celebration of Beninese independence. As such, SONEB was able to embark on projects to renew,

59 strengthen, compact and extend the network the strategic principle aimed at universal access wherever possible, to the great advantage of to water at an affordable price. In the past, urban households. SONEB has conducted such interventions for the benefit of low-income populations in small In addition, it is hoped that surface water can urban centres and peri-urban agglomerations. In be used to benefit cities located in areas with the early1990s, SONEB (formerly SBEE) received difficult hydrogeological conditions, e.g.,Pobè, financial support from the World Bank to establish Adja-Ouèrè, Savè and Tchaourou. In those areas, social connections (i.e., connections to the water conditions do not allow for the creation of new, network as a form of social welfare) in Cotonou. less deep boreholes close to existing systems. This made it possible to increase the number of Feasibility studies conducted by SONEB have consumers by 20 percent and to protect newly led to the proposed solution of mobilizing connected homes from waterborne diseases. surface water for the aforesaid cities, in which it is often difficult to reach groundwater. The This intervention is intended to provide case of the city of Parakou demonstrates the disadvantaged populations with the facility scope of this intervention. Today, the Okpara to pay for connection ininstalments. As such, barrage guarantees the supply of drinking water there have been experiments with two types of to Parakou, Tchaourou and the surrounding connection in the areas covered by the network. area. With the current, sustained demographic There are social connections for households pressure and rapid urbanization, it is important classed as disadvantaged and there are paid to anticipate the risk of water stress that could connections for other categories of household occur in the medium term. with specific facilities for paying.

This intervention also enables the populations B.3 Safeguarding electricity during the concerned to be spared from having to use production and distribution of water alternative sources where there is a risk that these are carriers of waterborne diseases. It Interruptions to the power supply harm the should be added that this range of activities has supply of drinking water in the urban and peri- already proved effective, as it constitutes a major urban sectors. As such, SONEB is already working part of the drinking water supply strategy in the on this intervention, which is being developed in urban sector. order to guarantee continuous access to drinking water for urban and peri-urban populations. This B.2 Improving access to water for disad- intervention enables the output of installations vantaged sections of the urban and for drinking water production and distribution peri-urban populations, especially wo- to be maintained at an acceptable level. For men and woman-headed households, this reason, emphasis is on strengthening the through low-cost connections network of generators in order to guarantee access to the service for populations, especially Within the acceleration framework for achieving in cities with special status outside of Cotonou, MDG 7C, improving access to drinking water as well as in certain secondary cities. for disadvantaged sections of the population through low-cost connections is in line with

60 C. EQUITABLE AND SUSTAINABLE ACCESS sector with a Guaranteed Interprofessional TO BASIC SANITATION Minimum Wage (SMIG, Salaire Minimum InterprofessionnelGaranti) of 31,625 CFA francs C.1 Boosting the PHA approach as a per month, then the time saved would represent priority in all departments, excepting 25,520,584,375 CFA francs per year.»19 cities with special status The PHA approach also makes it possible to The hygiene and basic sanitation promotion minimize health costs: approach (PHA) was the subject of a document entitled Document de mise en œuvre de la «In households that have benefited from PHA Promotion de l’Hygièneet de l’Assainissement activities, monetary savings on healthcare are (PHA) [Implementation document for hygiene estimated at 37,000 CFA francs per household, and sanitation promotion (PHA)]. The document per year where care services are immediately is about a process of promoting facilities for available. For the nation as a whole, if hygiene and basic sanitation. It describes the households are provided with adequate latrines, PHA process as an intervention approach in the savings are estimated at 29,858,075,000 FCA 20 the field of education and awareness-raising francs per year.» regarding hygiene and basic sanitation. Finally, PHA creates jobs: PHA involves promoting a diverse range of «Promoting hygiene and sanitation is also a technological options adapted to different source of job creation. Raising awareness among areas of the country. It is undertaken by local households at national level in order to create actors including hygiene assistants, builders and latrines will allow for an investment of 14.6 ‘relaiscommunautaires’. In each area, activities billion CFA francs in specialist builders of the local 21 are run by two ‘relaiscommunautaires’, one man private sector.» and one woman. In social terms, projects implemented within the Adopting the PHA approach brings numerous PHA framework have contributed to reducing benefits. It is effectively a time-saving approach. inequalities between men and women by respecting their dignity and their privacy. «The fact that latrines are available at household Through the awareness-raising campaign, level means that each household saves on women have learned the importance of access to average 547 hours per year. Households that latrines. As a result, they save time thatthey are have benefited from PHA save this time each year. able to reinvest in revenue-generating activities. This allows them to work, or to study in the case of children, to look after children in the case of women, to take part in community initiatives and to relax. If toilets were supplied to all households currently without them, and all the time saved were reinvested in the formal employment

19. CREPA-WASH, Etude sur le gain socio-économique de l’assainissement au Bénin, 2009 (Study on socio-economic benefits of investing in sanitation in Benin) 20. Ibid. 21. Ibid.

61 This intervention has already been run as a pilot access to improved sanitary facilities, according project in five departments: Atlantique, Zou, to the 2009 PHA final evaluation report. Alibori, Borgou and Collines. The intervention enabled an increase of 20 percentage points There are plans to strengthen the PHA approach in four years in the proportion of people with using another instrument currently being access to improved sanitary facilities, according testing in three pilot departments, with the to the 2009 PHA final evaluation report. support of UNICEF: community-driven total sanitation (ATPC, assainissement total piloté par There are plans to strengthen the PHA approach la communauté). This instrument aims to put using another instrument currently being an end to open defecation. In the department testing in three pilot departments, with the of Ouémé, 57 localities were subject to ATPC support of UNICEF: community-driven total implementation. Of these, 30 saw an end to sanitation (ATPC, assainissement total piloté par open defecation in 2010. The other localities la communauté). This instrument aims to put experienced an appreciable increase in the an end to open defecation. In the department number of latrines built. of Ouémé, 57 localities were subject to ATPC implementation. Of these, 30 saw an end to From looking at the map of the sanitation open defecation in 2010. The other localities state in the communes of Benin, it is very experienced an appreciable increase in the clear that, outside of the country’s big cities number of latrines built. such as Cotonou, Porto-Novo and Parakou, this intervention is relevant to all the other From looking at the map of the sanitation communes in Benin in equal measure. state in the communes of Benin, it is very clear that, outside of the country’s big cities C.2 Creating and implementing com- such as Cotonou, Porto-Novo and Parakou, mune-level hygiene and sanitation this intervention is relevant to all the other plans, excepting communes with special communes in Benin in equal measure. status

In social terms, projects implemented within At present, 14 of the 74 rural communes have the PHA framework have contributed to a commune-based hygiene and sanitation plan reducing inequalities between men and women (PHAC). Similar plans are in development in 14 by respecting their dignity and their privacy. other communes with support from technical Through the awareness-raising campaign, and financial partners. women have learned the importance of access to latrines. As a result, they save time thatthey PHACs are potentially high-impact inasmuch as are able to reinvest in revenue-generating the programmes of activities included in them activities. respond directly to the needs expressed by the beneficiaries. Thanks to the programming This intervention has already been run as a pilot approach that underpins their development, project in five departments: Atlantique, Zou, these plans allow the needs of the most Alibori, Borgou and Collines. The intervention disadvantaged and vulnerable populations enabled an increase of 20 percentage points to be taken into account. Activities resulting in four years in the proportion of people with from PHACs include, among others, building

62 latrines for schools and families, and hygiene education. The content of these activities is in line with the technical and technological packages that the Directorate for Hygiene and Basic Sanitation (DHAB) has been implementing for some decades.

D. LINKS BETWEEN CHOSEN INTERVENTIONS AND PLANNING DOCUMENTS

Table 5 shows the links and relationships between the priorities stated in the strategic planning documents and the priority interventions selected and defined within the MAF framework. There is special reference to the Priority Actions Programme (PAP, Programme d’ActionsPrioritaires) for the water and sanitation sector. MAF will boost the process of putting these priorities into operation.

63 TABLE 5. LINKS BETWEEN PLANNING DOCUMENTS AND CHOSEN INTERVENTIONS

Lines of intervention featuring Priority interventions selected Plans/Programmes in programme/plans within MAF

PAP-SCRP3 Building and rehabilitating water points (2-4-2-1) A.1 Increasing the number of water points, especially in departments with limited levels of access (Zou: 57 percent; Drinking water provision in rural and semi-urban Atlantique: 58.8 percent; Donga: 60.2 sectors (2-4-2-2) percent. This will involve targeting difficult hydrogeological areas and reducing Initiative Eau in semi-urban centres (2-4-2-3) disparities within communes as well as maintaining achievements in regions that are already well supplied.As such, there is a strong possibility of improving women’s access to water: 77 percent for women compared with 75.3 percent for men.

PPEA Water and sanitation in the rural sector (PPEA infrastructures 2-4-2-4)

National water policy Orientation No. 1: reforming the management A.2 Accelerating GIRE implementation framework for the good governance of water

Orientation No. 2: guaranteeing equitable and sustainable access to drinking water and sanitation for populations

PAP-SCRP 3 Improving the water resource management system following a GIRE approach (code 2-4-1-1 et)

PPEA-GIRE (2-4-1-3)

GIRE national action Action area No. 1: reforming the water plan (PANGIRE) governance framework

PPEA Element 2: support for decentralization A.3 Strengthening the capacities of communes as facilities owners, and of their key partners

National water policy Orientation No. 1: Focus No. 1: promoting A.4 Strengthening the system of training in, and understanding of, water resources information and monitoring and evaluation

PAP-SCRP 3 Improving the quality of life for rural and urban B.1 Strengthening drinking water supply populations by guaranteeing access (Goal systems in the urban and peri-urban 2-4-2); strengthening production capacities and sectors water treatment stations; building new service reservoirs and storage tanks; extending and compacting, and creating new connections (2-4-2-6)

64 Lines of intervention featuring Priority interventions selected Plans/Programmes in programme/plans within MAF

PAP-SCRP 3 Improving the quality of life for rural and urban B.2 Improving access to water for populations by guaranteeing access (2-4-2) disadvantaged sections of the urban and peri-urban populations, especially women and woman-headed households, through low-cost connections

Strategy of Development Forecast and Business Plan / SONEB B.3 Safeguarding electricity during the implementing production and distribution of water quick-impact actions and MERPMEDER structural activities

PNDS (2009-2018) Programme 1 of Strategic Focus 1 C.1 Boosting the PHA approach as a priority in all departments, excepting cities PPEA (2007-2012) Water and sanitation in the rural sector (PPEA with special status infrastructures 2-4-4-4)

PAP-SCRP 3 Promoting hygiene and sanitation programme (PPHA)

OPB-DHAB (2010- Strategic focus No. 1: promoting hygiene and 2012) basic sanitation (in schools, in public places and in households)

PNDS 2009-2018 Programme 1 of Strategic Focus No. 1 C.2 Creating and implementing commune-level hygiene and sanitation PPEA (2007-2012) Water and sanitation in the rural sector (PPEA plans (excepting communes with special infrastructures 2-4-2-4) status)

PAP-SCRP 3 PPHA

OPB-DHAB (2010- Strategic focus No. 1: promoting hygiene and 2012) basic sanitation (in schools, in public places and in households)

The key interventions underway are presented in Table 6.

65 TABLEAU 6. Synthèse des interventions priorisées

Domaines d’intervention OMD/Cible prioritaire Indicateurs OMD Interventions priorisées retenues prioritaires

MDG 7: Ensure environmental Proportion of population using an A. Equitable and sustainable access to A.1 Increasing the number of water points, especially in departments with limited levels of access (Zou: 57 percent; sustainability improved drinking water source drinking water in the rural sector Atlantique: 58.8 percent; Donga: 60.2 percent). This will involve targeting difficult hydrogeological areas and reducing disparities between communities, as well as maintaining achievements in regions that are already well Target 7C: Halve, by 2015, supplied.A1 As such, there is a strong possibility of improving women’s access to water: 77 percent for women the proportion of people compared with 75.3 percent for men. without sustainable access to safe drinking water and basic A.2 Accelerating GIRE implementation sanitation A.3 Strengthening the capacities of communes as facilities owners, and of their key partners

A.4 Strengthening the system of information and monitoring and evaluation

B. Equitable and sustainable access to B.1 Strengthening drinking water supply systems in the urban and peri-urban sectors drinking water in the urban and peri- urban sectors B.2 Improving access to water for disadvantaged sections of the urban and peri-urban populations, especially women and woman-headed households, through low-cost connections

B.3 Safeguarding electricity during the production and distribution of water

C.1 Boosting the PHA approach as a priority in all departments, excepting cities with special status

Proportion of the population using C. Equitable and sustainable access to C.2 Creating and implementing commune-level hygiene and sanitation plans (excepting communes with special improved sanitation infrastructures basic sanitation status)

Effective implementation of these interventions would require the removal, or mitigation, of bottlenecks. A detailed analysis of these follows in Chapter 3.

66 67 III. ANALYSIS OF BOTTLENECKS

Photo: Elsie Assogba - UNDP Benin Successive governments in Benin have given 3.1 EQUITABLE AND particular attention to water and sanitation, as is clear from all the policies created or implemented SUSTAINABLE ACCESS TO that were presented in the previous chapters. Access to drinking water and basic sanitation has, DRINKING WATER IN THE in effect, been one of the major, ongoing priorities RURAL SECTOR for the State of Benin ever since the creation of the growth for poverty reduction strategy (SCRP) documentation. The priority accorded to the A.1 Increasing the number of water sector has been a significant spur to mobilizing points, especially in departments with financial resources among technical and limited levels of access (Zou: 57 percent; financial partners (TFPs). A mechanism has been Atlantique: 58.8 percent; Donga: 60.2 implemented for funding and dialogue between percent). This will involve targeting dif- the State and the TFPs. Its purpose is to evaluate ficult hydrogeological areas and redu- progress in terms of the SCRP programme targets. cing disparities between communities, This mechanism has allowed the sector to attract as well as maintaining achievements in targeted budget support from the TFPs on the regions that are already well supplied. basis of past performance. As such, there is a strong possibility of improving women’s access to water: 77 Notwithstanding these provisions, the outcomes percent for women compared with 75.3 fall short of MDGs, as discussed in Chapter 1. percent for men (policy/planning) Bottlenecks are affecting policies, planning, budgeting, funding, service provision and Removing this bottleneck in areas where there service use. These bottlenecks effectively is a significant shortage of groundwater would prevent implementation of the interventions lead to a rapid increase in levels of access. This chosen to accelerate achievement of MDG 7C. would result from the creation of water points The bottlenecks in question are associated in villages or settlements with fewer than 200 with specific interventions. They have been the inhabitants, located in the following areas: in the subject of an in-depth analysis thathas enabled northern parts of the departments of Atlantique them to be ranked in order of importance. and Ouémé; in the region of Lake Ahémé; in Mono-Nord; in the south of the department Once bottlenecks were identified and classified, of Zou; and in the department of Donga. The they were then ranked according to their increase in levels of access to drinking water will significance. The latter was based on the lead to an improvement in the living conditions following factors: the delay being caused to of populations. the respective intervention and, consequently to MDG 7C; the existence of solutions meaning Three bottlenecks have been identified that are that the bottleneck could be resolved; and the seriously hindering the implementation of this feasibility of implementing such solutions. intervention.

69 A.1.1 Limited use of technologies adapted to commute between their departments and the to difficult hydrogeological areas and large- Ministry of the Economy and Finance in Cotonou scale facilities for mobilizing surface waters in order to compensate for the operational for multiple purposes. This is a problem during failure of d-SIGFiP. These journeys are expensive the activation of policies and strategiesand and inefficient, given the queue apparent at during planning and implementation of SIGFiP level. If d-SIGFiP were operational at all sector programmes. times, there would be an improvement in the absorption capacity. It would also speed up the contracting process for building water facilities Removing this bottleneck would result in a rapid to benefit populations. increase in levels of access due to the creation of water points in areas with significant shortages of groundwater. As a result, there would be Furthermore, budgets are governed by the improvements to the living conditions and medium-term expenditure frameworks. These health of the populations in those areas. cap the volume of internal and external resources from the general State budget. Capping results in a need for arbitration between sectors at It should be noted that most of the interventions MERPMEDER level. These processes frequently do not include difficult hydrogeological areas prevent the full application of resources acquired in their field of operations. This is in order to externally. The implementation procedure for avoid being responsible for dry boreholes. It is a these resources, which derive from intervention practice that contributes to increasing disparities funds, is slow: on average, five months. As such, in access to drinking water. the utilization of credit is seriously delayed.

A.1.2 Poor functioning or breakdown in the In terms of internal resources, the procedures for departmental Integrated Public Finance making credit available are largely dependent Management System (d-SIGFiP): difficulties on the State Treasury, which is frequently in in recording undertakings using the d-SIGFiP, difficulty. This is clear from the various budget frequent journeys to Cotonou on the part of cuts, i.e., reductions in internal resources voted actors in the expenditure trail to record or through during the financial year and imposed validate transactions in SIGFiP (policy and after the relevant budgets have been adopted. finance) The result of these cuts is that there is a freeze on new undertakings or that lenders demand The limited capacity to absorb credits is just the settlement of accounts. It is a budget one consequence of the poor functioning and management practice that destabilizes SMEs failures in d-SIGFiP (i.e.,SIGFiP at departmental in the sector. They are often unable to continue level). These include difficulties in recording with building work on open water points. All of undertakings and the frequent journeys to these factors have a negative effect on access to Cotonou on the part of actors in the expenditure drinking water for populations. trail in order to enter or validate data in SIGFiP. In reality, d-SIGFiP is neither functional nor accessible all the time. It does not allow accountancy staff to produce effective records of activities using the system. In general, accountancy staff are obliged

70 A.1.3 Lack of coordination and leadership in A.2.1 Delays in establishing instruments the sector (lack of validation by the sector for GIRE implementation:Water Mana- authority and/or State) causing uneven gement and Administration Blueprint geographical distribution of funding (policy/ (SDAGE);Water Management and Adminis- planning) tration Scheme(SAGE);National Action Plan for Integrated Water Resource Management (PANGIRE); and early-warning systems (poli- This lack of leadership is apparent from the cy/planning) physical distribution of drinking water provision. The challenge is to organize DG-Eau and its decentralized structures so that they offer better Benin became fully committed to GIRE in 1998. supervision for all the interventions in the field. However, consolidating this approach is taking This will reduce the current disparities in levels a very long time, despite the adoption by the of access. As part of its governance role, DG- Government of the national water policy in July Eau should coordinate the interventions of 2009. Now that the legislative framework is in 22 third-party organizations more effectively in place, it is appropriate to deploy the arsenal of favour of areas with a shortage of water points. legal and financial instruments that have been in This should result in a balanced distribution development since 2005. It should be noted that of responses to the needs of populations. This DG-Eau is wholly lacking in the necessary capacity bottleneck was recognized by the Water and to conduct the reforms underpinning this law Sanitation Sector Group (GSEA). The group has with any speed. Removing this bottleneck would briefed DG-Eau on the idea of an objective-based result in better planning for water resources and programme budget for the water sector. In the would guarantee sustainable access to water for last five years, other stakeholders have made populations. efforts to collect information relating to the facilities being built to supply drinking water to Governance of water should be made efficient the rural sector. Nevertheless, it is clear that the for the satisfaction of all users. Special attention interventions initiated by communes, as a result should be given to the needs and realities of of decentralized aid, and by NGOs remain few access to water for women in general and for and far between. This undermines the sector, as women heads of households in particular. does the duplication of efforts in neighbouring areas regardless of sector programming. A.2.2 Limited technical capacity of the Improving coordination is vital in order to reduce principal actors: central and decentralized inefficiencies and decrease disparities in access State, communes, private sector, civil society to drinking water. and civil society organizations (CSO).

A.2 Accelerating GIRE implementation Successful and effective implementation of GIRE requires capacity-strengthening for the actors.Any other course of action would have In order to achieve greater efficiency in a seriously negative effect on the expected implementing integrated water resource impact of implementing this intervention. management (GIRE), the priority bottlenecks for removal are as follows.

22. Law No 244-2010 of 24/11/2010 on the management of water in the Republic of Benin

71 The lack of capacity on the part of actors has technical services or by commune officials. been the subject of recommendations in the reviews of programme-budget execution in Furthermore, communes have taken the water and sanitation sector over the last responsibility for the financial contributions to four years. These findings appear in the reports the initial investment on behalf of beneficiaries. accompanying those reviews from the Ministry This constitutes the most important instance of of Health, as the ministry responsible for water, progress but has not yet been consolidated. In and the TFPs. effect, some communes are not able to mobilize this financial contribution in time. This delays the implementation of water facilities that would A.3 Strengthening the capacities of benefit populations. It should be remembered communes as facilities owners, and of that this contribution was revised downwards their key partners and now totals 100,000 CFA francs per equivalent water point. The priority bottlenecks for this intervention are as follows. Here, it must be said that the communes’ contribution to the initial investment does not A.3.1 Delay in transferring competence/ appear to have produced the expected effect. resources to communes (service provision) It was supposed to constitute an element in the communes’ ownership and management of The communes are not yet entirely responsible equipment in order to encourage sustainability for creating water facilities. Nevertheless, there of water services. Had it not been for the is an apparent delay in implementing credit implementation of rehabilitation programmes transferred to communes as part of a pilot project. funded by the Government and by technical and This delay is currently preventing the creation of financial partners, numerous water facility works water facilities and therefore hindering access to would have been abandoned. This would have water for populations. Removing this bottleneck led to an increase in the breakdown figures and a would contribute to accelerating the creation of reduction in the levels of service. facilities and, as such, improving access to water.

A.3.3 Lack of professionalism in managing A.3.2 Limited technical capacity of communes complex facilities (service provision) to assume their responsibilities as facilities owners, and to implement sector reforms at The shortage of qualified personnel in the local level, including social intermediation communes has a negative impact on the structure monitoring and monitoring of technical and financial monitoring of leased infrastructure creation (service provision) facilities.

The transfer of social intermediation to It should be noted that the current mechanism for communes is currently a reality in all the delegating water management in Benin presents communes of Benin. Nevertheless, the technical a number of problems. Specifically, these are: services of civic administrations lack personnel • Failure to take control of the process of qualified to ensure effective monitoring. Efforts selecting a lessee are needed in terms of monitoring the services of social intermediation structures, either by

72 • Lack of consensus over the basis for calculating MERPEDMER and the TFPs. The document refers royalties to the review of the water and sanitation sector • Poor management of lessees’ contracts on the of the 2009 and 2010 administrative cycles. It part of civic administrations should be taken into account in order to improve results-based management. The latter requires With regard to leasing older village water supply data that are coherent and reliable for use at facilities, the process is taking longer than decision-making level. expected because of the reluctance of certain communities. The main reason given is that they At urban and peri-urban levels, the monitoring had already paid the beneficiaries’ contribution and evaluation information system experiences when the facilities were created. the same difficulties as in the rural sector. In effect, the regional structures of SONEB do not It will be necessary to remove these bottlenecks have the necessary human resources for running in order to enable the delegated operators to services responsible for the management and improve their provision. This will lead to rural use of statistical data. Although SONEB is a populations having increased access to drinking state-run business, the environment in which it water services. operates obliges it to limit its wage costs.

A.4 Strengthening the system of infor- A.4.2 Non-application of the operational mation and monitoring and evaluation provisions of the Monitoring and Evaluation System document for the water sector in the A.4.1 Limited technical capacities in rural context. The document was approved in monitoring and evaluation plans on the part 2008 (policy and planning) of the main actors: central and decentralized State, communes, private sector, civil society The application of these provisions should and civil society organizations (service contribute to the lasting implementation of provision) results-based management. Ownership of budget reform through the programme budget In the rural sector, the difficulties highlighted is a reality. Nevertheless, the indicators of the concern the capacities of the principal actors. The outcomes, effects and impacts have not been monitoring and evaluation model suffers from the designed to allow effective monitoring and lack of qualified staff. It is necessary to strengthen evaluation. In this respect, the aide-memoire capacities in managing statistics and outcomes. of the Government-TFP review of July 2011 In effect, the statistical data are supplied to the particularly regrets the lack of information central level by the decentralized water services. regarding progress relating to Objective 2 of The section in charge of managing these data at the objective-based programme budget. The central level is usually run by a single operative. objective in question was intended to guarantee It must be stressed that, in accordance with the the availability of water in the quality and personnel structure, this section, i.e., the IT and quantity required to meet all needs within a GIRE Monitoring and Evaluation Department, should framework. This could compromise the extent to be run by at least two operatives. The situation which objectives are met, especially MDG 7C. is similar at commune level. This finding appears in a joint aide-memoire of the Ministry of Health,

73 A.4.3 Lack of a gateway between sector B.1.1 Delays in the procurement process statistics and those of the National Institute leading to limited use of credits: restrictive for Statistics and Economic Analysis (INSAE) procedures (policy and planning) SONEB, in its capacity as a public entity of an There is an almost total lack of consultation industrial and commercial nature, is governed between INSAE and the water sector bodies. by general administrative provisions relating The situation gives rise to a two-fold perception to procurement. However, SONEB is also a in the method of evaluating achievement of company constituted under the laws of OHADA, MDG 7C. This is because INSAE uses access the Organization for the Harmonization of to drinking water as an indicator, while the Business Law in Africa. Given this status, it should water sector ministry uses figures relating to be exempt. The typical procurement process the level of drinking water supply in the rural, is characterized by unusually long delays of urban and peri-urban sectors. In any event, it between 8 and 17 months. Interventions for is vital that these two parties harmonize their benefit of populations cannot be executed methodological approaches, if only in regard to during those delays. water potability criteria. This bottleneck could be removed in line with standard legal provisions of OHADA. It would 3.2. EQUITABLE AND be at the initiative of MERPMEDER and with subsequent approval by the Council of Ministers. SUSTAINABLE ACCESS TO The outcome of awarding OHADA status would accelerate successful strengthening of drinking DRINKING WATER IN THE water provision in the urban sector in order to URBAN AND PERI-URBAN provide better access to services for populations. SECTORS B.2 Improving access to water for disadvantaged sections of the urban and There are various types of bottleneck that require peri-urban populations, especially wo- particular attention in order to ensure the men and woman-headed households, effective implementation of the interventions through low-cost connections selected in the area of drinking water provision in the urban and peri-urban sectors. B.2.1 Lack of flexibility in payment connection costs, e.g., methods of paying by instalment B.1 Strengthening drinking water supply systems in the urban and peri- urban sectors In practice, joining the SONEB water distribution network is subject to a one-off payment of connection fees. These are generally beyond This important intervention is often the reach of urban households on low incomes. hindered by bottlenecks thatcan be This constitutes a barrier to access to water for summarized as follows. such households. They are therefore obliged to buy water from vendors at excessive prices. To remedy this, it is necessary to consider

74 establishing a specific means of spreading the self-funding capacity of SONEB for operations costs of connection. This would make joining to compact and/or extend the network in order the water network a possibility for those to meet the additional demand created by the households currently bypassed by the system. urban dynamic. As such, access to drinking water in the urban sector would be improved. Any integrated policy or strategy must include these peripheral areas. The obvious disparities It is therefore necessary to remove this in terms of access should be reduced as far as bottleneck by making methods of payment possible. more flexible. This will increase the number of consumers as significant numbers of low- B.3 Safeguarding electricity during the income households connect. production and distribution of water

B.2.2 Lack of specific measures intended to This intervention will only be effective if the reduce the costs of connection for populations following priority bottlenecks are removed or in the Priority Actions Programme (PAP) and/ mitigated. or Public Investment Programme (PIP) (policy and finance) B.3.1 Lack of policy and planning for the specific safeguarding of electricity during the production In general, new measures in MERPMEDER and distribution of water (policy and planning) programme budgets do not include new measures aimed at reducing connection costs The frequency and, unfortunately, predictabili- for populations. Consequently, SONEB is unable tyof power cuts are the reasons for prioritizing a to implement such initiatives without the solution to this bottleneck. support of technical and financial partners. B.3.2 Non-availability of appropriate appara- B.2.3 Lack of an overall policy on regular tus: photovoltaic systems, turbines, etc. provision to peripheral areas and agglomerations of cities (policy and planning) Generators are usually imported and are not available through the network of local operators. This obliges SONEB to order them from A proportion of the population of cities is international suppliers. Delivery takes an average supplied by network customers selling on their of six months. water. According to SONEB estimates, around 60 percent of the peri-urban population does not yet have access to drinking water. This phenomenon B.3.3 Lack of specific funding to cover costs is particularly apparent in Cotonou. There, entire associated with safeguarding districts with thousands of inhabitants do not have access to drinking water supply networks. SONEB should have taken overall responsibility for The district of Agla is an example of this. Among financial matters associated with safeguarding. the reasons for this are delays in dividing land into However, pressure on the company’s financial plots for building purposes and, consequently, resources makes that difficult. the opening of routes through which water pipework can pass. Another reason is the limited

75 3.3 EQUITABLE AND In effect, the new decree abolishesthe Directorate for Hygiene and Basic Sanitation SUSTAINABLE ACCESS TO (DHAB), conferring all its powers on the DNSP. For this purpose, two services will be created: BASIC SANITATION the Drinking Water Quality and Basic Sanitation Service (SQEAB), and the Public Hygiene It will be necessary to remove a number of Promotion Service (SPHP). The problem is that, at priority bottlenecks in order to achieve smooth departmental level, the logical consequence of implementation of the interventions chosen the reform is the abolition of the basic hygiene to increase the proportion of the Beninese and sanitation services (SHAB). In their place, population with access to improved sanitation departmental public health services (SDSP) have facilities. been created. However, the SHABs were essential elements in the national strategy of conducting C.1 Boosting the PHA approach as a basic hygiene and sanitation activities. There priority in the departments with the was debate within the Ministry of Health itself greatest need: Atacora, Donga and Col- on the importance of hygiene and sanitation to lines the nature of its interventions. Proposals were submitted to it for the purpose of maintaining This action forms the cornerstone of behaviour the visibility of departmental services in hygiene change. At the same time, it enables improved and basic sanitation. One option appears to be access to sewage processing facilities. unanimously acceptable. It involves creating focus units within the departmental health Among the bottlenecks identified for effective directorates (DDS). These units would be implementation of this intervention, the responsible for coordinating hygiene and basic following have been prioritized: sanitation services. This formula allows such units legally to hold powers and budget lines, and a C.1.1 Risk of a lack of visibility for hygiene and certain autonomy, as part of their organization. sanitation activities as a result of the reforms As with all changes, this reform causes some underway in the Ministry of Health (policy concerns thatmay, or may not, be justified. Only and planning) time candispel those concerns.

At the start of 2012, there was a major C.1.2 Failure to exercise prerogatives on the institutional reform in the Ministry of Health for part of communes in the implementation of the purpose of improving its performance. This hygiene and sanitation promotion (policy and reform brought the mandate for hygiene and planning) basic sanitation under the responsibility of the National Directorate of Public Health (DNSP). According to the current definition, hygiene The reform was enshrined by the new decree and sanitation promotion (PHA) is an approach on the powers, organization and functioning of designed to be implemented by DHAB and the the Ministry of Health. As a consequence, the decentralized bodies of the Ministry of Health, situation represents a temporary bottleneck along with the communes in their capacity of a duration that is currently unpredictable. as facilities owners, and with local elected This bottleneck is positioned at political and representatives. The roles and tasks of actors institutional level.

76 directly involved in the process are clearly stated However, the same could not be said of the in the document of July 2006 entitled Document decision makers when it came to allocating de Mise en Œuvre de la Promotion de l’Hygiène the necessary resources to communes and et de l’Assainissement (Implementing Hygiene decentralized services. and Sanitation Promotion). In effect, the share of the national budget Although it received a great deal of support from allocated to the hygiene and sanitation the majority of stakeholders in this subsector, subsector has continued to shrink year on year this process was never implemented in line with since 2008, falling by 64 percent in three years. the provisions of the 2006 documentation, for The proportion of the Ministry of Health budget the following reasons: (a) The way in which PHA assigned to hygiene and basic sanitation in is implemented excludes the real institutional 2010 represented no more than 1.5 percent, as actors within the framework of projects and compared with 2008 and 2009, when it totalled programmes, i.e., the communes which own 4.27 percent and 2.24 percent, respectively. the facilities for hygiene and sanitation. The capacity of the communes to manage the Clearly, the State put a great deal of work into process remains very inadequate. (b) PHA has creating SHABs in almost all departments, all not been formalized as a national intervention health districts and all communes. Nevertheless, strategy for the subsector in the rural context. It concensus is still required regarding the huge has therefore been applied in different ways by efforts needed to ensure that the decentralized projects and programmes since 2006. (c) A full and devolved services function normally. This PHA implementation cycle lasts 18 months. This is necessary in order for them to fulfil their new has proved extremely difficult to follow for the roles within the decentralization framework, agents responsible for implementing it. including advice-support and monitoring of compliance with regulations. Questions remain to be resolved regarding the technical, financial and personnel-related Indeed, the objective-based programme budget conditions to be met so that the communes, for hygiene and basic sanitation does not take as leading actors, can implement PHA. Making sufficient account of the following activities a national reference document available will carried out other actors: social intermediation, facilitate matters. The process of reviewing the promoting hygiene and basic sanitation, PHA document already underway will enable building sanitation facilities and strengthening this process. This is also an opportunity to reduce capacities. Furthermore, the proportion of the the PHA implementation cycle to a more realistic Ministry of Health budget allocated to hygiene timeframe for agents appointed by, and under and sanitation is a long way from reaching the supervision of, the communes. the 8 percent recommended by the AfricaSan Conference in Durban in 2008. C.1.3 Limited budget allocations and complicated procedures for releasing credit Within the framework of transferring resources to SHABs and transferring resources to to communes, 24 communes received support communes (budget and finance) in 2008; 31 in 2009; and 23 in 2010. The total amounts transferred were 200 million, 300 The 2009-2018 national health development million and 308 million CFA francs, respectively. plan prioritized hygiene and basic sanitation.

77 However, these amounts are considered wholly number of functions. These include, notably, insufficient when compared with the needs of creating commune-based hygiene and sanitation decentralized communities. In effect, the average plans and implementing PHA with communes budget required to implement a commune- as clients. Some NGOs and consultancies have, based hygiene and sanitation plan is 1.5 billion. in the past, demonstrated their capabilities in successfully carrying out such tasks. However, C.1.4 Limited capacity for monitoring and their overall number remains rather limited. This evaluation on the part of the National bottleneck must be removed if there is to be Directorate of Public Health (DNSP) (service any possibility of stepping up PHA or extending provision) the implementation of commune-based programmes for hygiene and sanitation. Despite a four-year trial period, the monitoring and evaluation system for the sanitation C.2 Creating and implementing com- sector has never functioned in the way that mune-level hygiene and sanitation is necessary for achieving MDG 7C. This is plans, excepting communes with special especially true in relation to the objective-based status programme budgets (OPB) tool at all levels: central, decentralized and commune levels. Among the bottlenecks identified for successful Consequently, the whole process of planning, implementation of this intervention, the programming, budgeting and monitoring for the following two have been prioritized. directorates for hygiene and sanitation has to be reviewed. This is an essential condition for making C.2.1 Limited capacity of communes to create budget decisions clearer and more transparent effective strategies for resource mobilization while respecting the fundamental OPB principle able to support implementation of the in use. It is also a means of ensuring equity in the commune-level hygiene and sanitation plans coverage of basic sanitation facilities in order to (service provision) meet needs. It is true that the resources transferred to In short, it is necessary to remember that it is communes for the implementation of hygiene essential to improve the statistical data relating and sanitation activities are limited. However, it to the hygiene and basic sanitation sector in must be said that the resources that communes order to adapt the planning, programming, themselves are able to mobilize for their own budgeting and monitoring process to needs leadership are also limited. There is an almost total and realities. absence of advocacy and marketing to the State and TFPs in order to promote the aforementioned C.1.5 Limited capacity of the private sector, plans and guarantee their funding. The process and of civil society and NGOs to participate of twinning, while it exists here and there, is very in implementing hygiene and sanitation rarely used for the benefit of initiatives in the promotion (PHA) (service provision) hygiene and sanitation subsector.

The public-private partnership for developing Removing this bottleneck would enable the sanitation subsector is of great strategic strengthening of the role of communes and, as importance. However, it must be said that the a consequence, better ownership of hygiene and private sector lacks the capacity to carry out a basic sanitation.

78 C.2.2 Limited capacity for facilities ownership on the part of communes

The issue is one of giving civic administrations the capacity to satisfactorily take ownership of matters relating to hygiene and sanitation.

Yet, it should be said that this ideal is some way from being achieved. This is due to the limited capacities of communes to put the powers granted to them in operation, and to implement quality assurance when they delegate. This clearly raises the issue of human resources in sufficient quality and number. However, there is also the issue of how such human resources should be structured within communes and/or shared within an intercommunal operating framework.

79 TABLE 7. SUMMARY OF BOTTLENECKS SPECIFIC TO SELECTED INTERVENTIONS

MDG indicator Area of intervention Priority interventions Priority bottlenecks Bottleneck type

Proportion of the A. Equitable and A.1 Increasing the number of water points, especially A.1.1 Limited use of technologies adapted to difficult hydrogeological areas and large-scale Policy and planning population with access to sustainable access to in departments with limited levels of access (Zou: 57 facilities for mobilizing surface waters for multiple purposes. This is a problem during the drinking water drinking water in the percent; Atlantique: 58.8 percent; Donga: 60.2 percent). activation of policies and strategies and during planning and implementation of sector rural sector This will involve targeting difficult hydrogeological areas programmes. and reducing disparities between communities, as well as maintaining achievements in regions that are already well A.1.2 Poor functioning or breakdown in d-SIGFiP: difficulties in recording undertakings using Budgeting and funding supplied.As such, there is a strong possibility of improving the d-SIGFiP, frequent journeys to Cotonou on the part of actors in the expenditure trail to women’s access to water: 77 percent for women compared record or validate transactions in SIGFiP. with 75.3 percent for men. A.1.3 Lack of coordination and leadership in the sector (lack of validation by the sector Policy and planning authority and/or State) causing uneven geographical distribution of funding.

A.2. Accelerating GIRE implementation A.2.1 Delay in instituting instruments for GIRE implementation: SDAGE, SAGE, PANGIRE and Policy and planning early warning systems

A.2.2 Limited technical capacity of the principal actors: central and decentralized State, Service provision communes, private sector, civil society and CSO

A.3 Strengthening the capacities of communes as facilities A.3.1 Delay in transferring competence/resources to communes Service provision owners, and of their key partners A.3.2 Limited technical capacity of communes to assume their responsibilities as facilities Service provision owners, and to implement sector reforms at local level, including social intermediation structure monitoring and monitoring of infrastructure creation.

A.3.3 Lack of professionalism in managing complex facilities Service provision A.4.1 Limited technical capacities in monitoring and evaluation plans on the part of the Proportion of the A.4 Strengthening the system of information and Budgeting and funding main actors: central and decentralized State, communes, private sector, civil society and population with access to monitoring and evaluation civil society organizations. drinking water A.4.2 Non-application of the operational provisions of the Monitoring and Evaluation System Policy and funding document for the water sector in the rural context. The document was approved in 2008.

A.4.3 Lack of a gateway for exchanging sector statistics with those of INSAE Policy and planning

B. Equitable and B.1 Strengthening drinking water supply systems in the B.1.1 Delays in the procurement process leading to limited use of credits: restrictive procedures Budgeting and funding sustainable access to urban and peri-urban sectors drinking water in the urban and peri-urban B.2 Improving access to water for disadvantaged sections B.2.1 Lack of flexibility in payment for connection costs, e.g., methods of paying by Service provision sectors of the urban and peri-urban populations, especially instalment women and woman-headed households, through low-cost connections B.2.2 Lack of specific measures intended to reduce the costs of connection for populations Budgeting and funding in the PAP and/or PIP

B.2.3 Lack of an overall policy on regular provision to peripheral areas and agglomerations Policy and planning of cities

B.3 Safeguarding electricity during the production and B.3.1 Lack of policy and planning for the specific safeguarding of electricity during the Service provision distribution of water production and distribution of water

B.3.2 Lack of appropriate apparatus and equipment in Benin: service provision, solar power Service provision systems, turbine, etc.

B.3.3 Lack of specific funding to cover costs associated with safeguarding Budgeting and funding

80 81 MDG indicator Area of intervention Priority interventions Priority bottlenecks Bottleneck type

Proportion of population C. Equitable and C.1 Boosting the PHA approach as a priority in all C.1.1 Risk of a lack of visibility for hygiene and sanitation activities as a result of the reforms Policy and planning using improved sanitation sustainable access to departments, excepting cities with special status underway in the Ministry of Health facilities basic sanitation C.1.2 Failure to exercise prerogatives on the part of communes in the implementation of PHA Policy and planning

C.1.3 Limited budgetary allocations and complicated procedures for releasing credit to SHABs Budget and funding and transferring resources to communes.

C.1.4 Limited capacity for monitoring and evaluation on the part of the National Directorate of Service provision Public Health (DNSP)

C.1.5 Limited capacity of the private sector, and of civil society and NGOs to participate in Service provision implementing PHA

C.2 Creating and implementing commune-level hygiene C.2.1 Insufficient financial and human resources to cover needs in creating commune-based Budget and funding and sanitation plans, excepting communes with special hygiene and sanitation plans, as expressed by the communes, and to provide monitoring and Service provision status coordination for the SHABs and DHABs.

C.2.2 Limited capacity of communes to create effective strategies for resource mobilization able Service provision to support implementation of the commune-level hygiene and sanitation plans.

C.2.3 Limited capacity for facilities management on the part of communes Service provision Budget and funding

82 83 IV. ACCELERATING PROGRESS TOWARDS MDG 7C PRIORITY SOLUTIONS

Photo: Elsie Assogba - UNDP Benin In order to accelerate progress towards achieving A.1.1 Limited use of technologies adapted MDG 7C, it is necessary to implement a number to difficult hydrogeological areas and large- of solutions that have proved effective at local scale facilities for mobilizing surface waters level. Rolling out these solutions more widely will for multiple purposes. This is a problem du- make it possible to increase the speed at which ring the activation of policies and strategies this goal is achieved. These solutions correspond and during planning and implementation of to measures for removing or mitigating the sector programmes. bottlenecks targeted as priorities. Solutions have, in effect, been prioritized for each of these A.1.1.1 Conducting building work for water bottlenecks. This is the result of a multi-criteria facilities through delegated project contracting analysis based especially on the impact on the (using existing executive agencies) in order to bottleneck in question. Criteria included scope, accelerate the use of adapted technologies speed and sustainability, as well as technical and financial feasibility, and the implementation capacities of the bodies responsible. The lessons learned from certain programmes provide a reference for this solution. These In line with these principles, some 20 solutions programmes include: the WAEMU Regional were finally selected. Existing strategy Economic Programme (PER, Programme documents and national plans were taken into Économique Régional) for village water works account. Implementation of all these solutions is 2007-2009 that constructed 300 boreholes; intended for the short or medium term. and the emergency phase of the Japan-UNDP Atacora Donga Project 2009-2011 that produced 20 village water supplies, 150 new boreholes and 100 borehole rehabilitations. The advantage 4.1 EQUITABLE AND of delegated project contracting (MOD, SUSTAINABLE ACCESS TO maîtrised’ouvragedéléguée) is that it leads to a considerable reduction in delays in contracting DRINKING WATER IN THE and in conducting studies and building work. All other matters being equal, this time-saving RURAL SECTOR will allow for swift implementation of water facilities and their activation for the benefit of A.1 Increasing the number of water the target populations. These populations, in points, especially in departments with turn, will have access more rapidly. limited levels of access (Zou: 57 percent; Atlantique: 58.8 percent; Donga: 60.2 A.1.1.2 Creating high-output boreholes, with percent). This will involve targeting dif- adapted technologies, in the departments of ficult hydrogeological areas and redu- Zou, Atlantique and Donga, as well as in other cing disparities between communities, departments as well as maintaining achievements in regions that are already wellsupplied. Exercises in prospecting and creating high- As such, there is a strong possibility of output boreholes in these departments will improving women’s access to water: 77 make it possible to supply complex multi-village percent for women compared with 75.3 systems to serve areas lacking in groundwater. percent for men.

85 As such, regions that have groundwater disparities are taken in account when facilities resources will be able to share them with regions are established, but they are not addressed that lack them. These high-output boreholes systematically. This idea behind this solution is, will also be available for use by SONEB in semi- in future, to prioritize those areas situated within urban peripheral areas. It will be necessary to communes that have good levels of access. create a significant number of high-output Realizing that there was a need to reverse boreholes, five at least, in those departments the trend,DG-Eau, with the support of TFPs, facing difficulties in accessing resources. adopted the commune-based programming Making these high-output boreholes available approach. This has been in use since the 2009 will be an interim measure to guarantee the administrative cycle. water production necessary for supplying the channelling systems to be built in difficult This approach requires the creation of an hydrogeological areas. inventory of water facilities at commune level. This is followed by a participatory process with A.1.1.3 Improving the management framework local authorities and communities leading for projects by establishing a water executive to group endorsement of the outcomes. The agency to be responsible for both urban and process occurs at village level particularly, rural building works and also at district and commune levels, with the commune council. On the basis of the Drawing on the best practices identified through aforementioned inventory, areas are prioritized the interventions associated with the WAEMU for drinking water provision. The commune PER project to build 400 boreholes, and with the is presented with a commune-based water Japan-UNDP emergency phase Atacora-Donga programming document (PC-Eau). project, it would appear desirable to create a water executive agency. This would benefit This solution is intended to consolidate from management capabilities, enabling it to achievements in terms of access to water points accelerate water facilities by taking charge of in the rural sector. delegated works. A.1.1.5 Managing and rehabilitating facilities While waiting for the desired agency to be that are out of order created, which will naturally take time, existing agencies can be used to assist, as currently The need to create this solution is connected happens. with the fact that DG-Eau stepped down its efforts in terms of water facility rehabilitation A.1.1.4 Creating facilities in areas with low between 2007 and 2012. The programming levels of access process makes it possible to have a much more accurate idea of the state of the facilities Areas with limited access to drinking water thanks to inventories conducted at commune- actually exist within communes where the level. Nevertheless, funding for the project to overall access level is close to the national rehabilitate and maintain water facilities ceased average of 69.3 percent for the rural sector. As in 2010. The result has been a notable increase such, this solution aims to rectify inequalities in breakdowns. This became apparent during through the systematic targeting of such areas. the water and sanitation sector review of the Within the general practices of the sector, these 2011 administrative cycle, which tooktook

86 place on 17, 18 and 19 April 2012 in Cotonou. facilities. This solution would enable the system The findings were recorded in the relevant joint to provide a continuous service for recording MS-MERPMEDER-TFP aide-memoire. undertakings in the water subsector.

Within the MDG acceleration framework, More specifically, it is a question of having scheduling and budgeting for campaigns expenditure associated with drinking water to rehabilitate water facilities is intended to provision protected by the appropriate MEF improve the access of rural populations to water bodies. This refers particularly to studies, points. The aim is to stabilize the breakdown inspections and building works for boreholes, rate to a residual level of 2 percent. village pipework and other related facilities. This measure aims to ensure that DG-Eau credit For implementation purposes, commune- managers have constant access to SIGFiP and based water management plans (PC-Eau) d-SIGFiP. This will guarantee data entry and will be used. These require the proactive validation of undertakings relating to contracts cooperation of the commune with DG-Eau, for creating drinking water facilities. Recording through the decentralized water services. That water credits in the system will therefore be will be the guarantee of operational success. At possible within the deadlines. the moment, the communes, i.e., the facilities owners, are seriously limited in terms of The process was launched during the 2012 mobilizing financial resources. administrative cycle. At that time, such expenditure was declared a matter of priority. A.1.2 Poor functioning or breakdown in d- As such, the outcomes in terms of financial SIGFiP: difficulties in recording undertakings performance enabled 63 percent of credit use using the d-SIGFiP, frequent journeys to on the basis of commitments as ofthe end of Cotonou on the part of actors in the expen- June 2012. diture trail to record or validate transactions in SIGFiP. A.1.3 Lack of coordination and leadership in the sector (lack of validation by the sector A.1.2.1 Making expenditure associated with authority and/or State) causing uneven geo- drinking water provision available as a matter graphical distribution of funding of priority in d-SIGFiP (raising expenditure associated with drinking water provision to the A.1.3.1 Ensuring respect for the commune- level of protected budget line) based management of water facilities by other stakeholders: other ministerial departments, In the light of the analysis of the bottleneck international and national NGOs, etc. relating to the limited capacity to absorb credit, as well as the operational difficulties This provision aims to ensure better supervision observed with regard to d-SIGFiP, this solution for interventions that are widely dispersed will allow the effective safeguarding of priority across the country. These perpetuate disparities expenditure commitments associated with in access to water points. The interventions will drinking water provision in the rural sector. The occur in line with commune-based schedules effectiveness of this provision would contribute organized around the prioritization of areas to the successful implementation of contracts with limited access. for studies and building works involving water

87 A.2 Accelerating GIRE implementation is considerable diversity among the NGOs that operate in the water and associated ecosystems A.2.1 Delay in instituting instruments for sector. As such, it is necessary to commission GIRE implementation: SDAGE, SAGE, PAN- a study to identify representative civil society GIRE and early warning systems organizations that should have a presence on the National Water Board (CNE). A.2.1.1 Developing and applying management instruments and mechanisms (SUCCESS The CNE provides the backbone of integrated software of DG-Eau, commune management water resource management (GIRE) for water software) and establishing the corresponding governance. The board will enable establishment bodies of consultative water management within the framework of a shared vision. This will help The inventory on the availability of water to avoid conflict and encourage sustainable resources shows that Benin has significant development. The effectiveness of the GIRE supplies. If these are mobilized with the help of instruments should enable scalability of appropriate and well-managed systems, and in pilot activities to the benefit of proper water line with laws and regulations, it will be possible governance. to satisfy long-term water needs. The needs in question include: drinking water supply, A.2.2 Limited technical capacity of the prin- irrigation, hydroelectric production, industry, cipal actors: central and decentralized State, navigation, sport and leisure, etc. All of this will communes, private sector, civil society and contribute to the socio-economic development CSO of the country. A.2.2.1 Ensuring capacity-strengthening of In reality, despite promulgation of Law No. 2010- personnel in the sector with regard to GIRE 44 of 24 November 2010 on the management of water in the Republic of Benin, it is taking time to As with all reforms, GIRE needs supporting implement the legal and financial instruments. measures, especially in the form of training This concerns the following instruments in for the staff responsible for putting it into particular: (a) PANGIRE, approved in February operation. This strengthening of the technical 2011 and in the process of being adopted and managerial capacities of actors is intended by the Council of Ministers; (b) SDAGE of the to strengthen the effectiveness of GIRE. department of Ouémé, the diagnostic report was approved in December 2011 and creation of the blueprint is now underway; (c) National Water Fund, a feasibility study has been prepared by the Government; (d) implementation of flood warning and prediction systems in the basins; and (e) the National Water Board (CNE) being put into operation, its Decree No. 2011- 574 of 31 August 2011 is in force, althoughthe Board has not yet launched its activities. There

88 A.3 Strengthening the capacities of A.3.2 Limited technical capacity of com- communes as facilities owners, and of munes to assume their responsibilities as their key partners facilities owners, and to implement sector reforms at local level, including social inter- A.3.1 Delay in transferring competence/re- mediation structure monitoring, monitoring sources to communes of infrastructure creation.

A.3.1.1 Promoting intercommunal cooperation A.3.2.1 Implementing a programme to for the sharing of means and responsibilities strengthen the capacities of the principal ac- (application decrees of the law on tors, i.e., the State and communes, in support of intercommunal relations) and decentralized decentralization in the water sector. cooperation The evaluation of the professionalization of 23 The modalities of intercommunal cooperation water facilities management emphasizes were the subject of Law No. 2009-17 of 13 the need to strengthen the capacities of August 2009. This kind of cooperation presents a communes in terms of technical and financial certain opportunity for commune development. oversight of contracts entered into with private Unfortunately, the communes themselves have operators, i.e., lessees and agents. The purpose made little use of it. Intercommunal cooperation of this strengthening is to create a transparent is, in effect, a development instrument enabling and efficient climate for business between communes to create one or more public civic authorities and private operators. This intercommunal cooperation establishments requires respect for contractual terms and a (EPCI), with the necessary legal status and reconsideration of the approach to setting financial autonomy. These EPCI will allow the royalties to be paid to civic authorities. communes to support development projects Obviously, private operators will also be and drinking water provision by sharing their included in this strengthening of organizational means and resources, which are fairly limited by capacity, planning and management. All of this themselves. This will benefit the intercommunal will certainly result in improved water services space and strengthen the role of communes as for the populations. facilities owners. Developing intercommunal cooperation provides the necessary boost for The central and decentralized actors will increasing populations’ access to drinking water. also benefit from the strengthening of the It will certainly reduce the harmful effects of the managerial capacity of DG-Eau and of the obvious delays in transferring competences and decentralized services. resources.

23. Water and Sanitation Programme (PEA, Programme Eau et Assainissement) 2011

89 A.3.3 Lack of professionalism in managing A.4.2 Non-application of the operational complex facilities provisions of the Monitoring and Evaluation System document for the water sector in the A.3.3.1 Implementing support for the strengthe- rural context. The document was approved in ning of technical and financial capacities of 2008. communes and of other actors A.4.2.1 Scheduling mini-reviews at departmen- In line with the findings from the evaluation of tal level among decentralized services, civic the professionalization of the management of authorities and other sector stakeholders complex facilities, there is an urgent need to support the new contracting authorities. This This approach would contribute to is required for technical training and financial strengthening supervision of scattered monitoring in order to allow sustainable interventions and to increasing information management of facilities. This strengthening provided by communes through the will enable the boosting or promoting of decentralized water services. It would involve effective technical and financial monitoring on widespread implementation of the ‘water the part of the communes. and sanitation consultation spaces’ that have been established and are operating in certain A.4 Strengthening the system of infor- departments. This approach represents an mation, and of monitoring and evalua- exchange framework for actors at departmental tion and commune levels. This provision would facilitate an increase in up-to-date information A.4.1 Limited technical capacities in supplied by the communes to DG-Eau through monitoring and evaluation plans on the part the decentralized services, as well as the highly of the main actors: central and decentralized desirable presentation of accounts. State, communes, private sector, civil society and civil society organizations A.4.3 Lack of a gateway for exchanging Strengthening the system of information, and sector statistics with those of INSAE of monitoring and evaluation requires the following solutions. A.4.3.1 Implementing a consultation framework for INSAE-Water and Sanitation A.4.1.1 Prioritizing the resources allocated to monitoring and evaluation of interventions Producing official statistics is one of the functions of INSAE. In this case, it is important The objective is to ensure that the budget to encourage constructive dialogue between includes resources destined to support DG-Eau and DHAB. The purpose of this is to information-gathering activities, along with foster shared understanding of the theoretical monitoring and evaluation, and to make them and conceptual approaches that underpin the matters of priority. In general, these budget lines strategic indicators. The latter include rates of are frequently the target of cuts implemented access (INSAE) and the drinking water provision during the administrative cycle. Prioritizing (DG-Eau). The preliminary discussions held these resources would guarantee the execution during the MAF consultations should be taken of the annual work plan relating to monitoring into account. and evaluation.

90 4.2. EQUITABLE AND B.1.1.3 Extending and compacting the distribution networks and increasing the SUSTAINABLE ACCESS TO capacity of water production equipment DRINKING WATER IN THE B.2 Improving access to water for disad- URBAN AND PERI-URBAN vantaged sections of the urban and peri-urban populations, especially wo- SECTORS men and woman-headed households, through low-cost connections B.1 Strengthening drinking water supply systems in the urban and peri-urban B.2.1 Lack of flexibility in payment for sectors connection costs, e.g., methods of paying by instalment B.1.1 Delays in the procurement process leading to limited use of credits: restrictive B.2.1.1 Introducing flexibility in payment procedures methods for connection costs through the implementation of cost spreading B.1.1.1 Creating a special unit equipped with a point person in the Directorate of Capital This involves introducing modular options Expenditure (DDC, Direction des Dépenses en in the conditions of access to a connection. It Capital), compare the experience of the Multi- requires application of the provisions of the year Support Programme for the Water and 2006-2015 strategy for drinking water provision Sanitation Sector (PPEA) in the rural sector. The strategy recommends the following measures in particular: • Social connections for households Given the long delays in awarding contracts at considered disadvantaged, funded from the SONEB level, the measures implemented as part public purse and/or through consultation of the PPEA should be reproduced. A special with development partners - a financial unit should be created with a point person in contribution will always be requested from the DDC specifically and exclusively responsible the beneficiaries, the modalities for this for looking after SONEB files. remain to be established; in this context, access criteria will be established for social B.1.1.2 Authorizing the alignment of SONEB connections with the Uniform Acts of OHADA for greater • Paid for connections for other categories of speed in the procurement process. household, with payment options, in line with the most flexible modalities to be defined: The idea is to apply for and obtain from the modular payment over time, part of the costs Government special authorization for SONEB reflected in the bills for consumption, etc. allowing it to bypass the usual procurement • Extensions to supply populations close to process. This solution wouldconsiderably existing networks (private connections, reduce the delays that have occurred thus far. standpipes) in areas not covered by water distribution networks

91 This measure has a significant impact on access B.3 Safeguarding electricity during the to water points for disadvantaged groups. production and distribution of water

B.2.2 Lack of specific measures intended B.3.1 Lack of policy and planning for the to reduce the costs of connection for specific safeguarding of electricity during populations in the PAP and/or PIP the production and distribution of water

B.2.2.1 Managing services to disadvantaged B.3.1.1 Creating and implementing a strategic sections of society for priority expenditure plan for safeguarding electricity (decree, executive decision) Given the urgency and extreme importance of It will be necessary to negotiate this measure the intervention, it would be useful to provide with MEF in order to create theDirectorate for SONEB with a strategic plan for the short and Management and Forecasting(DPP, Direction medium terms. The plan should remove the de la Programmation et de la Prospective), negative external effect of power outages and with MERPMEDER. The purpose will be on the continuous provision of service to subsequently to increase this budget line in the populations. This plan will be included in the PIP programme of SONEB, given the financial strategy document initiated by MERPMEDER pressures that the aforesaid company is facing. regarding quick-impact actions on citizens.

B.2.3 Lack of an overall policy on regular B.3.1.2 Incorporating 3 billion CFA francs provision to peripheral areas and into the 2013 PIP for the acquisition of six agglomerations of cities electricity generators within the framework of safeguarding electricity. Functioning and B.2.3.1 Putting a specific global policy into maintenance costs will be covered by SONEB. operation in the peripheral areas and peri- urban agglomerations through strengthening Given the financial pressures on SONEB, and the synergy between DG-Eau and SONEB need for the ongoing State support, MERPMEDER must make a case to MEF for the inclusion of SONEB should intensify, and indeed consolidate, special resources in the 2013 budget. These the current practice of including the periphery of would be for the acquisition of the proposed principal and secondary cities during localized electricity generators. Alternatively, credit could operations for compacting or extending easily be obtained during the distribution of drinking water distributions networks. resources intended to support implementation of the SCRP3, given its consistency with the PAP.

92 B.3.2 Non-availability of appropriate It has been in existence for two years and is apparatus: photovoltaic systems, turbines, etc. intended to strengthen rural electrification in Benin. Once FN-Eau has been established, B.3.2.1 Promoting alternative energy apparatus SONEB will then be able to receive support This is a case of supporting relevant providers through subsidies for operations to compact by giving them tax incentives or customs or extend the network. This will facilitate exemptions. The aim is to reduce the delays in an increase in access to drinking water for acquisition that have occurred in the past. populations.

B.3.3 Lack of specific funding to cover costs The functions of FN-Eau include supporting associated with safeguarding development of the water sector. The fund will therefore be able to supply cash injections B.3.3.1 Giving financial support to SONEB to for the benefit of SONEB. The money would balance its accounts be used for the extending/compacting operations on the network. This will facilitate This involves encouraging the State to access to drinking water for urban and peri- implement exceptional support measures urban households. This represents a new type for SONEB, especially for dealing with the of funding for SONEB. It would be created by debt associated with running generators: the various taxes and contributions that water maintenance, upkeep, etc. While not subsidies resource users would have to pay to FN-Eau. in the usual sense, such support could still be effective in the form of measures aimed at clearing public administration debts in relation 4.3 EQUITABLE AND to SONEB. As such, the financial pressures on SONEB will be resolved and the organization SUSTAINABLE ACCESS TO will be able to balance its accounts. BASIC SANITATION B.3.3.2 Using matching funds from the National Water Fund (FN-Eau) in development: C.1 Boosting the PHA approach as a implementing a flat-rate contribution for priority in all departments, excepting developing drinking water provision cities with special status

Creation of FN-Eau is envisaged as part of the C.1.1 Risk of a lack of visibility for hygiene provisions of Law 2010-44 on the management and sanitation activities as a result of the of water in the Republic of Benin. Income for reforms underway in the Ministry of Health the national fund will be partly generated by activities related to drinking water provision. C.1.1.1 Maintaining close monitoring of the This will require the implementation of a implementation of the reform to safeguard and contribution to the development of drinking improve achievements water provision activities. This could be supplied by consumers, in line with the This requires a vigorous search for alternative ‘user pays’ provision. There is an analogous solutions to preserve the limited autonomy that tax in force in relation to electricity charges. departments concerned with hygiene and basic sanitation still have.

93 More specifically, it will be necessary to ensure C.1.2.1 Reproducing and disseminating the that the specific budget lines in the departments new document on PHA implementation and the for hygiene and basic sanitation are maintained, national strategy document and indeed strengthened, and that the credit allocated to hygiene and sanitation activities is Given that the PHA implementation document used exclusively for the purpose for which it was and the national strategy will be revised, all that intended. is required is producing copies and organizing training workshops on their use throughout the C.1.2 Failure to exercise prerogatives on the country. part of communes in the implementation of hygiene and sanitation promotion C.1.2.3 Allocating a subsidy to accelerate the construction of family latrines and C.1.2.1 Revising the PHA implementation administering that subsidy within the document and creating a national strategy to framework of implementing PHA ensure the effectiveness of the role of communes in this implementation The new national sanitation policy envisages the possibility of granting a subsidy for The PHA implementation document is family latrines in specific circumstances. It undergoing revision. Positioning the communes particularly targets the most deprived sections at the heart of the PHA implementation model of the population, as well as those located in will ensure the effective exercise of the powers areas that are naturally unsuited to the latest transferred to them by the decentralization technological solutions. The PHA, as a national regulations. This will allow a better coverage strategy undergoing revision, must be aligned of the needs of disadvantaged communities. with this approach. It should include subsidies It should implement better governance in for family latrines, taking into account the the subsector at local level. Currently, the specific circumstances cited. only functioning water and sanitation sector coordination mechanisms are those at central C.1.2.4 Implementing the PHA in ordinary level, particularly through the water and communes sanitation sector group and sector reviews. Furthermore, a weakness is apparent in the This refers to all communes except those with consultation frameworks at local, departmental special status. The latter are subject to a specific and commune levels. The other important strategy to promote hygiene and sanitation as outcome expected from the PHA review process the contexts are different. Indeed, according to is that of providing the subsector with a shared national statistics, levels of access are very high, national strategy for all actors and stakeholders. over 80 percent, in the communes with special Finally, this will be an opportunity to re- status. As such, the attempt to create equity in examine various principles, such as that of not access to basic sanitation services is the reason subsidizing family latrines, in order to accelerate for this solution. construction. This will also make it possible to integrate the approach of community-driven total sanitation (ATPC)24 into PHA in order to unify the two approaches.

24. The PHA approach under review includes ATCP.

94 C.1.3 Limited budget allocations and TFPs are not yet using this mechanism or are complicated procedures for releasing credit not using it sufficiently. Implementing this to SHABs and transferring resources to measure is also in line with applying the Paris communes Declaration. It will involve identifying positive experiences and sharing them through a good C.1.3.1 Strengthening advocacy with the communications strategy, with the objective of MS, MEF, DPP and PTF for an increase in the building confidence among all the partners. subsector budget C.1.3.3 Revising procedures and training agents This measure should enable the MS to allocate in the new procedures resources to the basic hygiene and sanitation subsector in proportion to its level of priority in It is considered necessary to run courses to the national health development plan (PNDS). update actors once the new procedures are The aim is successfully to reverse the trend adopted. through the 2013 budget. There is also the option of making an increase C.1.4 Limited capacity for monitoring and in resources for basic hygiene and sanitation a evaluation on the part of the National condition for the release of funds from the TFPs. Directorate of Public Health (DNSP) This could be explored for funding interventions by the MS as national counterpart in funding C.1.4.1 Implementing an improved monitoring projects. and evaluation system adapted to the context of decentralization An increase in budget allocations results in the strengthening of the intervention capacity of In effect, the availability of regularly updated communes. This in turn strengthens communes data will allow for better planning of PHA in their role as facilities owners. Similarly, it programmes. There will be greater equity in the strengthens the intervention capacity of the choice of beneficiary locations. This measure basic hygiene and sanitation services (SHAB) in is in line with the recommendations issued supporting communes, i.e., advice-support to for the formulation of Phase II of the PPEA. communes. Nevertheless, actors at commune level are few and have a heavy burden of work. This measure Effective PHA implementation contributes must be accompanied by an improvement in to behaviour change in terms of hygiene. It their collaboration with hygiene workers in also increases the level of coverage of basic health centres. sanitation facilities. This measure will make it possible to accelerate C.1.3.2 Strengthening the implementation the mobilization of operators for PHA mechanism for the Support Funds for the implementation. This is a quick-impact measure. Economic Development of Communes (FADeC)

This measure is dependent on the immediately preceding one. The FADeC is the national mechanism created to enable the transfer of financial resources to communes. Several

95 C.1.5 Limited capacity of the private sector, C.2.1.2 Training commune-based actors in and of civil society and NGOs to participate fundingmechanisms and in the twinning in implementing PHA process

C.1.5.2 Further training for actors already This measure is justified by the limited nature trained in PHA and extending training to actors of the resources that the communes are able to in areas that have not benefited from the PHA mobilize by themselves for the implementation approach, through a system of training for of their hygiene and sanitation plans. trainers Rectifying this situation should involve (a) A greater level of competence from the training and advocacy activities, as well as private sector and NGOs will favour effective marketing to the State and, especially, the service delivery to the communes, as well as TFPs and (b) training activities in funding a quicker deployment of PHA and its proven mechanisms, the twinning process, etc. effects. Indirectly, this measure will strengthen consultation and, as such, lead to a lowering C.2.2 Limited capacity of communes for in costs and an improvement in the quality of facilities management service. As such, PHA is a source of job creation for Benin. C.2.2.1 Publicizing and disseminating tools including objective-based programme budgets, The system of ‘trickle down’ training for guides to presenting accounts, and guides to trainers should guarantee the sustainability facilities management for communes, as well of skills in the sector, especially thanks to the as supporting implementation of presenting availability of CVs to the Training Centre for accounts in all the communes Water-related Professions (CFME, Centre de Formation pour les Métiers de l’Eau). However, The existence of practical tools encourages it will be necessary to ensure that commune- commune-based actors to find solutions to based agents remain in post. This issue needs their problems. Various initiatives of this type to be dealt with a policy level. are underway at sector level. This is one of the beacon activities in the decentralization C.2 Creation and implementation of process. commune-level hygiene and sanitation plans(excepting communes with special Communes have already benefited from status) numerous guides produced by the Directorate for Hygiene and Basic Sanitation and the basic C.2.1 Limited capacity of communes to create hygiene and sanitation services, including effective strategies for resource mobilization communal hygiene and sanitation plans and able to support implementation of the tender-type documents. It will be a case of commune-level hygiene and sanitation plans assessing their use and, if necessary, rethinking their presentation and adapting them to the C.2.1.1 Training commune-based actors in targets, as well as to the actual users and their advocacy level of skill and literacy, along with their method of use. Training for actors is necessary.

96 C.2.2.2 Extending and intensifying the training process in various tools for commune-based actors

Better use of project management tools on the part of commune-based actors should improve their capacity to act. As with all capacity building activities, the effect is not immediately apparent. It is necessary to wait at least a year before obtaining the first results.

The guide to commune hygiene and sanitation plans (PHAC) was distributed throughout the country in 2010. A multisector team was involved: health, town planning, environment, etc.

The suggested solution will enable strengthening of the role of communes. This will result in better monitoring of services: consultancies, companies, etc. A better sense of ownership of basic hygiene and sanitation should follow, as well as the emergence of professional sanitation activities. This local expertise offered by local providers represents a source of support adapted to the subsector.

C.2.2.3 Activating the plan developed in 2011 to transfer powers to communes

A plan to transfer resources to communes was created by the National Directorate for Public Health (DNSP). Its implementation covers the period 2012-2017. This plan sets out a series of activities to be conducted in order to bring communes to an acceptable level of performance in terms of commune-based facilities management in the area of basic hygiene and sanitation.

This plan is sequential and subdivided into phases. It sets out the critical levels that communes must reach, with clear indicators for commencing each subsequent stage.

97 TABLE 8. SUMMARY OF SOLUTIONS FOR ACCELERATING PROGRESS FOR ACHIEVING MDG 7C

MDG indicator Area of intervention Priority interventions Priority bottlenecks Accelerating solutions Partners in implementation

Proportion of the A. Equitable and A.1 Increasing the number of water points, especially A.1.1 Limited use of technologies adapted A.1.1.1 Conducting building work for MERPMEDER, MDAEP, population with access to sustainable access to in departments with limited levels of access (Zou: 57 to difficult hydrogeological areas and water facilities through delegated project MEF, AGETUR, Urban drinking water drinking water in the percent; Atlantique: 58.8 percent; Donga: 60.2 percent. large-scale facilities for mobilizing surface contracting (using existing executive agencies) Developments rural sector This will involve targeting difficult hydrogeological areas waters for multiple purposes. This is a to accelerate the use of adapted technologies Executive Agency and reducing disparities between communities, as well problem during the activation of policies (AGETIP), WAEMU, as maintaining achievements in regions that are already and strategies and during planning and A.1.1.2 Creating high-output boreholes in Japan International wellsupplied.As such, there is a strong possibility of implementation of sector programmes. the departments of Zou, Atlantique and Cooperation Agency improving women’s access to water: 77 percent for women Donga, as well as in other departments (JICA), Social compared with 75.3 percent for men. Development Fund (FSD, Fonds social de développement), A.1.1.3 Improving the management European Union (EU) framework for projects by establishing a water executive agency to be responsible for urban and rural building works

A.1.1.4 Creating facilities in areas with low levels of access

A.1.1.5 Managing and rehabilitating facilities that are out of order

A.1.2 Poor functioning or breakdown A.1.2.1 Making expenditure associated in d-SIGFiP: difficulties in recording with drinking water provision available undertakings using the d-SIGFiP, frequent as a matter of priority in d-SIGFiP (raising journeys to Cotonou on the part of actors expenditure associated with drinking water in the expenditure trail to record or validate provision to the level of protected budget transactions in SIGFiP. line)

Netherlands, Deutsche A.1.3 Lack of coordination and leadership in A.1.3.1 Ensuring respect for the commune- Departmental GesellschaftfürInternationaleZusammenarbeit (GIZ) the sector (lack of validation by the sector based management of water facilities Directorate for Energy, authority and/or State) causing inequity by other stakeholders: other ministerial Oil and Mining geographical distribution of funding. departments, international and national Research, Water and NGOs, etc. Renewable Energies (DDERMEDER), communes, water services

A.2 Accelerating GIRE implementation A.2.1 Delay in instituting instruments A.2.1.1 Developing and applying Netherlands, Deutsche for GIRE implementation: SDAGE, SAGE, management instruments and mechanisms GesellschaftfürInterna- PANGIRE and early warning systems (SUCCESS software of DG-Eau, commune tionaleZusammenarbeit management software) and establishing the (GIZ) corresponding bodies

A.2.2 Limited technical capacity of the A.2.2.1 Ensuring capacity strengthening of Netherlands, GIZ principal actors: central and decentralized personnel in the sector with regard to GIRE State, communes, private sector, civil society and CSO

98 99 MDG indicator Area of intervention Priority interventions Priority bottlenecks Accelerating solutions Partners in implementation

Proportion of the A.3 Strengthening the capacities of communes as facilities A.3.1 Delay in transferring competence/ A.3.1.1 Promoting intercommunal Ministry of population with access to owners, and of their key partners resources to communes cooperation for the sharing of means and Decentralization, Local drinking water responsibilities (taking the application Governance, Territorial decrees of the law on intercommunal Administration relations) and decentralized cooperation and Management (MDGLAAT), National Association of Communes ofBenin (ANCB)

A.3.2 Limited technical capacity of A.3.2.1 Implementing a programme to PEA, MDGLAAT, MDAEP, communes to assume their responsibilities strengthen the capacities of the principal MEF, communes as facilities owners, and to implement actors, i.e., the State and communes, in sector reforms at local level, including social support of decentralization in the water intermediation structure monitoring and sector monitoring of infrastructure creation

A.3.3 Lack of professionalism in managing A.3.3.1 Implementing support for the Idem complex facilities strengthening of technical and financial capacities of communes and of other actors

A.4 Strengthening the system of information and A.4.1 Limited technical capacities in A.4.1.1 Prioritizing the resources DG-Eau monitoring and evaluation monitoring and evaluation plans on the part allocated to monitoring and evaluation of of the main actors: central and decentralized interventions State, communes, private sector, civil society and civil society organizations

A.4.2 Non-application of the operational A.4.2.1 Scheduling mini-reviews at MERPMEDER, PTF provisions of the Monitoring and Evaluation departmental level among decentralized System document for the water sector in the services, civic authorities and other sector rural context. The document was approved stakeholders in 2008.

A.4.3 Lack of a gateway for exchanging A.4.3.1 Implementing a consultation MERPMEDER, MDAEP, sector statistics with those of INSAE framework for INSAE-Water and Sanitation MS, INSAE, TFP

Proportion of the B. Equitable and B.1 Strengthening drinking water supply systems in the B.1.1 Delays in the procurement process B.1.1.1 Creating a special unit equipped MERPMEDER, MEF, population with access to sustainable access to urban and peri-urban sectors leading to limited use of credits: restrictive with a point person in the Directorate of MDAEP, Office of the drinking water drinking water in the procedures Capital Expenditure (DDC), compare the Presidency urban and peri-urban experience of the PPEA sectors B.1.1.2 Authorizing the alignment of SONEB with the Uniform Acts of OHADA for greater speed in the procurement process

B.1.1.3 Extending and compacting the distribution networks and increasing the capacity of water production equipment

100 101 MDG indicator Area of intervention Priority interventions Priority bottlenecks Accelerating solutions Partners in implementation

B.2 Improving access to water for disadvantaged sections B.2.1 Lack of flexibility in payment for B.2.1.1 Introducing flexibility in payment SONEB, KfW of the urban and peri-urban populations, especially connection costs, e.g., methods of paying by methods for connection costs through the Development Bank, women and woman-headed households, through low-cost instalment implementation of cost spreading Netherlands, other TFP, connections DG-Eau

B.2.2 Lack of specific measures intended B.2.2.1 Managing services to this section SONEB, MDAEP, MEF, to reduce the costs of connection for of society for priority expenditure (decree, MERPMEDER populations in the PAP and/or PIP executive decision)

B.2.3 Lack of an overall policy on regular B.2.3.1 Putting a specific global policy SONEB, DG-Eau provision to peripheral areas and into operation in the peripheral areas agglomerations of cities and peri-urban agglomerations through strengthening synergy between DG-Eau and SONEB

B.3 Safeguarding electricity during the production and B.3.1 Lack of policy and planning for the B.3.1.1 Creating and implementing a MERPMEDER, MEF distribution of water specific safeguarding of electricity during the strategic plan for safeguarding electricity production and distribution of water

B.3.1.2 Incorporating 3 billion CFA francs into the PIP 2013 for the acquisition of six electricity generators within the framework of safeguarding electricity. Functioning costs and maintenance will be covered by SONEB.

B.3 Safeguarding electricity during the production and B.3.2 Non-availability of appropriate B.3.2.1 Promoting alternative energy apparatus MERPMEDER, MEF distribution of water apparatus: photovoltaic systems, turbines, etc.

B.3.3 Lack of specific funding to cover costs B.3.3.1 Giving financial support to SONEB to SONEB, MERPMEDER associated with safeguarding balance its accounts

B.3.3.2 Using matching funds from the MERPMEDER, MEF National Water Fund (FN-Eau), in development: implementing a flat-rate contribution for developing drinking water provision

Proportion of the C. Equitable and C.1 Boosting the PHA approach as a priority in all C.1.1 Risk of a lack of visibility for hygiene and C.1.1.1 Maintaining close monitoring of the MS, MDAEP population with access to sustainable access to departments, excepting cities with special status sanitation activities as a result of the reforms implementation of the reform to safeguard drinking water basic sanitation underway in the Ministry of Health and improve achievements

C.1.2 Failure to exercise prerogatives on the C.1.2.1 Revising the PHA implementation DNSP/MS, MDGLAAT, part of communes in the implementation of document and creating a national strategy TFP, consultancies, hygiene and sanitation promotion (PHA) to ensure the effectiveness of the role of ANCB, NGOs, TFP communes in this implementation

C.1.2.1 Reproducing and disseminating the new document on PHA implementation and the national strategy document

C.1.2.3 Allocating a subsidy to accelerate DNSP/MS the construction of family latrines and administering that subsidy within the framework of PHA implementation

C.1.2.4 Implementing the PHA in ordinary Communes, DNSP/MS, communes MDGLAAT, TFP

102 103 MDG indicator Area of intervention Priority interventions Priority bottlenecks Accelerating solutions Partners in implementation

Proportion of population C.1 Boosting the PHA approach in the rural sector, as a C.1.3 Limited budget allocations and C.1.3.1 Strengthening advocacy with the MS/DNSP, ANCB using improved sanitation priority in all departments, excepting communes with complicated procedures for releasing credit MS, MEF, DPP and PTF for an increase in the facilities special status to SHABs and transferring resources to subsector budget communes C.1.3.2 Strengthening the implementation MEF, MDGLAAT, MDAEP mechanism for the Support Funds for the Economic Development of Communes (FADeC)

C.1.3.3 Revising procedures and training MEF, MDGLAAT, MDAEP agents in the new procedures

C.1.4 Limited capacity for monitoring and C.1.4.1 Implementing an improved MS/DNSP evaluation on the part of the National monitoring and evaluation system adapted Directorate of Public Health (DNSP) to the context of decentralization

C.1.4.2 Training agents to use the system MS/DNSP

C.1.5 Limited capacity of the private sector C.1.5.1 Establishing a database of private DNSP, CePEPE, CFME and of civil society and NGOs to participate in operators at commune and department implementing PHA level as well as central level

C.1.5.2 Further training for actors already DNSP, CePEPE, CFME trained in PHA and extending training to actors in areas that have not benefited from the PHA approach, through a system of training for trainers

C.2 Creating and implementing commune-level hygiene C.2.2 Limited capacity of communes to create C.2.1.1 Training commune-based actors in ANCB, MS/DNSP, and sanitation plans (excepting communes with special effective strategies for resource mobilization advocacy MDGLAAT status) able to support implementation of the commune-level hygiene and sanitation plans C.2.1.2 Training commune-based actors in ANCB, MS/DNSP, funding mechanisms and in the twinning MDGLAAT process

C.2.2 Limited capacity for project C.2.2.1Publicizing and disseminating tools MS/DNSP, MDGLAAT management on the part of communes including objective-based programme budgets, guide to presenting accounts, and guides to acting as contracting agents for communes, as well as supporting implementation of presenting accounts in all the communes

C.2.2.2 Extending and intensifying the MS/DNSP, MDGLAAT training process for various tools for commune-based actors

C.2.2.3 Activating the plan developed in MS/DNSP, ANCB, 2011 to transfer powers to communes communes, SNV, DG-Eau

104 105 V. ACCELERATING MDG 7C ACTION PLAN

Photo: Elsie Assogba - UNDP Benin Putting MAF into operation requires a coherent action plan covering all the critical issues that could compromise achievement of MDG 7C. This chapter is presented within that framework. It deals with the bottlenecks affecting the chosen interventions by means of planned implementation of the solutions prioritized in the previous chapter. The parties responsible for this implementation are also named, along with an estimation of costs for the period 2012-2015. The partnership for mobilizing technical and financial resources has been outlined with a view to creating a national agreement based on mutual responsibility for removing or mitigating bottlenecks.

The action plan, which is the subject of this chapter, includes plans for implementation and monitoring.

The action plan in Table 9 lists the priority bottlenecks and corresponding solutions together with the financial outlay necessary for their implementation. The overall cost totals 185.27 billion CFA francs. Of this total, 88.92 percent constitutes a fund-raising requirement necessary to achieve the goal of full access to drinking water for populations, and of strengthening populations’ use of improved latrines to a rate of 75 percent.

107 TABLEAU 9. Benin action plan

Cost Funds raised Funding gap (in PRIORITY BOTTLENECKS ACCELERATING SOLUTIONS Source of funding (in billions of CFA francs) (in billions of CFA francs) billions of CFA francs)

A.1.1 Limited use of technologies adapted to A.1.1.1 Conducting building work for water facilities through 20,21 20,21 20,21 20,21 difficult hydrogeological areas and large-scale delegated project contracting (using existing executive agencies) facilities for mobilizing surface waters for to accelerate use of adapted technologies multiple purposes. This is a problem during the activation of policies and strategies and A.1.1.2 Creating high-output boreholes in the departments of Zou, 4,00 4,00 4,00 4,00 during planning and implementation of sector Atlantique and Donga, as well as in other departments programmes. A.1.1.3 Improving the management framework for projects by establishing a water executive agency to be responsible for urban 5,00 5,00 5,00 5,00 and rural building works

A.1.1.4 Creating facilities in areas with low levels of access 15,00 15,00 15,00 15,00

A.1.1.5 Managing and rehabilitating facilities that are out of order 3,00 3,00 3,00 3,00

A.1.2 Poor functioning or breakdown A.1.2.1 Making expenditure associated with drinking water 5,00 0,00 BN 5,00 in d-SIGFiP: difficulties in recording provision available as a matter of priority in d-SIGFiP (raising undertakings using the d-SIGFiP, frequent expenditure associated with drinking water provision to the level of journeys to Cotonou on the part of actors protected budget line) in the expenditure trail to record or validate transactions in SIGFiP

A.1.3 Lack of coordination and leadership in A.1.3.1 Ensuring respect for the commune-based management 4,00 0,00 BN, PTF 4,00 the sector (lack of validation by the sector of water facilities by other stakeholders: other ministerial authority and/or State), causing uneven departments, international and national NGOs, etc. geographical distribution of funding

A.2.1 Delay in instituting instruments for GIRE A.2.1.1 Developing and applying management instruments 8,00 1,50 Netherlands 6,50 implementation: SDAGE, SAGE, PANGIRE and and mechanisms (SUCCESS software of DG-Eau, commune early warning systems management software) and establishing the corresponding bodies

A.2.2 Limited technical capacity of the principal A.2.2.1 Ensuring capacity strengthening of personnel in the sector 2,00 0,50 Netherlands 1,50 actors: central and decentralized State, with regard to GIRE communes, private sector, civil society and CSO

A.3.1 Delay in transferring competence/ A.3.1.1 Promoting intercommunal cooperation for the sharing 0,50 0,20 BN, Netherlands 0,30 resources to communes of means and responsibilities (application decrees of the law on intercommunal relations) and decentralized cooperation

A.3.2 Limited technical capacity of communes A.3.2.1 Implementing a programme to strengthen the capacities 3,00 0,80 Netherlands 2,20 to assume their responsibilities as facilities of the principal actors, i.e., the State and communes, in support of owners, and to implement sector reforms at decentralization in the water sector. local level, including social intermediation structure monitoring and monitoring of infrastructure creation

A.3.3 Lack of professionalism in managing A.3.3.1 Implementing support for the strengthening of technical 1,00 0,20 PEA-WB, BN 0,80 complex facilities and financial capacities of communes and of other actors

A.4.1 Limited technical capacities in A.4.1.1 Prioritizing the resources allocated to monitoring and 0,5 0,01 BN, TFP 0,49 monitoring and evaluation plans on the part evaluation of interventions of the main actors: central and decentralized State, communes, private sector, civil society and civil society organizations

108 109 Cost Funds raised Funding gap (in PRIORITY BOTTLENECKS ACCELERATING SOLUTIONS Source of funding (in billions of CFA francs) (in billions of CFA francs) billions of CFA francs)

A.4.2 Non-application of the operational A.4.2.1 Scheduling mini-reviews at departmental level among 0,80 0,02 BN 0,78 provisions of the Monitoring and Evaluation decentralized services, civic authorities and other sector System document for the water sector in the rural stakeholders context. The document was approved in 2008.

A.4.3 Lack of a gateway for exchanging sector A.4.3.1 Implementing a consultation framework for INSAE-Water 0,01 0 BN 0,01 statistics with those of INSAE and Sanitation

Subtotal drinking water in rural sector (A.1-A.4) 72,03 10,83 61,19

B.1.1 Delays in the procurement process B.1.1.1 Creating a special unit equipped with a point person in the leading to limited use of credits: restrictive Directorate of Capital Expenditure (DDC), compare the experience 0,50 0 TFP, BN 0,50 procedures of the PPEA

B.1.1.2 Authorizing the alignment of SONEB with the Uniform Acts 0,50 0 BN 0,50 of OHADA for greater speed in the procurement process

B.1.1.3 Extending and compacting the distribution networks and 56,5 6,6 BN, TFP 49,9 increasing the capacity of water production equipment

B.2.1 Lack of flexibility in payment for B.2.1.1 Introducing flexibility in payment methods for connection 0,50 0,00 0,50 connection costs, e.g., methods of paying by costs through the implementation of cost spreading instalment

B.2.2 Lack of specific measures intended to B.2.2.1 Managing services to disadvantaged sections of society for 26,64 2,00 BN 24,64 reduce the costs of connection for populations priority expenditure (decree, executive decision) in the PAP and/or PIP

B.2.3 Lack of an overall policy on regular B.2.3.1 Putting a specific global policy into operation in the 4,00 0,00 BN 4,00 provision to peripheral areas and peripheral areas and peri-urban agglomerations through agglomerations of cities strengthening synergy between DG-Eau and SONEB

B.3.1 Lack of policy and planning for the B.3.1.1 Creating and implementing a strategic plan for safeguarding 0,02 0,00 BN 0,02 specific safeguarding of electricity during the electricity production and distribution of water B.3.1.2 Incorporating 3 billion CFA francs into the PIP 2013 for the 3,00 1,00 BN 2,00 acquisition of six electricity generators for safeguarding electricity. Functioning costs and maintenance will be covered by SONEB.

B.3.2 Non-availability of appropriate apparatus: B.3.2.1 Promoting alternative energy apparatus 0,50 0,00 BN 0,50 photovoltaic systems, turbines, etc.

B.3.3 Lack of specific funding to cover costs B.3.3.1 Giving financial support to SONEB to balance its accounts 4 0 BN 4 associated with safeguarding

B.3.3.2 Using matching funds from the National Water Fund (FN- 0,8 0 BN 0,8 Eau), in development: implementing a flat-rate contribution for developing drinking water provision

Sous-total eau urbaine (B.1, B.2 et B.3) 96,96 9,6 87,36

C.1.1 Risk of a lack of visibility for hygiene and C.1.1.1 Maintaining close monitoring of the implementation of the sanitation activities as a result of the reforms reform to safeguard and improve achievements 0,001 0,00 0,001 underway in the Ministry of Health

110 111 Cost Funds raised Funding gap (in PRIORITY BOTTLENECKS ACCELERATING SOLUTIONS Source of funding (in billions of CFA francs) (in billions of CFA francs) billions of CFA francs)

C.1.2 Failure to exercise prerogatives on the C.1.2.1 Revising the PHA implementation document and creating 0,07 0,07 PPEA 0,00 part of communes in the implementation of a national strategy to ensure the effectiveness of the role of hygiene and sanitation promotion (PHA) communes in this implementation

C.1.2.1 Reproducing and disseminating the new document on PHA 0,05 0,00 0,05 implementation and the national strategy document

C.1.2.3 Allocating a subsidy to accelerate the construction of family 6,50 0,00 6,50 latrines and administering that subsidy within the framework of PHA implementation

C.1.2.4 Implementing the PHA in ordinary communes 7,00 0,03 PPEA,PHA 6,70

C.1.3 Limited budget allocations and C.1.3.1 Strengthening advocacy with the MS, MEF, DPP and PTF for 0,05 0,00 0,05 complicated procedures for releasing credit an increase in the subsector budget to SHABs and transferring resources to communes. C.1.3.2 Strengthening the implementation mechanism for the Support Funds for the Economic Development of Communes (FADeC) 0,25 0,00 0,25

C.1.3.3 Revising procedures and training agents in the new 0,15 0,00 0,15 procedures

C.1.4 Limited capacity for monitoring and C.1. 4.1 Implementing an improved monitoring and evaluation 0,25 0,00 0,25 evaluation on the part of the National system adapted to the context of decentralization Directorate of Public Health (DNSP) C.1.4.2 Training agents to use the system 0,20 0,00 Netherlands 0,20

C.1.5 Limited capacity of the private sector C.1.5.1 Establishing a database of private operators at commune and 0,008 0,00 0,008 and of civil society and NGOs to participate in department level as well as central level implementing PHA C.1. 5.2 Further training for actors already trained in PHA and 0,30 0,00 0,30 extending training to actors in areas that have not benefited from the PHA approach, through a system of training for trainers

C.2.1 Limited capacity of communes to create C.2.1.1 Training commune-based actors in advocacy 0,05 0,00 0,05 effective strategies for resource mobilization able to support implementation of the commune-level hygiene and sanitation plans C.2.1.2 Training commune-based actors in funding mechanisms 0,05 0,00 0,05 and in the twinning process

C.2.2.1 Publicizing and disseminating tools including objective-based 0,05 0,00 0,05 C.2.2 Limited capacity of communes for programme budgets, guide to presenting accounts, and guides to facilities management acting as contracting agents for communes, as well as supporting implementation of presenting accounts in all the communes

C.2.2.2 Extending and intensifying the training process in various 0,10 0,00 0,10 tools for commune-based actors

C.2.2.3 Activating the plan developed in 2011 to transfer powers to 1,2 0,00 1,2 communes

Subtotal for basic sanitation (C.1 and C.2) 16,28 0,1 16,18

COÛT TOTAL 185,27 20,53 164,74

Source: Reciprocal use PAP 2011-15 and BP 2012, MERMEDER and MS.

112 113 VI. IMPLEMENTATION AND MONITORING PLAN

Photo: Elsie Assogba - UNDP Benin With MAF, achieving MDG 7C is possible. It requires interministerial unit, i.e., MERPMEDER-Ministry of integrated political support, implementation Health-MDAEP-MDGLAAT-MEF, situated within strategies and appropriate mechanisms for the the Ministry responsible for water: MERPMEDER. effective synergy of the actions. At this level, the need to conclude an agreement concerning MAF becomes a determining factor The institutional framework for the monitoring in achieving this goal. and evaluation of MAF implementation will be an

TABLEAU 10. IMPLEMENTATION AND MONITORING PLAN

SOLUTIONS AND ACTIVITIES RESPONSIBLE 2012 2013 2014 2015

A.1.1.1 Conducting building work for water facilities through delegated MERPMEDER project contracting (using existing executive agencies) to accelerate the use of adapted technologies

A.1.1.2 Creating high-output boreholes in the departments of Zou, DG-Eau Atlantique and Donga, as well as other departments

A.1.1.3 Improving the management framework for projects by establishing DG-Eau a water executive agency to be responsible both urban and rural building works

A.1.1.4 Creating facilities in areas with low levels of access DG-Eau

A.1.1.5 Managing and rehabilitating facilities that are out of order DG-Eau

A.1.2.1 Making expenditure associated with drinking water provision DG-Eau available as a matter of priority in d-SIGFiP (raising expenditure associated with drinking water provision to the level of protected budget line)

A.1.3.1 Ensuring respect for the commune-based management of DDERPMEDER water facilities by other stakeholders: other ministerial departments, international and national NGOs, etc.

A.2.1.1 Developing and applying management instruments and DG-Eau mechanisms (SUCCESS software of DG-Eau, commune management software) and establishing the corresponding bodies

A.2.2.1 Ensuring capacity strengthening of personnel in the sector with DG-Eau regard to GIRE

A.3.1.1 Promoting intercommunal cooperation for the sharing of means MDGLAAT and responsibilities (application decrees of the law on intercommunal relations) and decentralized cooperation

A.3.2.1 Implementing a programme to strengthen the capacities DG-Eau of the principal actors, i.e., the State and communes, in support of decentralization in the water sector

A.3.3.1 Implementing support for the strengthening of technical and DG-Eau financial capacities of communes and of other actors

115 SOLUTIONS AND ACTIVITIES RESPONSIBLE 2012 2013 2014 2015

A.4.1.1 Prioritizing the resources allocated to monitoring and evaluation of DG-Eau interventions

A.4.2.1 Scheduling mini-reviews at departmental level among DDERPMEDER decentralized services, civic authorities and other sector stakeholders

A.1.4.1 Providing sufficient qualified personnel for the expenditure trail MERPMEFER

A.1.4.2 Monitoring delays in dealing with paperwork at all levels DG-Eau

A.2.1.1 Developing and applying management instruments and DG-Eau mechanisms (SUCCESS software of DG-Eau, commune management software) and establishing the corresponding bodies

A.2.2.1 Ensuring capacity strengthening of personnel in the sector with DG-Eau regard to GIRE

A.2.3.1 Implementing information, education and communication DG-Eau activities concerning GIRE among communities and users in order to encourage their collaboration

A.3.1.1 Promoting intercommunal cooperation for the sharing of means Communes and responsibilities (application decrees of the law on intercommunal relations) and decentralized cooperation

A.3.2.1 Implementing a programme to strengthen the capacities DG-Eau of the principal actors, i.e., the State and communes, in support of decentralization in the water sector

A.4.1.1 Extending the Water and Sanitation Sector Group to actors not yet DG-Eau registered at that level

A.4.2.1 Scheduling reviews at departmental level among decentralized S Eau services, civic authorities and other sector stakeholders

A.4.3.1 Implementing a consultation framework for INSAE-Water and Sanitation

B.1.1.1 Creating a special unit equipped with a point person in the Directorate MERPMEDER of Capital Expenditure (DDC), compare the experience of the PPEA

B.1.1.2 Authorizing the alignment of SONEB with the Uniform Acts of MEF OHADA for greater speed in the procurement process

B.1.1 Extending and compacting the distribution networks and increasing SONEB the capacity of water production equipment

B.2.1.1 Introducing flexibility in payment methods for connection costs SONEB through the implementation of cost spreading

B.3.1.1 Creating and implementing a strategic plan for safeguarding SONEB electricity

116 SOLUTIONS AND ACTIVITIES RESPONSIBLE 2012 2013 2014 2015

B.2.2.1 Managing services to disadvantaged sections of society for priority DPP/MERPMEDER expenditure (decree, executive decision)

B.2.3.1 Putting a specific global policy into operation in the peripheral SONEB areas and peri-urban agglomerations through strengthening synergy between DG-Eau and SONEB

B.3.1.1 Creating and implementing a strategic plan for safeguarding SONEB electricity

B.3.1.2 Incorporating 3 billion CFA francs into the PIP 2013 for the MERPMEDER acquisition of six electricity generators within the framework of safeguarding electricity. Functioning costs and maintenance will be covered by SONEB.

Promoting alternative energy apparatus MEF

B.3.3.1 Giving financial support to SONEB to balance its accounts

B.3.3.2 Using matching funds from the National Water Fund (FN-Eau), in development: implementing a flat-rate contribution for developing drinking water provision

C.1.1.1 Maintaining close monitoring of the implementation of the reform MS to safeguard and improve achievements

C.1.2.1 Revising the PHA implementation document and creating a DNSP national strategy to ensure the effectiveness of the role of communes in this implementation

C.1.2.1 Reproducing and disseminating the new document on PHA DNSP implementation and the national strategy document

C.1.2.3 Allocating a subsidy to accelerate the construction of family DNSP latrines and administering that subsidy, within the framework of PHA implementation

C.1.2.4 Implementing the PHA in ordinary communes DNSP

C.1.3.1 Strengthening advocacy with the MS, MEF, DPP and PTF for an DNSP increase in the subsector budget

C.1.3.2 Strengthening the implementation mechanism for the Support MS Funds for the Economic Development of Communes (FADeC)

C.1.3.3 Revising procedures and training agents in the new procedures MEF

C.1.4.1 Implementing an improved monitoring and evaluation system MS, MEF adapted to the context of decentralization

C.1.4.2 Training agents to use the system MS, MEF

117 SOLUTIONS AND ACTIVITIES RESPONSIBLE 2012 2013 2014 2015

C.1.5.1 Establishing a database of private operators at commune and DNSP/SHAB, department level as well as central level communes

C.1. 5.2 Further training for actors already trained in PHA and extending DNSP training to actors in areas that have not benefited from the PHA approach, through a system of training for trainers

C.2.1.1 Training commune-based actors in advocacy DNSP, CREPA

C.2.1.2 Training commune-based actors in funding mechanisms and in the DNSP, CePEPE twinning process

C.2.2.1Publicizing and disseminating tools including objective-based DNSP, CePEPE programme budgets, guide to presenting accounts, and guides to acting as contracting agents for communes,as well as supporting implementation of presenting accounts in all the communes

C.2.2.2 Extending and intensifying the training process for various tools for DNSP commune-based actors

C.2.2.3 Activating the plan developed in 2011 to transfer powers to DNSP communes

118 119 INDICATORS FOR MONITORING IMPLEMENTATION OF MAF INTERVENTIONS IN WATER AND SANITATION

Expecting results or Institutional Priority bottlenecks Accelerating solutions Indicators Source of confirmation implementation outputs framework

A.1.1 Limited use of technologies adapted to A.1.1.1 Conducting building work for water facilities through Rate of access (rate of service) Implementation reports of Reduction in disparities of MERPMEDER, difficult hydrogeological areas and large-scale delegated project contracting (using existing executive agencies) interventions access to drinking water in MDAEP, MEF, facilities for mobilizing surface waters for to accelerate the use of adapted technologies the targeted areas AGETUR, AGETIP, multiple purposes. This is a problem during WAEMU, JICA,FSD, the activation of policies and strategies and A.1.1.2 Creating high-output boreholes in the departments of Number of high-output boreholes Implementation report of Greater availability of water EU, UNDP during planning and implementation of sector Zou,Atlantique and Donga, as well as other departments created in targeted areas interventions sources to supply the village programmes. water provision

A.1.1.3 Improving the management framework for projects by Decree on the creation, powers, Feasibility study report Creation and proper establishing a water executive agency to be responsible for both organization and functioning of functioning of the Water urban and rural building works the agency

A.1.1.4 Creating facilities in areas with low levels of access Rate of access in marginalized Implementation report of Works Executive Agency DG-Eau areas intervention

A.1.1.5 Managing and rehabilitating facilities that are out of order Rate of breakdown Water programme budget Better access for populations DG-Eau implementation report in marginalized areas

A.1.2 Poor functioning or breakdown A.1.2.1 Making expenditure associated with drinking water Specific provisions in the letter of Letter of notification of the Ongoing reduction in the MEF, DG-Eau in d-SIGFiP: difficulties in recording provision available as a matter of priority in d-SIGFiP (raising notification of the general State general State budget proportion of water facilities undertakings using the d-SIGFiP, frequent expenditure associated with drinking water provision to the level of budget out of order journeys to Cotonou on the part of actors protected budget line) in the expenditure trail to record or validate transactions in SIGFiP.

A.1.3 Lack of coordination and leadership in A.1.3.1 Ensuring respect for the commune-based management Number of alignment protocols Minutes of supervision Ongoing protection of budget DDERPMEDER, the sector (lack of validation by the sector of water facilities by other stakeholders: other ministerial on the commune-based water meetings held with other actors lines for water communes authority and/or State) causing uneven departments, international and national NGOs, etc. management plans (PC-Eau) Strengthening coordination of geographical distribution of funding signed and implemented interventions in order to reduce disparities in access to water

A.2.1 Delay in instituting instruments for GIRE A.2.1.1 Developing and applying management instruments Number of bodies established Annual report on activities of Water governing bodies MERPMEDER, DG-Eau, implementation: SDAGE, SAGE, PANGIRE and and mechanisms (SUCCESS software of DG-Eau, commune bodies established established and functioning other ministries, early warning systems management software) and establishing the corresponding bodies Netherlands, GIZ

A.2.2 Limited technical capacity of the A.2.2.1 Ensuring capacity strengthening of personnel in the sector Road map for capacity Implementation report on the Human resources involved MERPMEDER, DG-Eau, principal actors: central and decentralized with regard to GIRE strengthening plan for strengthening actors’ in implementing GIRE have other ministries, State, communes, private sector, civil society capacities acquired new knowledge, Netherlands, GIZ and CSO and are better equipped, in relation to GIRE

120 121 Expecting results or Institutional Priority bottlenecks Accelerating solutions Indicators Source of confirmation implementation outputs framework

A.3.1 Delay in transferring competence/ A.3.1.1 Promoting intercommunal cooperation for the sharing Number of public intercommunal Review of legislation on EPCI Sharing synergies among MDGLAAT, ANCB resources to communes of means and responsibilities (application decrees of the law on cooperation establishments (EPCI) creation communes for quick access to PEA, MDGLAAT, intercommunal relations) and decentralized cooperation established drinking water MDAEP, MEF, communes A.3.2 Limited technical capacity of communes A.3.2.1 Implementing a programme to strengthen the capacities Road map for capacity Implementation report on the Human resources in to assume their responsibilities as facilities of the principal actors, i.e., the State and communes, in support of strengthening plan for strengthening actors’ communes are better owners, and to implement sector reforms at decentralization in the water sector. capacities equipped to provide project local level, including social intermediation management structure monitoring and monitoring of infrastructure creation.

A.3.3 Lack of professionalism in managing A.3.3.1 Implementing support for the strengthening of technical Technical assistance put in place Implementation report on Improvements to the technical PEA, MDGLAAT, complex facilities and financial capacities of communes and of other actors for the benefit of communes technical support and financial monitoring MDAEP, MEF, and management structures for situation of leased facilities communes drinking water systems

A.4.1 Limited technical capacities in A.4.1.1 Prioritizing the resources allocated to monitoring and Support measures for actors Implementation report of DG- Cumulative responsiveness DG-Eau monitoring and evaluation plans on the part evaluation of interventions involved in monitoring and Eau programme budgets of actors in the chain of of the main actors: central and decentralized evaluation systems planning, programming, State, communes, private sector, civil society budgeting and monitoring in and civil society organizations. the water sector

A.4.2 Non-application of the operational A.4.2.1 Scheduling mini-reviews at departmental level among Emergency measures to boost Implementation report of DG- Cumulative responsiveness MERPMEDER, PTF provisions of the Monitoring and Evaluation decentralized services, civic authorities and other sector the platform for water services Eau programme budgets of actors in the chain of System document for the water sector in the rural stakeholders and communes planning, programming, context. The document was approved in 2008. budgeting and monitoring in the water sector

A.4.3 Lack of a gateway for exchanging sector A.4.3.1 Implementing a consultation framework for INSAE-Water Act of formalizing a consultation Minutes of the working session Harmonization and MERPMEDER, statistics with those of INSAE and Sanitation framework for INSAE-Water and of the consultation framework standardization of national MDAEP, MS, INSAE, Sanitation indicators for water and TFP sanitation

B.1.1 Delays in the procurement process B.1.1.1 Creating a special unit equipped with a point person in the Administrative act formalizing RCompany forecast and Reduction in delays for MERPMEDER, MEF, leading to limited use of credits: restrictive Directorate of Capital Expenditure (DDC), compare the experience the implementation of the development plan (PPDE) procurement MDAEP, SONEB procedures of the PPEA measure implementation report

B.1.1.2 Authorizing the alignment of SONEB with the Uniform Acts Administrative act formalizing Company forecast and Reduction in delays for of OHADA for greater speed in the procurement process. the implementation of the development plan (PPDE) procurement measure implementation report

B.1.1.3 Extending and compacting the distribution networks and Additional branches in the Company forecast and Inclusion of peri-urban SONEB increasing the capacity of water production equipment network serving targeted development plan (PPDE) populations in the SONEB peripheral urban areas implementation report network

122 123 Expecting results or Institutional Priority bottlenecks Accelerating solutions Indicators Source of confirmation implementation outputs framework B.2.1 Lack of flexibility in payment for B.2.1.1 Introducing flexibility in payment methods for connection Special support measures Implementation report on Inclusion of peri-urban SONEB, KfW, connection costs, e.g., methods of paying by costs through the implementation of cost spreading special support measures populations in the SONEB Netherlands, other instalment network TFP, DG-Eau

B.2.2 Lack of specific measures intended to B.2.2.1 Managing services to the disadvantaged sections of society New measures added to the Implementation report on Disadvantaged urban MERPMEDER, SONEB, reduce the costs of connection for populations for priority expenditure (decree, executive decision) Public Investment Programme special support measures for populations are included in MDAEP, MEF in the PAP and/or PIP. (PIP) for social connections social connections the SONEB network

B.2.3 Lack of an overall policy on regular B.2.3.1 Putting the specific global policy into operation in Joint emergency plan of Implementation report on Peri-urban and semi-urban SONEB, DG-Eau provision to peripheral areas and the peripheral areas and peri-urban agglomerations through DG-Eau/SONEB to supply peri- special support measures for populations have sustainable agglomerations of cities strengthening synergy between DG-Eau and SONEB urban and semi-urban districts social connections access to water

B.3.1 Lack of policy and planning for the B.3.1.1 Creating and implementing a strategic plan for safeguarding Blueprint for safeguarding Company forecast and Blueprint for safeguarding MERPMEDER, MEF specific safeguarding of electricity during the electricity electricity development plan (PPDE) energy is implemented production and distribution of water implementation report and act of endorsement from the Administrative Council

B.3.1.2 Incorporating 3 billion CFA francs into the PIP 2013 for the Allocations included in the MERPMEDER programme SONEB generator system MERPMEDER, MEF, acquisition of six electricity generators within the framework of PIPs for actions to safeguard budget document, drinking receives new acquisitions SONEB safeguarding electricity. Functioning and maintenance costs will be electricity water supply programme and covered by SONEB. water resources management

B.3.2.1 Promoting alternative energy apparatus Incentives to promote Company forecast and Alternative energy apparatus MERPMEDER, MEF B.3.2 Non-availability of appropriate apparatus: marketing channels for development plan (PPDE) available on the ground photovoltaic systems, turbines, etc. alternative energy apparatus implementation report and act of endorsement from the Administrative Council

B.3.3 Lack of specific funding to cover costs B.3.3.1 Giving financial support to SONEB to balance its accounts Support measures for SONEB Company forecast and Special financial support SONEB, MERPMEDER associated with safeguarding development plan (PPDE) packages for safeguarding implementation report and electricity issued to SONEB act of endorsement from the Administrative Council

B.3.3.2 Using matching funds from the National Water Fund (FN- Number of funding requests Company forecast and Financial support packages MERPMEDER, MEF Eau), in development: implementing a flat-rate contribution for lodged with FN-Eau development plan (PPDE) of FN-Eau made available to developing drinking water provision implementation report and SONEB act of endorsement from the Administrative Council

124 125 Expecting results or Institutional Priority bottlenecks Accelerating solutions Indicators Source of confirmation implementation outputs framework C.1.1 Risk of a lack of visibility for hygiene and C.1.1.1 Clarifying the position of hygiene and sanitation in the MS MS, MDAEP sanitation activities as a result of the reforms organizational structure while awaiting revision (underway) of the underway in the Ministry of Health National SanitationPolicy

C.1.2 Failure to exercise prerogatives on the C.1.2.1 Revising the PHA implementation document and creating By 2012, the PHA document Report on the workshop to PHA strategic plan created by DNSP/MS, MDGLAAT, part of communes in the implementation of a national strategy to ensure the effectiveness of the role of has been revised. approve DNSP documents the end of 2012 TFP, consultancies, hygiene and sanitation promotion communes in this implementation. By 2012, the implementation ANCB, NGOs, TFP strategy has been created.

C.1.2.1 Reproducing and disseminating the new document on PHA By the end of 2013, the Periodic reports of the DNSP The strategic plan is implementation and the national strategy document two documents have been distributed by the end of 2013 effectively distributed

C.1.2.3 Allocating a subsidy to accelerate the construction of family By 2012, the subsidy element Strategy document Family latrines are subsidized DNSP/MS latrines and administering that subsidy, within the framework of has been obtained PHA implementation

C.1.2.4 Implementing PHA in ordinary communes From June 2013, PHA is Report on DNSP and commune PHA is implemented from Communes, DNSP/ implemented in those activities June 2013 MS, MDGLAAT, TFP communes

C.1.3.1 Strengthening advocacy with the MS, MEF, DPP and PTF for By the end of 2012, the OPB of the DNSP The subsector budget will DNSP/MS, ANCB an increase in the subsector budget subsector budget will have have increased by 10 percent increased by 20 percent at the end of 2012

C.1.3 Limited budget allocations and C.1.3.2 Strengthening the implementation mechanism for the By the end of 2013, the FADeC Implementation report on the The FADeC implementing MEF, MDGLAAT, complicated procedures for releasing credit Support Funds for the Economic Development of Communes implementing mechanism will OPB of the DNSP and commune mechanism will be more MDAEP to SHABs and transferring resources to (FADeC) be more effective activity reports effective by the end of 2013 communes. C.1.3.3 Revising procedures and training agents in the new By the end of 2012, the Training reports By the end of 2012, the MEF, MDGLAAT, procedures procedures will have been procedures will have been MDAEP revised and agents trained in revisited and agents trained in the procedure the procedure

C.1.4 Limited capacity for monitoring and C.1.4.1 Implementing an improved monitoring and evaluation evaluation on the part of the National system adapted to the context of decentralization Directorate of Public Health (DNSP) C.1.4.2 Training agents to use the system

C.1.5 Limited capacity of the private sector C.1.5.1 Establishing a database of private operators at commune and of civil society and NGOs to participate in and department level as well as central level implementing PHA The concept of a monitoring and evaluation system adapted to the Implementation report of OPB Rendering of accounts DNSP/MS context of decentralization will have been established by the end of the DNSP of 2013

126 127 Expecting results or Institutional Priority bottlenecks Accelerating solutions Indicators Source of confirmation implementation outputs framework

C.2.1 Limited capacity of communes to create Agents trained Training reports Effective monitor/evaluation DNSP/MS effective strategies for resource mobilization system for the sector able to support implementation of the commune-level hygiene and sanitation plans By June 2013, a database will have been established Implementation report of OPB Availability of a reliable DNSP, CePEPE, CFME of the DNSP database on the sector at commune level

C.2.2 Limited capacity of communes for By the end of 2013, agents are trained in PHA, and by 2014 actors DNSP training reports Agents are trained in PHA by the DNSP, CePEPE, CFME facilities management are trained end of 2013

ANCB, MS/DNSP, MDGLAAT MS/DNSP, MDGLAAT

DNSP, CePEPE, CFME MS/DNSP, ANCB, communes, SNV, DG-Eau

DNSP, CePEPE, CFME

128 129 BIBLIOGRAPHY AND INFORMATION SOURCES

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