National sanitation policy for Benin

 72055 Information Note IRegional Water and Sanitation Group West Africa 1 N°3 - October 1994 National Sanitation Policy for Benin Translation of the original French Infonnation Note: "La politique nationale de I'Assainissement au B6lin"". cess to drinking water and adequate sanitation is a necessary condition for good health, for an ac­ A eptable quality oflife, for economic development and for environmental conservation. However, a large segment ofthe population in Benin notably low-income groups in suburban and rural ar­ eas - does not have access to the most basic services. What is even more serious is that the coverage rate in urban sanitation has even decreased over the last few years. The economic, social and eIWironmental con­ sequences are. to say the least. alarming. The previous conception of development of the sanitation sector, based on improving the coverage rate, has arrived at a dead end. It appears that, using this approach, the objective ofaccess to clean drinking water and sanitation for all by the year 2000 is a goal which is out of reach. New approaches must be tried out in order to meet this challenge. The concept ofneed must be replaced by that ofdemandfor services by the population. Environmental constraints such as water resources and qual­ ity management as well as general improvements in Jiving conditions ofthe population can no longer be ig­ nored. Establishing a realistic frame ofreference. based on an in-depth and objective analysis ofthe general situa­ tion and including institutional, finanCial and technical recommendations, represents the necessary starting point for a comprehensive reform ofthe sanitation sector. The national development policy for the sector in Benin constitutes an effective tool for managing services that are sustainable, demand-driven, financially accessible and environmentally sound. Context t became necessary to establish a latrine pits. The environmental action ground water sources and increased I new framework for general policy in the area of sanitation when progres­ sive deterioration of the environment plan has established a set of recommen­ dations for fighting pollution. Insuffi­ transmission of diseases related to the fecal-oral cycle, such as diarrhea, dysen­ cient drainage leads to the fonnation of tery, hookwonn, schistosomiasis and and sanitation conditions became evi­ stagnant pools which can become other parasites. dent In Benin, many examples of pol­ breeding grounds for mosquitoes. Poor The institutions concerned, i.e. the min­ lution, especially in urban areas, are excreta disposal causes pollution of istries responsible for caused by poor man­ sanitation (fJrSt of all, agement of excreta dis­ Access to Drinking Water and Sanitation in Betlin the Ministry of Public posal services, inade­ Health and the Ministry 1980 1988 quate drainage, as well of the Environment, as inadequate disposal of Drinking water in urban areas 26% 66% Housing and UIbaniza­ solid and industrial tion) have limited re­ wastes. In CotorlOu, for Drinking water in rural areas 15% 46% sources and a list of example, the water table rules and regulations is constantly polluted by which is not adapted to Sanitation in urban areas 48% 42% floods, dumping of effectively managing wastes into swamps and the development of this dumping of sludge from Sanitation in rural areas 4% 31 % sub-sector. In addition, Source: World Resources 1992-1993. The World Resources Institute certain departments have overlapping or and economic renewal, based on a pr0c­ creasing attention is being paid to de­ poorly dermed responsibilities. ess of democratization, decentralization veloping the national private sector. However, Benin bas a certain nmnber of and structural adjustment National These elements create a favorable con­ leaders are increasingly concerned about text for progressive and sustainable im­ advantages which allow us to be opti­ mistic about the development of sanita­ the deterioration of man services avail­ provements in sanitation, health and the tion, in both rural and urban situations: able to the population and its impact on living conditions of the population of In recent years, the country has been the environment and the quality of life, Benin. applying a policy of structural reform in particular for low-income groups. In- Principles of the National Sanitation Policy a community participation in fmane­ support and the supplying of serv­ T he sanitation policy must be seen within the context of the decen­ ing installations, and in their opera­ ices; tralization of responsibilities and tion and maintenance; a reinforcing the skills and capacities collaboration between public and private a developing the skills of local arti­ of the various agencies involved in agencies and users. Communities must sans and entrepreneurs; order to allow them to effectively participate in making decisions about their environment, and the national pri­ a promotion of appropriate technolo­ carry out the roles and responsibili­ gies corresponding to the fmancial ties which they are assigned by pro­ vate sector must play an active role in posing stimulating activities and and managerial capacities of the supplying sanitation services. The high-quality training. state, cities and the beneficiaries. state's capacities in the areas of plan­ Applying these principles should lead The various components of sanitation ning, regulation, coordination and to: which are covered by the national policy monitoring of services need to be rein­ are the following: disposal of excreta, forced. Benin's national strategy in the a reinforcing the state in its role of sludge from latrine pits and waste wa­ area of sanitation is based on five fun­ promoter and coordinator of sanita­ ter, management of solid household damental principles: tion programs, with the primary re­ waste, industrial and toxic waste, and a setting up sustainable and effective sponsibility of the defming policy storm water drainage and flood control. institutional structures for managing and standards in the area of sanita­ These components were considered services; tion; separately as well as integra1ly. Needs Q promotion of sanitation programs a offering cities the possibility to plan also vary according to the envirorunent, which have been developed based on and manage urban sanitation serv­ whether rural, semi-urban or wban, and the demand expressed by the com­ ices; these differences were also taken into munities; a reinforcingthe role of the private account in the organization of sanitation sector and NOO's in community services. Recommendations of the National Sanitation Policy Institutional recommendations of roles in the area of sanitation and the a Wastewater disposal (on-site and The Sanitation policy is based on clearly lack of precision in defming these roles collective sanitation, in schools and defming the responsibilities of public constitute a serious stwnbling block to public places) agencies, private companies and bene­ the effective delivery of the services. a Excreta disposal, emptying of septic ficiaries in the development, fmancing, Technological recommendations tanks and latrine pits construction, management and mainte­ Principles related to technological 0p­ o Household solid waste nance of sanitary infrastructures. This strategy must be applied according to tions for sanitation services are the fol­ a Storm water drainage and flood lowing: control the principle of decentralization and as­ signs actual responsibilities to users, a emphasize on-site and decentralized a Special. industrial and toxic waste systems, which are inexpensive and associating jurisdiction and competence, Financing and cost recovery easy to maintain, and ensures continuity of services. This Medimn and long-term strategy for fi­ process will be accompanied by training a consider the entire process from nancing sanitation is based on the fol­ sessions, community mobilization, and production of waste to its treatment lowing principles: support for the interested parties, and in a way which respects the envi­ will facilitate the progressive fmancial rorunent (waste collection, trans­ a adaptation of the level of urban transfer of responsibility for operations porting, treatment, storage or recy­ services to the actual resources of to users and the local communities. cling). the beneficiaries; The national sanitation policy proposes The national sanitation policy sets forth a maximmn decentralization of man a clear assigning of tasks and responsi­ detailed recommendations for the devel­ services in order to allow for par­ bilities among the institutions involved opment of the following components: ticipation in decision-making and at all levels, because the current sharing  cost recovery by direct payment HumaD Resource Developmeat of this program. Their objectives.will be made by the beneficiaries; as follows: . ~. :. Implementation of the national sanita­ a billing of public services for the ac­ tion program will develop new skills at a to develop the commUIUties' re­ tual cost of the services which they all levels, calling for an increase in spoDSlbilities for improving their receive; knowledge by means of training, sensi­ environment; Q fmancing of services which cannot tization and information. a to promote both individual and col­ be decentralized or which are di­ The goal of the training program is to lective behavior changes in the areas rectly covered by budgets of the improve (through developing human of hygiene and habitat, and in state, the city or the communes, ac­ resources) the effectiveness of the vari­ schools; cording to the zone covered by the ous actors in sanitation in three key ar­ Q to support on-going sanitation pro­ infrastructure or serviee in question. eas: grams through communication pro­ Problems which the government usually Q concrete implementation of the na­ grams (which will take into account faces in fmancing investments and cov­ tional sanitation program; the target groups). erage of recurring costs will continue to Q increasing knowledge in all techni­ In schools, the hygiene education and exist if no change of policy is put into cal areas, and in program and project promotion of sanitation program devel­ effect. Both rural and wban populations design (planning, identification, de­ oped by the government will be evalu­ will be encouraged to pay in total, either velopment, implementation, moni­ ated, modified if necessary, and ex­ directly or indirectly (through taxation), toring and evaluation) within a par­ panded to all schools in the country. In for the recurring costs (operation and ticipatoIy framework; order to carry out this program, training maintenance) for the services which for teachers, health personnel and hy­ Q improving the exchange of infoIUla­ they receive. giene staff will be reinforced. ,'A par­ tion and commUIUcation among A policy of accoWltability and transpar­ various levels of intervention as a ticipatory approach as well as marketing ency in fmancial management should be way of reinforcing the policy of de­ of on-site sanitation and hygiene prac­ applied in order to obtain popular sup­ centralization. tices for individuals, households and at port for the National Sanitation Pro­ the neighborhood level will be imple­ The Ministries of the Environment and gram. This means that the sum received mented within the framework: of the na­ Health will be responsible for organiz­ by the government earm.arked for op­ tional sanitation program. Environ­ ing and coordinating activities, and for eration of wban services must in reality mental sanitation will be included in the Jll81l88ing and monitoring the training be paid out to the commWles and used to training program for sector staff and plan. cover the cost of construction and serv­ will also be taught in schools. ices of a public interest. The national PromotioD of InformatioD on Hygieae sanitation program includes the carrying aDd Health out of an institutional and financial Activities for promoting and publicizing study in order to specify management the national sanitation program will be and cost recovery solutions for the vari­ integrated into the various components ous types of sanitation. Implementation of the National Sanitation Program T he strategy for implementing the national sanitation plan (NSP) will be based on planning carried out in order to establish the supervision neces.­ recommendations of the national sanita­ sary for the effective implementation of tion policy via demonstration projects the national sanitation plan. (pilot projects), including a proeess of the cities and rural areas covered by the The implementation strategy of the plan monitoring, evaluation and documenta­ program and will include detailed study consists in testing the feasibility of the tion before proceeding to replicate or and implementation of projects aimed at extend them to other neighborhoods or improving the urban and cities. This methodol­ rural environment. Communities wilt be I Cat~ryoillCtivity of ItIe NSP .. ' :.:': ..... . '-' -' ogy has several objec­ tives: millions, Cf"AF . thousillt(fS encouraged to develop .USS····· a to test the f9'$.ibility their own projects, with • b impIe, menta- . '1 Cotnple.,menta'YlStUdies,. ': of technical,!,ltstitu­ the assistanee of NGO's tioOofthe NSP tional and diancial This is aimed at improv­ options of the na­ ing their living condi­ tional sanitation tions by means of local 595 1190 policy and to adjust initiatives. Support for the reorganization of national and municipal I InstittJtiOn<ll strenglhening. 625 1.250 . the policy according to the lessons learned during im­ services involved in plementatio~, of pi­ sanitation and human lot projects; ~l resource development " 113 ·······1 will be undertaken in  National Sanitation for Benin o to determine the viability of nal sanitation committees, ministe­ over a ftve-year peri~ the annual cost strategic options regarding the role rial planning units, technical mu­ of the program (3.4 billion CFAF or to be played by communities in nicipal units, private companies and $5.6 million US) thus seems completely identifying priorities, planning of artisans, neighborhood and users' reasonable, taken into consideration the improvements in living conditions, committees, NGO's, etc.). expected outcome of the implementation financing, and management and The strategy for implementation of the of the national sanitation policy. maintenance of collective sanitation NSP is based on two principles: start However, as the government has a great facilities; small with a clearly deCmed policy for number of priorities for public invest­ o to examine the rationale of institu­ the development of the sector and ments and only limited revenue, the tional recommendations, in particu­ stimulate demand. support of funding agencies is necessary lar those deftning the roles and The NSP will require reasonable fund­ for the successful implementation of the functions of the various actors in­ ing, which will amount to about 14 bil­ national sanitation program. volved in the implementation of na­ lion CFAF ($28 million US). Spread out tional policy (national and commu­ Conclusion mproving sanitation and protecting the environment require an integrated and unified approach. Inte­ I grated because one must take into account all actions aimed at improving the population's living conditions and their interactions with the environment: treatment and di.'posal of wastewater, man­ agement ofhousehold waste, industrial and toxic wastes, storm water drainage and flood control, and from all perspectives - institutional, finanCial and technical. Unified, because this involves various departments of both central and local administrative services, private companies which supply services, and the com­ munities as beneficiaries. who must be considered as full-:f1edged partners at all levels ofdeCision-making. The development ofthe national sanitation policy has been based on this double concept ofintegration and collaboration. It is perfectly applicable to the diverse initiatives now being implemented (the environmental action plan. the program to reinforce urban management, etc.) and has been discussed and debated by most ofthe partners and agencies concerned. The recommendations ofthe national policy were discussed and ap­ proved on September 15, 1994 during a national seminar attended by more than 80 representatives of the administration. the private sector, NGO's. and development institutions. This collaboration resulted in en­ riching the recommendations ofthe national policy and in facilitating the subsequent integration and appli­ cation ofits principles by the leaders who will apply the policy. The National Swutation Policy ofBenin was developed with the assistance ofthe Regional Water and Sanitation Group for West Africa. part of the joint UNDP-WorldBank Program for Water and Sanitation If)'Oll would IJk.e to know more about the sanitation program in Benin or the UNDP-World Bank Program. or to comment On the program. pka.re conli;u;t: UNDP - World Bank DepartmenJ of Hygiene and Sanitation Wmer Supply and Sarrilation Program Ministry ofH<la/Ih WorldBank B'p.88J 01 BY. 1850 Coto_ Abidjan()1 Benin COte d'/voire Fax 115 - 44 1687 4 RWSG - WA Information Note N°3 - October 1994