Document of The World Bank FOR OFFICIAL USE ONLY /;2A/1 32 / Q t>' t Report No. 8143-PH STAFF APPRAISAL REPORT PHILIPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT MAY 31, 1990 Infrastructure Operations Division Country Department II Asia Regional Office This document has a resuicted distribution and may be used by ouly In the perome of their official duties. Its contents may not othenrise be dis wosedt Wodd BD& autwhoa |on. CURRENCY EMUIVALENTS Currency Unit - Pesos (P) UIS$1 P 22.50 (as of March 1990) US$4.44 "rI oo US$1 million . P 22.5 million US$44,444 - P I million FISCAL YEAR January I - December 31 WEIGHTS AND MEASURES I meter (m) . 3.2808 feet (ft) I kilometer (km) - 0.62 mile (mi) I square kilometer (sq km) - 0.3861 square miles (sq mi) I liter (1) 1.1 quarts (qt) or 0.26 gallons (gal) I liter per capita per day (lcpd) 0.2642 gal per capita per day ABBREVIATIONS AND ACRONYMS ADB - Asian Development Bank AWSP - Accelerated Water Supply Program BWSA - Burangay Waterworks and Sanitation Association DANIDA - Danish International Development Agency DBM - Department of Budget and Management DEO - District Engineer's Office DGIS - Netherlands' Directoraat Generaal Internationale Samenwerking DLG - Department of Local Government DOF - Department of Finance DOH - Department of Health DPWH - Department of Public Works and Highways GTZ - Deutsche Gesellschaft fur Technische Zusammenarbeit (German Agency for Technical Cooperation) ICB - International Competitive Bidding LCB - Local Competitive Bidding LGU - Local Government Unit LWUA - Local Water Utilities Administration MWSS - Metropolitan Waterworks and Sewerage System NEDA - National Economic and Development Authority NGO - Non-government Organization NWRC - National Water Resources Council OECF - Overseas Economic Couperation Fund (of Japan) PCC - Project Coordination Committee PCR - Project Completion Repo. t PMO-RWS - Project Management Office for Rural Water Supply PPDO - Provincial Planning and Development Office RDO - Regional Engineer's Office RWDC - Rural Waterworks Development Corporation SOE - Statement of Expenditures UNDP - United Nations Development Programme UNICEF - United Nations Children's Fund USAID - United States Agency for International Development WD - Water District WHO - World Health Organization FOR OFFICIAL USE ONLY PHILPPINES FIRST WATER SUPPLY. SEWERAGE AND SANITATION SECTOR PROJIECT Loan and Project Summary Borrower Republic of the Philippines Amount US$85 milliora equivalent Terms: 20 years. including five years of grace, at the standard variable interest rate. Proiect Descriotion: The proposed project would help finance rural water supply and sanitation investments included in the Government's Water Supply, Sewerage and Sanitation Master Plan 1988-2000. The project's rural focus is intended to redress the existing imbalance in sector service to the urban and rural populations and to better reach the poor, the majority of whom live in the rural areas. Institutionally, the project would assist the Government in achieving its policy objective of decentralizing investment planning and implementation. Local government staff would therefore be trained to prepare and carry out Provincial Sector Development Plans; local community support would be mobilized and training provided for improved operation and maintenance of the facilities constructed. Funds would be provided under the project for. (a) water supply development for some 18,000 rural communities, primarily in Luzon, to be carried out by the Department of Public Works and Highways (DPWH); (b) rural sanitation development throughout the country, including the provision of sanitary excreta disposal facilities for some one million households, to be carried out by the Department of Health (DOH); and (c) technical assistance for (i) project implementation, (ii) the preparation of Provincial Sector Plans for 37 provinces in Luzon, (iii) training and communiity development by DPWH, DOH, and the Department of Local Government (DLG) for the local staff and communities involved in operating and maintaining facilities to be provided under the project, (iv) quality assurance and control, (v) preparation of future water supply and sewerage projects by the Local Water Utilities Administration (LWUA) and (vi) updating of the Master Plan. Benefits and Risks: Overall, about 3 million people would benefit from project-supported water supply facilities, about 6 million would benefit from the rural sanitation component, and 37 of tne country's 75 provinces would benefit from the project's local government development activities. In addition, the integrated implementation and operational procedures, practices and standards established under the project would facilitate the participation of other lenders in the sector. The project's success will depend on the coordintted delivery of water supply and sanitation improvements and community development and training. To minimize the risk of poor coordination, a Project Coordination Committee was established to oversee the various project participants, and procedures to be followed by the Committee and comprehensive performance monitoring requirements were developed. There is also the risk that the decentralization of responsibilities expected under the project may not proceed at the pace anticipated. The Bank is concurrently providing assistance to the Government in carrying out a Decentralization and Local Government Development Study, which is expected to lead to recommendations on a sound fiscal framework that would facilitate This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. - ii - government decentralization plans. Ultimately, however, the sustainability of the project will depend on the ability and willingness of the local communities to maintain the facilities provided. The project therefore includes a large training and community development program. Proiect Costs: LFal, Eoreisfn Il1 - - - - - (USS million) - - - - - - Rural water supply 36.2 29.3 65.5 Rural sanitation 6.5 11.0 17.5 Technical assistance DA .482 Z1_Z Base cost 62^S AI 107.7 Physical contingencies 6.7 2.9 9.6 Price contingencies 9.5 6.0 15.5 Total oroiect cost /_ 78. li12 Financing Plan: Government 47.8 - 47.8 Bank 30.9 -Dod 79.7Il 13. Estimated Disbursements: Bank FY 1991 1992 3 1994 1 1996 - - - - - - - - - - - (US$ million) - - - - - - - - - - - - - - Annual 10.7 20.3 18.6 17.9 14.4 3.1 Cumulative 10.7 31.0 49.6 67.5 81.9 85.0 Economic Rite of Return: The water supply component would give a financial return of about 8%; the benefits of the remaining components cannot be quantified. Man: IBRD No. 22431 /a Including estimated taxes ana duties of US$10.6 million equivalent. PHILIPPINES FIRST WATER SUPPLY. SEWERAGE AND SANITATION SECTOR PROJECT Table of Contents Page No. Loan and Project Summary ....................................... i 1. THE WATER SUPPI.Y, SEWERAGE AND SANITATION SECTOR ....... I A. Sector Background ......................................... I B. Sector Organization ........................................ 2 C. Sector Financing and Investment .............................. 3 D. Sector Issues and Constraints ... 6 E. The Bank's Strategy and Lending in the Sector ....................7 2. THE PROJECT .................................... 9 A. Project Origin and Formulation ............................... 9 B. Project Objectives ......................................... 10 C. Rationale for Bank Involvement ............................... 10 D. Project Description ........................................ 10 E. Cost Estimates ............................................ 13 F. Financing Plan ........................................... 14 G. Procurement ............................................. 16 H. Disbursements ............................................ 17 I. Environmental Aspects ..................................... 18 J. Women in Development ..................................... 19 K. Poverty Alleviation ...... ......... 20 L. Assistance to Private Enterprise ............................... 20 3. PROJECT IMPLEMENTATION .. 21 A. Implementation Responsibilities ............................... 21 B. Implementing Agencies ..................................... 23 C. Operation and Maintenance ............. . ...................... 25 D. Monitoring, Progress Reporting and Supervision ................... 25 E. Accounts and Audit ........................................ 26 4. JUSTIFICATION ............................................ 26 A. Project Benefits ........................................... 26 B. Risks . .................................................. 28 5. AGREEMENTS REACHED AND RECOMMENDATION .............. 28 This report is based on the findings of an appraisal mission comprising Messrs. Anthony Van Vugt (Financial Analyst/Economist), Task Manager, Erdogan Pancaroglu (Sanitary Engineer), Finn Nielsen (Municipal Engineer), Gerhard Tschannerl (Project Engineer, UNDP/World Bank Water and Sanitation Team), and William Barker (Training Consultant) which visited the Philippines in September/October 1989. Mrs. Nancy Barrett helped prepare the report, and Ms. Patricia Brereton-Miller edited the report. - iv - ANNEXES Annex 1: Organization C:hma Department of Public Works and Highways DPWH Project Management Office for Rural Water Supply Department of Health Office of Environmental Health Services Department of Local Government DLG Project Management Office for Rural Water Supply Local Water Utilities Administration Annex 2: Implementation Arraniements Part A. Water Supply, Sewerage and Sanitation Master Plan 1988-2000 Part B. Implementation Arrangements Part C. Monitoring Indicators Part D. Project Area Annex 3: Develooment of Soecifications Annex 4: Proiect Costs and Disbursements Part A. Summary of Project Costs Part B. Details of Project Costs Part C. Estimated Schedule of Disbursements Part D. Sample Statements of Expenditure Annex 5: Training and Community Develolment Program Annex 6: Economic Evaluation of the Proiect Annex 7: Outline Terms of Reference Part A. Preparation of Provincial Water Supply, Sewerage and Sanitation Sector Plans Part B. Studies for Urban Environmental Improvements Part C. Financial Restructuring Study of LWUA Part D. Consulting Services for Project Implementation Part E. Quality Assurance and Control: Consulting Services Part F. Quality Assurance and Control: UNDP/World Bank Water Supply and Sanitation Program Annex 8: Selected Documents and Data Available in the Proiect File MAP IBRD 22431 1. THE WATER SUPPLY. SEWERAGE AND SANITATION SECTOR A. Sctor Back&Vound GeosraDhv and Population 1.1 The principal source of domestic water supply in the Philippines, particularly in the rural areas, is groundwater which is generally of acceptable quality and available throughout the country in sufficient quantities. In cities with large concentrations of population, surface water is often utilized. There are four major groundwater reservoirs with areas ranging, from 6,000 sq km to 12,000 sq km which, when combined with other smaller reservoirs, aggregate to about 50,000 sq km. There are over 400 principal rivers, with catchment areas ranging from 40 sq km to 25,000 sq km and some 60 natural lakes as well as numerous small streams. Average annual rainfall is about 300 cm. The rainfall is unevenly distributed, with certain populated areas in the northwest having dry seasons of about three to seven months. The Philippines has a total land area of 300,000 sq km spread over some 7,100 islands of volcanic origin. About 95% of the land is contained in 11 of the largest islands, with two islands, Luzon and Mindanao, accounting for some two thirds of the total area (see Map IBRD 22431). Nearly 65% of the country is either mountainous or upland, with mountain ranges dividing the islands into small watersheds. 1.2 In 1987, the Philippines had a total population of some 57.4 million, about 14% of whom lived in Metropolitan Manila, 27% resided in other urban areas, and 59% or 33.8 million people lived in rural areas. Overall, the annual population growth rate for the last decade has been estimated at about 2.5%. More thap half of the population is considered poor, with incomes inadequate to meet their basic needs, and about 70% of all poor families live in rural areas. The absolute level of rural income, averaging P 6,204, is less than half the average urban income of P 13,081. Service Levels 1.3 The provision of water supply and sanitation services in the Philippines has improved considerably over the past two decades. Nevertheless, significant investment in the sector is still needed in view of the rapid population growth which requires major system expansion to maintain and improve current service levels, still low levels of coverage in rural areas where most of the population lives, the poor quality of existing service in many locations, and the need to prepare for future growth and economic expansion. 1.4 Water SUDDIV. Between 1972, when a major sector review was completed, and 1980, water supply services were extended to an additional 3 million people, bringing the total population with access to safe water to around 22 million or about 45% of the population. By end-1987, about 63% of the population had access to safe water, including 86% of the population in Metropolitan Manila and its adjoining areas, 55% in other urban areas, and 62% in rural areas. Overall, some 31% of the population was served by piped systems. Despite the improvement in overall service levels, the quality of service in the areas covered was often poor, with low water pressures throughout and rationed service in some areas. The population still unserved by water supply systems, comprising some 21.2 million people at end-1987, depended on water of often doubtful quality from open dug wells, rainwater cisterns, lakes and streams. 1.5 Three levels of service are provided, depending on the population density in the area served. Level I (point source) service, consisting of a protected well or developed spring with an outlet but without a distribution system, is provided in rural areas with thinly scattered 1 The poverty line is estimated at P 5,010 per capita per annum in urban areas and P 3,759 per capita per annum in rural areas, in 1980 prices (The Philippines: The Challenge of Poverty, Bank Report No. 7144-PH, October 17, 1988). - 2 - populations. A Level I facility normally qerves about 15 to 30 households, typically supplying 30 to ,50 liters per capita per day (Icpd); its outreach is optimally not more than 250 meters. A Level II system (communal faucet system or standposts) comprises a source, a reservoir, a piped distribution network and communal faucets, optimally located not more than 25 meters from the farthest house. The system is designed to deliver about 40-80 lcpd to an average of 50 households, with one faucet for every four to six households. Level II systems are generally used in rural and urban fringe areas where houses are clustered densely to justify a simple piped system. A Level III system (waterworks system with individual house connections) has a source, a reservoir, a piped distribution network and household taps, and is generally used in densely populated urban areas. 1.6 Sewerage and Sanitation. The 1980 census estimated that only about 56% of the population had access to satisfactory sanitation facilities in the form of septic tanks/pits or water- borne sewerage (i.e., sanitary sewers or combined sewer/storm drains) for excreta disposal. By end-1986, about 69% of all households had safe excreta disposal facilities, about 15% had unsafe facilities and about 16% had no facilities at all. In terms of population served, about 62% of the rural and 80% of the urban populations had access to sanitary facilities, with Metropolitan Manila having the highest service level at 93%. Of the 17.3 million people still underserved or unserved countrywide, only 0.5 million were in Metropolitan Manila, 4.2 million were in other urban areas, and the majority, i.e., 12.6 million, were in rural areas. 1.7 Pit or pour-flush latrines predominate throughout the country. In Metropolitan Manila, the dominant disposal facilities are septic tanks, many of which are not well maintained and are inefficient in treating the wastes which they discharge to surface-water drainage systems. The only urban areas with water-borne sewerage systems are Metropolitan Manila, where about 750,000 people are served, and three other cities where service is provided exclusively to the central areas. Because of the limited public sewerage systems and inefficient private sanitary waste disposal facilities, untreated or poorly treated domestic sewage is a major source of urban and river pollution. Sectoral Imnact on Health 1.8 National statistics on mortality and morbidity indicate a critical need to improve both the coverage and standards of service in the water and sanitation sector. While the crude death rate declined overall from 11.8 deaths per 1,000 population in 1970 to 7.9 deaths in 1985, there were significant regional differences in mortality, with higher rates in the less-developed regions. The factors contributing to the higher mortality rates included crowded living conditions, poor nutrition, ignorance of proper health practices, and poor sanitation. Morbidity rates, which have been steadily rising, indicate the nationwide prevalence of diseases either carried by water or related to improper sanitation. Diarrheal diseases, which are strongly associated with unsafe water and poor hygiene and sanitation, are ranked second among the ten leading causes of morbidity, with an incidence rate of about 990 per 100,000 population in 1986. According to national statistics, the total number of cases of diarrheal diseases increased by 3.2% a year during 1981-85.' Substantial improvement of the country's water supply and sanitation facilities, particularly in the rural areas, therefore has high priority in the Government's investment plans. B. Sector Orianization 1.9 The National Water Resources Council (NWRC), which includes representatives of the various sector institutions, is responsible for the management, coordination and integration of all activities related to development of water resources. The Metropolitan Waterworks and Sewerage System (MWSS), established in 1972, is responsible for the development, operation and maintenance of water supply and sewerage systems in and around Metropolitan Manila. The Local 2 Philinnine Health Statistics. 1986. Health Intelligence Service, Department of Health. - 3- Water Utilities Administration (LWUA), established in 1973, is responsible for providing technical and financial assistance for water supply and sewerage development for Water Districts (WDs) potentially covering about 800 provincial municipalities with populations above 20,000. Since 1987, when LWUA took over the former Rural Waterworks Development Corporation (RWDC), it has also been responsible for the provision of Level n water supply systems to larger rural communities. The Department of Public Works and Highways (DPWH) is responsible for providing very basic water supply facilities (Level I systems) to thinly scattered rural communities. Both MWSS and LWUA are semi-autonomous corporations, administratively under DPWH. The Department of Health (DOH) implements the rural sanitation program and monitors drinking water quality. 1.10 The operation and maintenance of urban water supply systems in the provincei. is the responsibility of local government, often acting through WDs, which are semi-autonomous public utilities, serving one or more municipalities. WDs are formed at the initiative of a city or one or more municipalities and depend on LWUA for financial and technical assistance in system upgrading and development. WDs are administratively and financially independent of local government although the mayor nominates the WD's first Board of Directors. Barangay Waterworks and Sanitation Associations (BWSAs), which are non-governmental organizations (NGOs), are responsible for rural water supply systems. BWSAs are formed when rural communities request provision of public wells or spring development, and accept the related responsibility for operation and maintenance. By mid-1989, about 500 WDs and about 20,000 BWSAs had been established. 1.11 In addition, the Lepartment of Local Government (DLG). while not a regular sector agency, has a mandate to promote local autonomy by strengthening local government capabilities in the delivery of basic services, including water supply and sanitation. DLG therefore helps to train local government staff in the management and implementation of projects, assists local governments in organizing BWSAs, and supervises Municipal and City Councils in registering BWSAs. C. Sector Financint and Investment Financina 1.12 Sector development in Metropolitan Manila is financed by MWSS through self- generated funds, government equity contributions, and foreign Or local loans. LWUA is responsible for water supply development in the urban areas outside Metropolitan Manila. In addition to providing technical assistance, it functions as a financial intermediary in that it borrows from the Government and on-lends to WDs. The municipalities served by the WDs normally make some equity contribution, p.rimarily through the hand-over of existing water supply assets, to contribute toward part of the cost of development, while the financially weaker WDs may be eligible to receive some government grants. The BWSAs also receive government equity contributions and benefit from grants provided through bilateral assistance. 1.13 The Government's general policy is to develop systems on the basis of a community's financial ability and willingness to pay. Accordingly, Level III service is usually provided in the larger metropolitan and provincial urban areas, Level II service in small rural settlements, and Level I service in the more dispersed rural areas. Tariffs in Metropolitan Manila are set by MWSS to earn a financi rate of return of about 8% on its revalued net fixed assets in operation. For WDs, tariffs are set to generate adequate l1 ols of revenue to meet operation and maintenance costs and cover debt servicing costs or depreciution, whichever is greater. However, because of extensive poverty in the rural areas and the poiiticaliy-inspired reluctance by some WDs to increase tariffs, water tariffs and collections in the WDs are often inadequate, resulting in 3 A barangay is the smallest political division in the Philippines, usually consisting of one or more villages, with an average population of about 5,000 persons. - 4 - financial deficits and delayed payments to LWUA. The WDs with excessive debt burdens have benefited from some debt rescheduling, but further financial restructuring may be needed to strengthen their finances and provide a reasonable debt-to-equity ratio. In rural areas, tariffs are expected to meet operation and maintenance costs and the debt servicing costs of any distribution works related to the standpipe distribution network and connections. Past Investment Levels 1.14 During 1981-85, investment in water and sanitation services increased in current peso terms but declined in real terms due to the depressed economic conditions and political changes that occurred in the mid-1980s. Investment increased in 1987, however, with the new Government's commitment to meeting the basic needs of the rural population. The following table shows actual expenditures for the water supply and sanitation sector for 1981-87. Iable 1.1: WATER SUPPLY AND SANITATIOIJ INVESTMENTS, 1981-87 (Pesos million) Year NSS DPVH LWJA RWDC DON TOTAL 1981 627.5 280.6 188.0 2.0 4.6 1,102.7 1982 842.6 415.8 153.0 1.5 5.3 1,418.2 1983 960.2 354.3 208.0 3.2 17.5 1,543.2 1984 1,276.9 284.6 110.0 1.7 28.4 1,701.6 1985 1,345.2 186.2 169.0 3.4 33.4 1,737.2 1986 793.2 187.1 140.0 6.1 47.2 1,173.6 1987 774.9 467.3 184.0 2.5 58.6 1,487.3 Tot al 6,620.5 2.175.9 1Z1f2.0 20.4 1950 101638 Source: Water Supply Sewerage and Saniration Master Plan of the Philippines 1988-2000. In addition, during 1981-87, MWSS spent P 897.3 million for sewerage development and DLG invested P 569.1 million for the Barangay Water Program, with assistance from the United States Agency for International Development (USAID). Total sector investment was therefore about P 11,630 million during the period. 1.15 Allocation of investmaent by subsector and area was highly skewed. Two thirds, or P 7.8 billion, of total investment in the sector dur;ng 1981-87 went to development of water supply in large urban areas; about P 2.8 billion (24%) went to rural water supply; P 0.8 billion (8%) went to sewerage development and only P 195 million (2%) to rural sanitation. Thus, rural areas, where almost 60% of the population lives, received only about 25% of total sector investment. Sector Master Plan 1.16 The Government has recognized the need for a more equitable provision of services and for a resumption of earlier levels of sector investment. It therefore prepared a Water Supply, Sewerage and Sanitation Master Plan of the Philippines 1988-2000 (the Master Plan), which provides a well-integrated, ambitious package of policies, programs and projects to be implemented in two stages, ie.i from !988 to 1992 and from 1993 to the year 2000. The Master Plan is aimed at accelerated development of the sector, especially in depressed areas, through an equitable mobilization of resources and institutional reforms. It was formulated in the context of the updated Medium-term Philippine Development Plan for 1988 to 1992 and provides a comprehensive framework by which sector agencies are guided in preparing their long-term plans, using a sectoral approach. 1.17 The physical targets, investment requirements and service coverage being sought under the Ma3ter Plan are shown in Annex 2A. The targets of the Plan during its first phase (1988-92) are to increase water service coverage in Metro Manila in line with population growth but keeping the service level at about 87%, increase coverage in other urban areas to 77%, and increase coverage in rural areas to 92%. Targets for sewerage and sanitation coverage are, respectively, 14% in Metro Manila and 77% in rural areas. The quality of service would also be improved. While service targets and the time-frame of the Plan are overly optimistic, the Plan is valuable by providing direction to the various sector agencies and well-articulated project proposals for external lenders. The Plan also serves as the coordinating mechanism for all lenders and donors to the sector. Although the Bank was not directly involved in the preparation of the Master Plan, it had previously encouraged the Government to undertake integrated, long-range planning for the sector. 1.18 The greatest expansion of service under the Plan is envisioned in the rural areas. To ensure a major effort in rural water supply, the Government approved an Accelerated Water Supply Program (AWSP) (Republic Act 6716 of March 1989), which is to provide 100,000 wells and handpumps to all barangays in the country during a two-and-a-half-year period beginning in April 1989. This would be backed up by the formation and training of BWSAs and the provision of follow-up services to ensure that the systems are properly operated and maintained. The Program is likely to require a much longer implementation period than anticipated in the Act. 1.19 Investment requirements for the first stage of the Master Plan's implementation were estimated to total about P 25,022 million for water supply, P 2,857 million for sewerage and P 473 million for sanitation (in constant 1988 prices). To facilitate the identification and coordination of external financial assistance for Master Plan investments, the Plan was first presented at the Water Supply, Sewerage and Sanitation Decade Consultative Meeting, held in Manila in May 1988, at which all major multi- and bi-lateral funding and aid agencies were represented. The Consultative Meeting was sponsored by the World Health Organization (WHO) and the German Agency for Technical Cooperation (Deutsche Gesellschaft fur Technische Zusammenarbeit, GTZ). The Government subsequently sought World Bank financial assistance for the proposed project, which is to address the more urgent sectoral priorities, namely rural water supply and sanitation. 1.20 The Government, with the Bank's assistance, has maintained a close dialogue with other external donor agencies to ensure the availability of adequate funding for the Master Plan's large rural sector program. The Government of Japan, through its Overseas Economic Cooperation Fund (OECF), wiUl complement the Bank's proposed water supply investments in Luzon by helping to finance rural water supply investments in several provinces of the Visayas and Mindanao. The Asian Development Bank (ADB) is implementing an Island Provinces Water Supply Project, while the Governments of Belgium, Denmark and France are supporting various other ongoing projects. The Australian Government, through the Australian International Development Assistance Bureau (AIDAB), has formulated a project for about three provinces in the Visayas. The U.S. Government, through USAID, is assisting DLCG with training of trainers to assist BWSAs. The Government of the Netherlands, through its Directoraat Generaal Internationale Samenwerking (DWIS), recently approved a grant for the International Training Network, which will support training activities in the sector. Indications of interest to provide additional assistance have come from the Governments of Canada, Denmark, Italy, the Netherlands, the Federal Republic of Germany and Singapore. Altogether, the proposed and ongoing projects cover some 45 to 50 of the 75 provinces in the Philippines. 1.21 In view of the willingness of so many lenders to support investments included in the Master Plan, the Government intends to organize a follow-up donors' coordination meeting in 1990 to facilitate orderly devetopment in the sector. -6- D. Sector Issues and Constraints 1.22 Activities under the Master Plan, and under the proposed project, will address the following major problems and issues now constraining sector development and performance in the rural areas. 1.23 Lack of Sustainability. The most significant sector constraint in the rural areas i the lack of sustainability in the operation and maintenance of the simple systems provided under rural water supply projects. A high proportion of wells and handpumps now fail within a few years of their completion. The reasons for this are many and vsried and include the following (a) Poor manufacture gf hand2ilmo. Handpumps should be relatively maintenance free during the first two years and should perform adequately for at least ten years with regular preventive maintenance. This has not been the case in the Philippines. and handpumps have been wearing out faster than normally expected due to low manufacturing standards and a tendency to procure the cheapest rather than the most economic units. Assistance is therefore needed in revising standards, improving manufacturing processes, and providing quality assurance and control. (b) Poor installation, Wells and handpumps shouild be developed and installed with a high standard of workmanship and at well chosen locations. Currently, locations are often inappropriate, e.g., because of poor hydrogeological investigations, and construction standards are also often inadequate. This could be corrected by more intensive use and training of hydrogeologists, better training of well drillers, and stricter inspection during drilling and after completion of works. (c) Poor ooeations and maintenance. Handpumps need to be regularly serviced and defective parts replaced as and when needed. While community development and training are generally provided to prepare the DWSAs to carry out these activities, in many cases maintenance of the systems deteriorates rather quickly. The more active BWSA members are also those who are more likely to leave for the cities or to immigrate; cash collections for maintenance are often diverted to provide financial assistance to needy families in the barangays; and tools for the maintenance of pumps are usually not available. (d) Lnadcauate loal government involvement and support. Rural water supply and sanitation projects have been centrally planned and implemented. Any local government involvement appears to have been at the political level only - when bidding for the allocatioa of resources. Local governments have not played a major role in the identification of needs and priorities, in community development or in the provision of operation and maintenance support. Probably as a result, there appears to be no sense of responsibility at the local government level to sustain the centrally planned and implemented development efforts. There is thus a need to seek greater local government and community involvement in the design and implementation of projects. 1.24 Plannina and Coordination. At the central political and departmental level, there have not always been the commitment and coordination necessary to guide investments in an optimal and equitable manner. Concerns at this level include: (a) Over-ootimistic planaina. Development plans are generally over-optimistic and not deliverable at the scale and in the time-frames promised. This leads to a lack of public confidence in public programs and possibly a feeling of failure at the departmental level when targets set are not achieved. (b) Lack of coordination between implementing agencies. The realization of maximum benefits requires complementarity in water supply development, sanitation improvements, and training and community development. In the past, such complementarity has not been fully achieved because project implementation and review mechanisms established for this purpose have not functioned as intended, and implementing agencies have pulled in different directions. This is not expected to be a major problem in the future since the Master Plan functions as a vehicle for investment coordination. (c) Inadeauate donor coordination. Efficient and equitable delivery of a sustainable development program requires a great deal of coordination between the Government and donors/aid agencies. Several multi- and bi-lateral aid agencies are now active in the sector, often with widely differing approaches, standards and procedures, and financing arrangements. These agencies also often overlap their assistance, concentrating on identical geographical areas while other areas may receive little or no support. E. The Bank's Strategv and Lendins in the Sector Previous ADproach and Involvement 1.25 The Bank's past involvement in the sector was aimed at supporting high-priority investments included in successive government development plans, with particular emphasis on providing service to the low-income population, helping the Government to develop a well- conceived institutional framework for the sector as well as appropriate sectoral policies, and addressing the various problems constraining efficient sector operations and development. Bank- assisted projects have been important institutionally, by helping to establish satisfactory organizational structures and bylaws, formulate training programs, improve the technology 'sed, establish accounting and billing systems, and provide the capacity to implement a continuing program of water supply, sewerage and sanitation investments. This assistance, complemented and reinforced by the support of multilateral and bilateral aid agencies and lenders, has enabled the Government to put in place the institutional structure needed for the nationwide expansion of sector services now envisioned under the Water Supply, Sewerage and Sanitation Mtster Plan 1988- 2000, which sets the overall program for sector assistance through the coming decade 1.26 With the exception of a loan in 1964 for development of the Metropolitan Manila water supply system, the Bank's involvement in the sector began in 1977 with the Provincial Cities Water Supply Project (Loan 1415-PH, US$23 million) to improve water supply in five provincial towns in Luzon. A Project Performance Audit Report (No. 6422, September 29, 1986) found that physical works and studies included in the project were carried out satisfactorily; however, training of government staff working in small cc-munities was poorly planned and had no effect. Project objectives for institutional development and financial pertormance would have been better pursued through projects focused on these not easily attained goals. 1.27 Six other loans were subsequently made: (a) four for expansion of water supply and sewerage in Metropolitan Manila, i.e., Loan 1615-PH for US$35.5 million in 1978, Loan 1814-PH for US$63.0 million in 1980, Loan 2676-PH for US$69.09 million in 1986, and Lcan 3124-PH for US$40.0 million in 1989; (b) water supply in provincial towns (Loan 1710/Credit 920-PH for US$38.0 million) in 1979; and (c) a national program of rural water supply and sanitation (Loan 2206-PH, for US$35.5 million) in 1982. 1.28 The Project Completion Report (No. 7153, March 16, 1988) for the Second Manila Water Supply Project (Ln. 1615-PH) found that, d,spite a four-year project delay due to underestimated technical complexities and the economic-financial crisis of 1983-86, the project achieved its objective of improving the piped water service to Manila, thus benefiting the health of the local population. It also contributed to the institutional development of MWSS. The other Bank-supported projects have also substantially met or are expected to meet their physical and institutional objectives, although they have suffered construction delays, largely due to contractors' financial problems associated with the economic crisis, and have fallen short of their financial goals. Some institutional achievements were also diminished, due to discontinuity in top management positions and uneven professional interest. Despite a Special Action Program to increase disbursement under loans affected by the economic crisis, the scope of some projects had to be reduced and about US$60 million equivalent (about 20% of the Bank loans outstanding) could not be utilized and had to be cancelled. r 1.29 The ongoing Rural Water Supply and Sanitation Project (Loan 2206-PH), which laid the groundwork for the rural emphasis of the proposed sector project, includes the provision of about 10,000 protected wells with pumps and 400 communal faucet systems, construction of about 750,000 toilet units and 12 waste stabilization ponds, and technical assistance and training in health education and the implementation and operation of rural water supply and sanitation services. DPWH and the former RWDC were responsible for construction of the Level I and II systems provided under the water supply component and DOH for the sanitation and health education components. The performance of DPWH in implementing physical works has generally been good, but RWDC was less successful in meeting targets for operation and maintenance, training and community development. DOH met its physical targets and was particularly successful in carrying out training and community development because of its extensive grassroots links to local communities through barangay health volunteers and midwives. The main problems encountered during project implementation were the failure af the Project Implementation Review Committee to provide adequate planning, coordination, and monitoring of implementation, inadequate maintenance of the completed systems by the local communities, and institutional development that lagged behind physical development of the systems. These problems have been taken into consideration in the design of the proposed project. Current Sector Strateav 1.30 The Bank's strategy in the sector through the coming decade will support the Government's Water Supply, Sewerage and Sanitation Master Plan 1988-2000, which permits the initiation of assistance for sector-wide projects comprising time-slices of selected programs to be implemented under the Master Plan. Within this context, a significantly increased level of investment is expected in the rural and provincial areas in order to meet the basic needs of the poor. Support would also be provided to the Government's efforts at achieving greater decentralization in planning, implementation, operation, maintenance and monitoring in the sector, allowing local participation in the investment process. This reflects a more general movement toward decentralization being pursued throughout the Government. The Bank also expects to emphasize environmental improvement, particularly by addressing the sanitation problems of the larger provincial towns which have received relatively little attention to date, given the higher priority of water supply development. The proposed project reflects the new strategy in its inclusion of support for rural water supply and sanitation investments, institutional development at the local government level, and studies of future sewerage and sanitation facilities for the larger provincial towns. - 9 - 2. TH1= PROJECT A. Proiect Origin and Formulation 2.1 The proposed project is a logical continuation of the Bank's long involvement in the sector, during which time sector institutions were established or restructured, sector policies and strategies were developed, a Master Plan was prepared, and experience was gained with the implementation of individual projects. The status of sectoral development is now such that the Bank can support a more broadly-based sector project, eventually moving toward sectoral lending, i.e., financing a time-slice of sectoral investments. 2.2 The project was formulated in the context of the Government's development objectives, the lessons learned by the Bank from earlier projects, and the sectoral issues and constraints identified earlier (paras. 1.22-1.24). The project therefore supports the Government's sectoral objectives, as embodied in the Sector Master Plan and the Accelerated Water Supply Program, by financing investments for rural water supply and sanitation. The rural water supply component would focus on the Luzon area and would complement a similar project for the Visayas and Mindanao, which is being prepared by the Government of Japan. The objectives of this component are conservative and seem attainable: while the AWSP calls for the development of 50,000 wells during each of the next two years, the proposel project covers only about 5,000 wells a year or about 10% of the annual target. Other financing agencies are expected to support the balance of the program over time. The project's rural sanitation investments would be carried out nationwide, in parallel with the water supply development under this and the Japanese-assisted project. This dual focus on water supply and sanitation is intended to maximize the potential benefits of both investments. 2.3 The project also supports the Government's objective of decentralizing development activities to the local government level by encouraging significant local government and community participation in sectoral investment planning, operation and maintenance, and monitoring. Provincial Water Supply, Sewerage and Sanitation Sector Plans would be prepared by the provincial governments, with community participation, and would reflect local needs and priorities. Two Provincial Plans have already been prepared, financed by grants provided by the Danish International Development Agency (DANIDA), and six more are currently being prepared, also with grant funding by DANIDA. To enhance the sustainability of investments carried out under the Plans, the project incorporates a comprehensive training and community development program in the operation and maintenance of water supply systems and in health education. Finally, it would provide institutional support to both the public sector and private enterprises, with the objective of improving quality assurance and control procedures for handpump manufacture, well development and operations and maintenance. 2.4 To avoid coordination problems that occurred among the implementing agencies for Loan 2206-PH (para. 1.29), the project includes mechanisms such as use of the recently established Project Coordination Committee, the provision of consultant support during implementation, and tight monitoring and reporting requirements. The necessary interagency agreements have already been concluded. To ensure that local experience, customs and practices were properly reflected in the project design, the project was prepared with the assistance of a successful rural water supply NGO, the Tulungan sa Tubingan Foundation, and the Manila office of the United Nations Children's Fund (UNICEF). Assistance in formulating appropriate standards and specifications for the water supply component was provided by staff of the United Nations Develtipment Programme (UNDP)/World Bank Water Supply and Sanitation Program. To review possibilities for decentralization, the Bank is currently also assisting the Government to carry out a Decentralization and Local Government Development Study as part of the Bank's sector work. - 10 - B. Proiect Obiectives 2.5 The primary objective of the proposed project is to assist the Government to meet the basic needs of the rural population through the provision of safe, adequate and easily accessible water supplies as well as proper sanitation. Institutionally, the project is aimed at (a) promoting effective community participation to achieve sustainable sector development; (b) developing organizational arrangements for improved operation and maintenance of water supply facilities; (c) supporting governnment decentralization by providing local government units with a greater role in planning, implementation and monitoring of sector activities; and (d) training manpower in the planning and implementation of water supply and sanitation systems. C. Rationale for Bank Involvement 2.6 The project addresses several areas of special importance. By providing safe water supplies and improved sanitation in the rural areas, it would meet important basic needs of the rural population, the majority of whom are poor. Project-supported sanitation investments would help improve environmental conditions in the targeted areas. And, by promoting institutional changes to enlarge the role of women in sectoral operations in the rural areas (para. 2.43). it would increase women's involvement in the development process. The project would also allow the Bank to continue its sectoral dialogue with the Government, which was important both in gaining government acceptance of community and local government participation in prepa.ing local sector investment plans and in identifying external financial support for those investments. Finally, the project provides the Bank with an opportunity to assist the Government in establishing a set of integrated procedures, practices and standards for the implementation of rural projects in the sector. Among other things, this should help to facilitate and coordinate the mobilization of financial support by other lending agencies in implementing the Sector Master Plr,n and AWSP and in reaching the approximately 25 provinces with some 16 million rural people not yet included in identified rural water supply projects. D. Proiect Descriotion 2.7 The proposed loan would help finance investments included in the Sector Master Plan and has the following components: (a) Rural Water SuDDIv. The project would support the provision of Level I (point source) water supply schemes to some 18,000 rural barangays in about 37 provinces in the Luzon group, as part of the Accelerated Water Supply Program. This will generally include a groundwater supply through shallow and deep wells, development of springs, rainwater collectors, water treatment units, and rehabilitation of existing wells in the barangays. (b) Sanitation. Sanitation facilities would be provided to rural areas nationwide, including family latrines, well disinfections, school and communal/public toilets, sullage removal units and pilot wastewater disposal facilities. (c) Technical Assistance. Assistance would be provided for project implementation, training and community development, improvement of private sector manufacturing and production capabilities, quality assurance and control, preparation of the Provincial Sector Plans and updating of the Master Plan, and feasibility and other studies for the preparation of future projects. 2.8 The project's water supply component would focus primarily on the rural areas in Luzon while the sanitation component would be carried out in rural areas nationwide. The Luzon area, with a total population of about 24 million people, includes Regions I to V as well as the National Capital Region and the Cordilleras Autonomous Region. It covers 37 provinces, with 731 - 11 - municipalities and about 18,000 barangays. The Visayas covers Regions VI to Vlll and has a total population of 13.2 million. It contains 16 provinces, 385 municipalities, and about 11,000 barangays. Mindanao, with a total population of 13.5 million, covers Regions IX to XII and has 22 provinces, 290 municipalities, and about 8,000 barangays (Map IBRD 22431). The project water supply component would serve about 3 million people living in some 18,000 barangays. The sanitation component would cover all 18,000 barangays in Luzon as well as the 11,000 barangays in the Visayas and 8,000 barangays in Mindanao and would potentially benefit some 6 million people. A table giving details of the project areas is included in Annex 2D. Rural Water SuDDlv 2.9 The proposed project would finance investments from mid-1990 to mid-1995 to be made under the Accelerated Water Supply Program. The project is expected to provide for the construction of about 11,000 shallow wells (up to a depth of 12 m) and some 7,000 deep wells (up to a depth of 60 m), al Level I systems, for unserved or underserved communities, and all wells would be equipped with handpumps. Another 5,000 existing but nonfunctioning wells would be rehabilitated, and cylinders and replacement parts would be supplied and installed. About 1,000 springs would also be developed, including construction of spring boxes and laying of about 3,000 km of transmission pipelines, and about 200 rainwater collectors would be provided. In addition, the project would finance the construction of 1,000 pilot water treatment units, utilizing appropriate technology for the removal of excessive iron and manganese to improve groundwater quality in certain rural areas. The equipment, materials and vehicles required for the implementation of these works as well as 25 workshop buildings would also be financed. Rural Sanitation 2.10 The proposed project supports the sanitation objectives of the first phase of the Sector Master Plan, which aims to distribute some 1.0 million toilet bowls for individual household latrines, construct toilet facilities for about 1,000 schools, and disinfect some 1,000,000 contaminated wells. The project would therefore finance the procurement of 1.0 million water- sealed pour-flush toilet bowls manufactured from PVC (polyvinylchloride) or other acceptable material, construction of 1,000 barangay school toilets, procurement of chemicals for the disinfection of contaminated public wells, a pilot project covering the construction of 100 communal/public toilets, a pilot project covering the procurement and installation of 100 wastewater treatment units to serve public sites and services projects, procurement of about 1,000 suliage removal units, provision of laboratory equipment for water quality surveillance, and the procurement of vehicles to carry out activities under the project. The wastewater treatment units are prefabricated sewage digesters made of plastic for single or multiple family use; the feasibility of using these units for National Housing Authority projects would be demonstrated. Sullage removal units, comprising a PVC or fiberglass kitchen sink, fittings and a soakaway pit, would also be provided to demonstrate sanitary disposal of kitchen wastes in rural areas. Technical Assistance 2.11 The project would include comprehensive technical assistance for project implementation, preparation of Provincial Sector Plans, training and community development, quality control, preparation of future projects, and updaing of the Master Plan. The inputs, although substantial, are necessary. They cover both the implementation activities and the preparation of future projects. The training and community development input, which is essential to the sustainability of the project, is very labor-intensive (see Annex 5), but much of this assistance will be provided by local consultants and departmental staff. Major tasks included are summarized below. 2.12 Proiect Imnl2lmentation. Consultants would participate in project implementation to assist the Project Coo.-dinating Committee (para. 3.2) with its coordination and reporting activities, - 12 - and the implementing agencies with the planning, implementation and monitoring of project progress as well as specialized tasks such as hydrogeology to locate well sites properly. Most of the investigations and detailed design for the simple rural water systems would be carried out by DPWH, following already adopted standard specifications and procedures and supported by consultants as needed (terms of reference are attached as Annex 7D). 2.13 Prenaration of Provincial Plans. Details of the project water supply and sanitation works to be carried out in Luzon would be formulated in accordance with Provincial Water Supply, Sewerage and Sanitation Sector Plans to be prepared for each of the 37 provinces involved. To decentralize the planning and implementation of infrastructure facilities throughout the country, the Government has decided that such plans will be prepared by the provincial governments, under the general supervision of DLG. Technical assistance to the 37 provincial governments would therefore be provided under the project. The Provincial Sector Plans would include outline long- term development plans to the year 2010 as well as medium-term investment plans indicating both iuvestment and institutional development needs during the next five years. Terms of reference for this assistance are given in Annex 7A. During negotiations agreement was reached with the Government that Provincial Water Supply, Sewerage and Sanitation Sector Plans, satisfactory to the Bank, will be prepared, adopted and implemented for the 37 provinces to be assisted under the project, in accordance with an agreed format and schedule. To facilitate a rapid start-up of project implementation, preparation, adoption and putting into effect of at least eight provincial development plans, in a form acceptable to the Bank, would be a condition of effectiveness of the proposed loan. 2.14 Trainins and Community Develonment. Experience with rural water supply programs has indicated that their success is largely dependent on the ability and willingness of the rural communities to become self-sustaining in managing system operations and maintenance. The project will therefore finance skills training for the BWSAs operating the water facilities being provided. Under this component, up to 17,000 Level I BWSAs are expected to be formed, creating a demand for the training of some 34,000 BWSA officers in the management and financial upkeep of their Associations. Training will also be offered under the project to 22,000 caretakers to operate and provide preventive maintenance to Level I water supply systems constructed or rehabilitated under the project. DPWH would be responsible for the provision of technical training and would be assisted by DLG. The project would also finance the in-service training of about 75 DPWH staff each year to develop their capabilities in technical, institutional, and community development activities. The existing DPWH training program and other local training programs would be used for this purpose. 2.15 Physical inputs would be complemented by DOH staff training anid a rural health and hygiene education program. Training would be offered to about 4,000 rural sanitary inspectors, 150 sanitation trainers, and 210 chemists and laboratory technicians, the latter to work at existing laboratories in support of DOlls ongoing drinking water quality management programs. DOH would provide this training through expansion of its existing training programs. The national health education program would be conducted through the DOH organizational network and would focus on women and children in rural commnunities. The program would be supported by centrally-produced information, education and communication materials. 2.16 Community development activities to be undertaken in conjunction with the project's water supply and sanitation components would be carried out by DLG, which has a mandate to promote community participation in the formation of BWSAs. Under the project, DLG would (a) hold meetings and workshops to mobilize community support for the formation of BWSAs to help carry out both the AWSP and sanitation improvements and (b) post one DLG staff member to act as a Community Organizer in each of the 37 project provinces in Luzon, to facilitate implementation. The Community Organizers would liaise with the BWSAs, the local government authorities and the line agencies. Details of the project's training and community development program are provided in Annex 5. During negotiations, agreement was reached with the - 13 - Government on the implementation under the project of the training and community development program described in Annex 5 and on the posting by DLG of Community Organizers in each of the project provinces in Luzon during the preparation and implementation of the respective Provincial Sector Plans (para. 2.13). 2.17 Oualitv Assurance and Control. The project would provide assistance in improving local handpump manufacturing capabilities and in establishing local quality assurance and control capabilities, with the help of the UNDP/World Bank 'Water Supply and Sanitation Program and specialist consultants (paras. 2.47, 3.3 and 3.6). Terms of reference for these activities are provided in Annexes 7E and 7F. 2.18 Preparation of Future Proiects. The project would also finance consultants to assist LWUA in preparing studies for future investments under the Sector Master Plan. LWUA would carry out feasibility studies and designs for about 70 urban water supply schemes to meet Master Plan objectives as well as a study for its own financial restructuring, with the aim of putting the agency on a sound financial footing and to correct problems which arose during the economic depression of the mid-1980s and the after-effects of the revolution. This work would lay the foundation for a possible Second Sector Project. In response to the need for greater attention to the sewerage and sanitation subsector (para. 1.15) the Government has requested LWUA to prepare a national strategy for the subsector and, in light of the priorities thus identified, an investment project for external support. The proposed project would therefore provide LWUA with consultant assistance to prepare a National Sewerage and Sanitation Subsector Master Plan and feasibility studies for its priority investments needs. This work would lay the foundation for a possible Third Sector Project. Terms of reference for this assistance are provided in Annexes 7B and 7C. 2.19 Uodatini of Master Plan. Assistance would be provided to DPWH to update the Master Plan and to establish a data base to monitor the status of the sector as well as ongoing or proposed developments. This activity is included in the Terms of reference for consultants assisting with project implementation (Annex 7D). Status of Proiect Preparation 2.20 Project institutional arrangements, interagency liaison, and procedures and standards for the proposed works have been agreed and the Project Coordination Committee was established. Two Provincial Water Supply, Sewerage and Sanitation Sector Plans have already been prepared and a further six will be completed by loan effectiveness. Advance procurement of drilling rigs and engagement of consultants for project implementation are also in progress. Training workshops for the staffs of the implementing agencies have already been held. Implementation is wherefore expected to have a reasonably smooth start and would proceed as additional Provincial Sector Plans are prepared. E. Cost Estimates 2.21 The cost of the proposed project, including physical and price contingencies, is estimated at P 3,103 million (US$132.8 million equivalent), including US$54.1 million (41%) in foreign exchange and an estimated US$10.6 million equivalent in taxes and duties. The project cost includes an estimated US$65.5 million (about 61% of total base costs) for the water supply component, US$17.5 million (16%) for sanitation, and US$24.7 mill-on (about 23%) for technical assistance. The base costs are expressed in March 1990 prices. Physical contingencies average 8.9% of the base costs of all project components. Price contingencies are estimated at 9% per annum for local costs in 1990 and 1991 and 8% per annum thereafter and, for foreign costs, 7.2% in 1990 and 4.4% for each year thereafter. Price contingencies are equal to about 13.2% of base costs plus physical contingencies. Estimated costs are given in detail in Annexes 4A and 4B and are summarized in Table 2.1. - 14 - Table 2.1: PROJECT COST SUMMARY /& Local Foreign Total Local Foreign Total Foreign ___(p alio) --- --- (USm rntion) --- as % of total Rura Water Supply Civil Works 611.9 . 684.2 28.6 3.4 31.9 11 Equipment, Materiab, Vehicles 164.8 556.0 720.8 7.7 25.9 33.6 77 Rural Sanitation Civil Works 96.4 17.0 113.4 4.5 0.8 6.S 15 Equipment, Materials, Vehicles 43.1 219.0 262.1 2.0 10.2 12.2 84 Technical Assistance Project Implementation and Administratiorn 97.0 45.2 142.2 4.5 2.1 6.6 32 Preparation of Provincial Investment Plans 8.8 13.2 22.0 0.4 0.6 1.0 60 Training and Community Development 167.3 25.4 192.7 7.8 1.2 9.0 13 Quality Control and Asurance 0.0 13.1 13.1 0.0 0.6 0.6 100 Preparation of Future Projects 162.4 10.3 162.7 7.1 0.5 7.6 6 Master Plan Updating 2.1 0.0 2.1 0.1 0.0 0.1 0 Base Cost (March 1990 prices) 1,343.7 971.6 2,3156S 62.6 45.2 107.8 42 Physical Contingencies 156.8 67.3 224.1 6.7 2.9 9.6 S0 Price Contingencies 342.0 221.7 563.7 9.5 6.0 15.6 39 T_otal Cosa 1.842.5 1260.6 3S01 IS ! i 1 1S2. 41 /a Columns may not add up due to rounding. 2.22 Cost estimates are based on unit rates for similar works being carried out under the Rural Water Supply and Sanitation Project (Loan 2206-PH) and other ongoing projects. Average cost estimates are considered reasonable and realistic. About 1,000 person-months of consultant assistance are expected to be required, including 750 person-months of local consultants and 250 person-months of foreign consultants. F. Financin Fl1an 2.23 The proposed Bank loan of US$85 million would finance about 75% of the total project cost of US$132.8 million, excluding duties and taxes of US$10.6 million and US$7.2 million for consulting services already contracted by LWUA which are not eligible for Bank funding and US$1.2 million of project preparation activities, for which the Government does not seek Bank funding. The loan would cover US$54.1 million in foreign exchange costs and US$30.9 million equivalent or about 39% of local costs. The Government would finance the balance from its own resources but is seeking grant financing for a number of technical assistance activities and hopes to identify donors to assist with the financing of the sanitation component. Grants for project preparation activities, estimated at about US$1.2 million equivalent, are under discussion with bilateral donors. If further grants are not mobilized as and when required, the Government will meet any shortfalls from its own resources. The Bank loan would be made to the Republic of the Philippines and would be passed on as normal budgetary appropriations to the implementing agencies by the Department of Finance. 2.24 The beneficiary communities would be expected to contribute about '0% of the cost of the water supply component. The value of this is roughly estimated to be P 200 million. As in Loan 2206-PH, this is expected to be in the form of voluntary labor or in kind, e.g., the provision of land for the well site and time spent in attending training and community development activities. Communities would also make a relatively large contribution to the sanitation component - 15 - through the voluntary construction of toilet facilities. i.e., digging and constructing the pit latrine and building the superstructure. The value of these voluntary contributions could be in the order of P 600 million or about 80%. These contributions have not been included in the cost estimates or financing plan. Financing from official sources would be as follows: Table 2.2: PROJECT FINANCING PLAN (US$ million) Local Foreign Total Government 47.8 0.0 47.8 World Bank S4,1A Total 78.7 54.1 132.8 2.25 The project would require total annual budgetary allocations from the Government of about P 300 million in 1990, about P 700 million in 1991, about P 800 million in 1992, about P 700 million in 1993, about P 600 million in 1994 and P 100 million in 1995. These requirements comprise a relatively small share of the government's allocation for developments in the Water Supply, sewerage and Sanitation Sector, and the proposed project will not place an undue burden on the Government's budget. About 75% of the project's financial requirements would be financed by the Bank loan and other external sources. Annual budgetary allocations required for each implementing agency are given in Table 2.3 below. Table 2.3: ANNUAL BUDGETARY REQUIREMENTS FOR THE PROJECT (P million) Year DPWH DOH LWUA DLG Total 1990 191 96 3 23 313 1991 386 166 84 32 668 1992 470 157 105 27 759 1993 504 167 - 19 690 1994 431 134 - 10 575 1995 62 36 Total 2.044 7 191 11 I. 2.26 The implementing agencies plan to carry out project activities at a faster rate than is reflected in these projections, so as to achieve the targets set by the Accelerated Water Supply Program; this would increase the annual budgetary appropriations that the Government would be required to provide the implementing agencies. 2.27 To ensure the continuity of activities begun under the Rural Water Supply and Sanitation Project (Loan 2206-PH) and to be expanded under the proposed project, the Government has requested retroactive financing of the procurement of equipment and engagement of consultants required for project implementation. This would amount to no more than US$8.5 million or 10% of the loan amount. Hence, retroactive financing under the proposed loan, not to exceed US$8.5 million, for expenditures made after January 1, 1990, would be made. - 16 - Cgst Recoverv 2.28 Recognizing the rural population's limited ability to pay for all costs associated with the provision of a safe water supply, the Government in 1989 issued NEDA Board Resolution No. 5, which commits the Government to meet the full cost of source development of Level I rural water supply systems, i.e., wells or developed springs. The communities thus senred are, however, required to meet the capital cost cf any reticulation works to provide standposts and to meet all operation and maintenance costs. For service through shallow wells, deep wells and developed springs, the estimated average monthly water fee paid to the BWSAs, based on the formula developed under the implementing guidelines for the AWSP (which includes a provision for depreciation as appropriate), would be about P 31 per household or an average cost of about P 3.70 per cubic meter. The income of a rural family at the second decile of the household income distribution was estimated in 1989 at about P 1,20C per month. While it is possible that rural incow,-s may improve somewhat in the future, the average monthly water fee would constitute about 2.7% of household income in 1990. This is regarded as a reasonable price which consumers can afford tnd are willing to pay. However, if rural household incomes were to increase substantially, the Government's pricing policy and cost recovery standards would need to be reviewed. During negotiations, agreement was reached that the Government will, commencing in 1991, undertake biennial reviews of its water pricing policy and cost recovery principles and shall discuss and implement the results and recommendations of such review with the Bank by the end of the calendar year in which the review is undertaken. The pour-flush toilet bowls would be issued to beneficiaries under the project free of charge in order to encourage all families to install household latrines for the sanitary disposal of excreta. The cost of these units is relatively low, at about P IS0 each, and the recipients will make a substantial additional investment, estimated at about P 600 each, through self-help, in digging and constructing the pit latrine and building the superstructure. The Government's pricing policy in this regard is considered appropriate. G. Procurement 2.29 Procurement arrangements for the project are summarized in Table 2.4. Equipment and materials such as shallow- and deep-well handpumps, vehicles, toilet bowls, pilot wastewater treatment units, and water testing equipment needed for the project totaling about US$52.1 million, including taxes, will be procured through International Competitive Bidding (ICB) in accordance with the Bank's procurement guidelines. A margin of preference equal to 15% of the CIF price or the prevailing import duty, whichever is lower, will be granted to domestic manufacturers in bid evaluation. All ICB contracts will be subject to the Bank's prior review. Locally-available items of equipment, materials, spare parts and supplies costing less than US$200,000 per contract and totaling about US$2.5 million in aggregate will be procured follow:ng Local Competitive Bidding (LCB) procedures acceptable to the Bank. The Bank's prior review of contract documentation will be required for all LCB contracts amounting to more than US$100,000 each. 2.30 Civil works for the construction and rehabilitation of wells, development of springs, provincial workshop buildings, pilot wastewater treatment units, rainwater collectors, barangay school toilets, sullage removal units and other minor works totaling USS41.5 million would be procured through LCB procedures satisfactory to the Bank. These works will be widely scattered throughout the project area, and, despite the packaging of contracts where possible, the size of contracts is expected to be too small to attract foreign contractors. However, foreign contractors would not be excluded from bidding. To facilitate rapid implementation and achieve standardization and economies of scale, DPWH District Engineers will package well drilling and construction and handpump installations under contracts as follows. a minimum of about 100 wells per contract, with each coiaract estimated at about US$30,000 for shallow wells and US$200,000 for deep wells. All LCB civil works contracts amounting to more than US$500,000 will be subject to the Bank's prior review of bidding documents before bids are sought. Civil works amounting to about US$9.1 million will be procured through force account. Of the total value of contracts for - 17 - equipment, vehicles, and civil works estimated at US$95 million, about 70% will be subject to prior review by the Bank. 2.31 The bulk of training and community development activities would be arranged through existing departmental training progrums. with some overseas and local training as appropriate. 2.32 All consulting services will be obtained in accordance with the Bank's Guidelines for the Use of Consultants. Table 2.4: PROCUREMENT SUMMARY (USS million) Procurement Method/ Project Element ICa LCB Other Total Coat Equipment, 52.1 2.5 - 54.6 materials, vehicles (41.5) (1.8) (43.8) Civil works 41.5 9.1 50.6 (26.9) (6.9) (32.8) Training and community ^ - 13.7 13.7 development (8.9) (3.9) Consulting services - - 13.9 18.9 (6.0) (6.0) Total 52.1 44.0 H.7 132.8 (41.5) (28.7) (14.8) (86.0) Notes: 1. Amounts shown for each project element include contingencies. 2. Figures In parenthes are the respective amounts financed by the Bank loan. H. _isbursements 2.33 The proceeds of the Bank loan would be disbursed against eligible expenditures as follows: (a) EauiDment. Materials and Vehicles: 100% of foreign expenditures; 100% of local expenditures (ex-factory); and 65% for other locally-procured items. (b) Civil Works: (i) 57% of the unit cost of completed shallow wells with pump, deep wells with pump, spring developments, rehabilitated welis, workshop buildings, toilet units, and school toilets. The disbursement for these works includes related training and community development activities (para. 2.35): (ii) 57% of the expenditures on other civil works (including water treatment units, rainwater collectors, pilot public/communal toilets, s-illage removal units, and pilot waste water treatment units). (c) Consutin Services 100% of total expenditures for consulting services. - 18 - 2.34 To facilitate disbursement, a Special Account would be established at the Philippine Central Bank, with an initial deposit of US$5.0 million equivalent, thc estimated average expenditure for a four-month period. The implementing agencies wou'hi draw upon the Special Account for all disbursements, and the Department of Finance, which would administer the Special Account, would prepare applications for replenishment of the Account when funds are drawn down to 50% of the initial deposit or three months of expenditures, whichever comes first, subject to a minimum claim for replenishment of US$200,000. 2.35 In view of the very large number of small works to be carried out under the project, a significant proportion of disbursements will be processed through the use of Statements of Expenditure (SOEs). These bulk applications for reimbursement would be prepared by the implementing agencies on the basis of Certificates of Acceptance, of Compliance and of Completion. Certificates of Acceptance, which would be issued when BWSAs accept the completed wells or developed springs, would certify that the complementary sanitation improvements as well as training and community development activities had also been completed. The Certificates of Compliance issued by Rural Sanitary Inspectors would indicate that sanitary improvements had been correctly installed or completed. Certificates of Completion prepared by DPWH regional and district engineers would indicate the satisfactory completion of workshops, water treatment units and rainwater collectors. Because of the small sums and many activities related to project expenditures for training and community development, disbursement for individual activities in this category is not considered practicable. Consequently, funds for these purposes have normally been included in the disbursement allowances for related civil works as noted in psra. 2.33 (b). 2.36 Disbursement for civil works as described in para. 2.33 (b) (i) would be made against agreed unit costs for each activity; these unit costs may be reviewed from time to time by the Bank and Government. Disbursements for other minor civil works and for training under the provisions of pam. 2.33 (c) would also be made against SOEs, based on actual payments made to contractors or suppliers. 2.37 The SOEs would be checked and verified by the consultants assisting with project implementation. The completed and verified SOEs would provide the documentation for withdrawals from the Special Account. SOEs and supporting documents would be kept by DOF and would be available for review by the Bank. Sample SOEs for the three categories of withdrawals are given in Annex 4D. 2.38 A schedule of estimated disbursements under the proposed loan as well as the disbursement profile for previous water supply projects in the Philippines is attached as Annex 4C. Disbursement of the proposed loan is expected to be more rapid than that for past projects since this is regarded as a time-slice operation, financing part of the ongoing Sector Master Plan and the related Accelerated Water Supply Program. The loan closing date is th' refore expected by December 31, 1995. 1. Environmental Aspects 2.39 The provision under the project of safe and adequate water supplies and proper sanitation is expected to have positive environmental effects benefitting the health of the population served. Approximately two thirds of the country's rural population still lack safe water supplies and must rely on contaminated sources of water such as open dug wells, rainwater cisterns, lakes, rivers and streams. Similarly, a large portion of the rural communities lack suitable facilities for sanitary excreta disposal. The lack of such facilities is the major contributing factor in the incidence of water-borne and water-related diseases, which predominantly affect infants, children and the poor. Provision of new water supply and sanitation facilities and the rehabilitation of existing water sources under the project would provide some of the basic needs of the communities affected, and would thus benefit their heaith and quality of life. The infrastructure portion of the - 19 - project would be supported and enhanced by health and hygiene education provided in the barangays. 2.40 The environmental benefits of the proposed project would be: (a) cleaner homes and community environments; (b) less stream pollution; and (c) more rational and prudent water use. Water supply and sanitary facilities would be planned, designed and constructed under criteria which protect the conditions of the natural and man-made environment. Such facilities are not expected to have adverse environmental impacts because of their simplicity and low volumes of water used. No resettlement of the local population will be required. 2.41 The environmental sanitation component of the project will play a major role in introducing personal and household hygienic practices through effective health education, leading to improved environmental health conditions. In addition to disposal of human wastes through properly constructed school and family latrines, the project will provide a means for disposal of sullage waste from kitchens and e'sewhere to prevent the formation of polluted and unsanitary puddles around houses. The elimination of odors and insects' access to the pit by the water-seal pour-flush type latrines will further add to the quality of the rural environment. Furthermore, the health and hygiene education component of the proposed project will also aim to improve other environmental health parameters such as sanitary surveillance and protection of water supplies, linkages of water and sanitation with diseases, sanitary handling and disposal of solid wastes, vector control, food hygiene and sanitation, and environmental health aspects of rural housing. The environmental impacts of the proposed water supply and sanitation systems are therefore judged to be positive. J. Women in Development 2.42 Improvements in the provision of basic human needs such as water supply and sanitation would have a positive impact on the lives of the rural women and children benefited under the project. In addition to the health benefits expected, the more accessible water supplies delivered under the project would result, especially in poor rural households, in savings of women's time and effort by obviating their need to carry water over long distances, as is now often necessary, and reducing the time needed to care for sick relatives, especially children. This time may then be put to productive use. Thus, the project's provision of an easily accessible, potable water supply and improvements in environmental sanitation is expected to particularly benefit women in the rural barangays. 2.43 The project has also been designed to increase the participation of women in the planning, operation and maintenance of the water and sanitation services provided. Current regulations governing the establishment and management of BWSAs appear to limit membership to heads of households. Since the latter would normally be male, the regulations implicitly exclude women from direct participation in BWSAs. To help ensure the increased participation of women in the sector, during negotiations, agreement was reached with Government that it would ensure that women have equal access to membership and leadership roles in BWSAs, and that records on project training and community development activities wL' show the gender of participants. Women would therefore be given increased opportunities under the project to: (a) play important roles in the formation and organization of BWSAs; (b) serve as office holders in BWSAs; (c) gain skills and experience in the planning, implementation, and management of water supply and sanitation projects and in financial and technical aspects of system operation and maintenance; (d) increase the involvement of other barangay women in these activities as well as in health education courses (e) participate in training programs for well caretakers, operators, mechanics and related courses; and (f) promote self-reliance and effective community participation in the installation of water supply facilities and construction of family latrines. - 20 - K. Poverty Aleviatign 2.44 The project contributes to poverty alleviation by providing a scarce commodity, clean water, within reach of the poor, who are normally not offered this basic service. In the long term, project activities are expected to raise the standard of living in the rural baran3ays. The safe water supply and sanitation to be provided under the project would initially have the direct benefit of improving the health of the project population, as indicated by decreased mortality and morbidity. In turn, improved health is expected to lead to higher productivity and income, increased employment, improved labor use and higher farm output. The additional income thus generated would result in further social and economic improvements and help to alleviate poverty in the rural areas. L. Assistance to Private Enterprise 2.45 Considering the substantial volume of work needed to achieve the objectives of the Accelerated Water Supply Program, the active involvement of the private sector will be imperative. Recognizing this need, the Program's implementing guidelines under RA 6716 (para. 1.18) specify that the DPWH District Offices should carry out Program activities by both force account and contract, with the arrangement selected dependent on factors such as equipment capacity, availability of drillers and contractors, time schedule, hydrogeological conditions, and project location. DPWH District Engineers are empowered to assess the situation and decide on the appropriate implementation arrangement. DPWH Department Order No. 117 S of 1988 also mandates that projects undertaken by the Department through force account in a given district shall not exceed 25% of the total value of all projects therein; hence, 75% of the projects will be carried out by the private sector. 2.46 A review of the capacity and quality of the local private sector with respect to handpump manufacture, well drilling, and well and handpump maintenance found the following: (a) Handoumo Manufacture. The Philippine private sector currently lacks a capacity for high volume manufacturing and quality control of handpumps. However, with the provision of assistance to local manufacturers and the establishment of clear specifications, this capacity could probably be established over a 12-month period. (b) Well Drilling. Current local private sector capacity for well drilling at the volume required under the Accelerated Water Supply Program also appears inadequate. DPWH will therefore initially carry out the Program ubing its own staff, at least until the private sector is able to participate. However, through appropriate packaging of contracts, including possible turn-key operations, large local and overseas contractors will be provided the opportunity to bid and, if successful, to participate in project implementation. (c) Maintenance Procedures. To instill a greater degree of responsibility for quality control of items and services provided for the Program by DPWH, the handpumps and wells it provides should have a warranty period of one year following installation, during which time it will be responsible for maintenance (para. 3.20). Simultaneously, efforts will be made to develop a private sector capacity for maintenance of wells and handpumps. 2.47 To address the needs identified, with the aim of eventually reducing dependence on imported equipment and technologies, the project includes the provision of assistance to the private and public sectors for improving quantitative and qualitative capabilities in the manufacture, installation and operation of water supply facilities. This assistance will be provided by staff of the UNDP/World Bank Water Supply and Sanitation Program, based in Singapore, which has extensive experience in the development of specifications and procedures for the manufacture of - 21 - handpumps, well development, maintenance procedures and quality inspection and assurance. Assistance in training hydrogeologists and well drillers will also be sought from the International Training Network (para. 1.20). Terms of reference for this assistance are gi; sn in Annex 7F. 3. PROJECT IMPLEMENTATION A. Imolementation Resognsibilities 3.1 Project implementation would be the responsibility of DPWH for the rural water supply component, DOH for the rural sanitation component, and LWUA for the preparation of future projects. DLG would be responsible for training, community development and liaison activities. Project Management Offices (PMOs) already established within DPWH, DOH, and DLG would coordinate project activities within their respective departments; the Administrator of LWUA would be responsible for the various studies being prepared by LWUA for the formulation of future sector projects. Details of implementation are given in Annex 2B. 3.2 Overall coordination of project activities would be handled by a Project Coordination Committee (PCC), which has been established to review Provincial Water Supply, Sewerage and Sanitation Sector Plans, prepare programs and budgets, coordinate among the implementing agencies to ensure complementarity in the provision of water supply, sanitation, community development and training, and prepare and submit reports on the progress of project implementation. The PCC would be chaired by the Director of the DPWH Project Management Office for Rural Water Supply (PMO-RWS) and would include the following as members: the Project Manager of the DOH component, the Project Manager for DLG activities, a LWUA Deputy Administrator, and a representative of NEDA. The PCC would be serviced by the PMO for Rural Water Supply in DPWH, which would act as its secretariat with the assistance of consultants. The PCC would meet at least quarterly to carry out its duties and to review and approve Quarterly Progress Reports or project implementation for submission to: (a) the Secretaries of the three central government departments involved in the project and the LWUA Administrator, (b) concerned provincial governments, and (c) the Bank and other financing agencies. Minutes of PCC proceedings would be prepared and distributed with the Quarterly Reports. Coordination at the working level and the provision of clear operational guidelines for the functioning of the PCC and for project implementation are expected to prevent the coordination problems that arose under Loan 2206-PH (para. 1.29), which was coordinated at the ministerial level. The role of the PCC is further covered in Annex 2B. During negotiations agreement was reached with the Government that project implementation would be in accordance with the arrangements given in Annex 2B. Agreement was also reached that the Government would organize and conduct a Project Launching Workshop by December 31, 1990 in a manner satisfactory to the Bank. Water SuDDlV Comoonent 3.3 The proposed project would be part of the Accelerated Water Supply Pr.. ,ram and would follow the implementation arrangements established for that Program. The DPt-! f MAO- RWS would have overall responsibility for implementation of the project's water supply component. Under its guidance, the DPWH Regional and District Engineer's Offices (RDOs/DEOs) would manage the construction and installation of new water supply systems and rehabilitate existing facilities. DLG staff would initiate the formation of BWSAs, assist in the BWSA registration process and conduct training courses. The specific works would be carried out as determined by the PCC in response to the Provincial Sector Plans, which would be prepared by the provincial governments with the assistance of consultants engaged and supervised by the DLG-PMO. Overall institutional arrangements for AWSP implementation are shown in Annex 2B. As a quality assurance measure, during negotiations agreement was reached with Government that consultants would be engaged to ensure quality control and obtain quality assurance in respect of handpumps, wells and toilet bowls. Outlines for the development of specifications for handpumps and well - 22- drilling are given in Annex 3; DPWH will, with the help of consultants and the UNDP/World Bank Team, develop these specifications. Terms of reference for the consultant and the UNDP/World Bank Team are given in Annexes 7E and 7F. 3.4 As agreed by DPWH and DLG in the Memorandum of Agreement (August 1989) which defines AWSP responsibilities, DPWH would handle all physical implementation and technical supervision of Level I water supply systems, and DLG would strengthen the technical capabilities and commitment of the local governmenti and communities to implement and operate the systems provided. Specifically, DLG would (a) conduct training programs for the local government units (LGUs) in the planning and management of projects, with technical assistance provided by DPWH; (b) assist the LGUs in organizing BWSAs and supervise the municipal and city councils in registering the BWSAs, and (c) in cooperation with the LGUs, conduct training programs for BWSAs in the operation and maintenance of completed Level I water supply systems. Sanitation Component 3.5 The DOH Project Management Office would be responsible for overall supervision of the sanitation program and would provide nationwide planning, programming, management, monitoring, reporting and logistic support to its District Offices; the latter would be responsible for the actual implementation of project activities. The central PMO would also manage the bidding, procurement and supply of equipment and materials. 3.6 The PMO at DOH's regional level would be responsible for monitoring operations in the region, including training and guidance on technical matters provided by senior sanitary engineers and support staff. At the provincial level, sanitary engineers and supervising sanitarians under the Provincial Health Officer would be responsible for training and providing technical assistance to the local inspectors. At the municipal level, the Municipal Health Officer, au .eader, and the sanitary inspectors would be largely responsible for advising and supervising the local communities on the private construction of sanitary toilets. The sanitary inspectors would be assisted by health workers and midwives from Rural Health Units. Activities related to health education, training, community motivation and the organization of toilet construction and water quality monitoring would be carried out at the municipal level through the primary health care delivery organization (para. 3.12). As a quality assurance measure, during negotiations agreement was reached with Government that consultants would be engaged by December 31, 1990 to inspect the conformance of toilet units to specifications before delivery is accepted. Provincial Water SuDply. Sewerage and Sanitation Sector Plans 3.7 The Provincial Governments would prepare the Provincial Water Supply, Sewerage and Sanitation Sector Plans (with the help of consultants engaged by DLG), monitor implementation progress, be a party to the formal hand-over of completed water supply facilities to the BWSAs, and monitor the continuing operation of facilities and report their findings to the PCC at least once a year. 3.8 In response to each Provincial Sector Plan, the PCC, with the assistance of the project implementation consultants, would prepare implementation schedules covering all phases of the Plan, from planning to operation and maintenance. The detailed schedules would include: (a) preparatory work and project mobilization; (b) detailed activities during the BWSA pre- formation phase; (c) formation of BWSAs and undertaking of community development and training activities; (d) equipment and materials supply, procurement, delivery, stores handling and all related logistics support; (e) hydrogeological surveys, detailed surveys and construction schedules for drilling, installation of handpumps and construction of household and school latrines; (f) activities related to the preparation of information, education and communication materials; (g) handing over of water supply facilities to BWSAs and (h) training of BWSAs in operation and maintenance. - 23 - B. Implementine Aaencies 3.9 The capabilities ot the implementing agencies are considered adequate to handle the activities planned under the project. Both DPWH and DOH, which would have the greatest project responsibilities, have already implemented similar works under the earlier Rural Water Supply and Sanitation Project, and their technical performance, with some exceptions, was satisfactory. The organization structures of the four implementing agencies are shown in Annex 1. DeDartment of Public Works and Highwavs 3.10 The Department of Public Works and Highways (DPWH) is responsible for the planning, design, construction and maintenance of centrally-funded infrastructure projects. The DPWH field organization comprises 15 regional offices, 101 district offices and 60 city offices. At present, DPWH has an approved establishment of about 19,000 personnel, about 1,300 of whom are at headquarters in Manila and about 17,700 are at the field offices. In 1988, DPW'H had a budget of P 8.6 billion. Because of relatively low government salary scales, the Department has experienced a general shortage of experienced middle-level technical staff, particularly in the maintenance organization. To handle the overload, DPWH employs about 2,300 contractual employees. 3.11 DPWH already has a PMO for Rural Water Supply (PMO-RWS), which is responsible for the coordination and implementation of projects funded through DPWH budgetary allocations and external lenders. The PMO-RWS has a staff of 73: two regular government employees and 71 contractual employees. The total includes about 30 engineers, with an average of two years experience each, and 16 financial and administrative staff. The PMO is currently responsible for overseeing five foreign-funded projects and for the overall coordination and implementation of the AWSP. In view of the PMO's limited resources and heavy work load, the proposed project would provide DPWH with consultant assistance to ensure adequate supervision of project activities. Department gf Health 3.12 The Department of Health (DOH) is the principal health policy-making and implementing agency of the Government. It has five organizational levels: (a) central headquarters in Manila; (b) Regional Directors of Health and general and special hospitals; (c) Provincial Health Officers and provincial and district hospitals; (d) Municipal Health Officers; and (e) Rural Health Units--including midwives and barangay health stations. A reorganization in 1988 streamlined DOH management in order to improve the efficiency and effectiveness of health service delivery. At that time, responsibility for the operational budget was transferred to the provincial level, physical coverage of the public health care program was expanded, particularly at the barangay level, and responsibilities at each level of the health care delivery system were clarified. In 1988, DOH had a budget of P 5.3 billion. At present DOH has an approved staff establishment of about 69,000, about 3,000 of whom are at headquarters, about 57,000 are in the Regional Health Offices and about 9,000 are in the special hospitals. 3.13 The DOH Project Management Office, attached to the Office of Environmental Health in the Office of Public Health, is responsible for implementation of the sanitation program. It has a staff of 44, including 39 regular employees and 5 contractual employees. The total includes 3 medical doctors and 21 sanitary engineers. Like the DPWH unit, DOH's PMO must rely on the assistance of contractual employees or consultants for the implementation of the sanitatio1 program, due to limits placed on staff growth. - 24 - DeDartment of Local Government 3.14 The Department of Local Government (DLG) is responsible for the promotion of local autonomy by strengthening local government capabilities in delivering basic services. Its specific task is to supervise and assist the Local Government Units (LGUs) in the implementation of policies, orders and guidelines emanating from the executive and legislative branches of the Government that promote and insure local autonomy. The Department has some 5,900 permanent staff and is composed of the following staff and line offices the Bureau of Local Government Supervision, Bureau of Local Government Development, tNational Barangay Operations Office, Project Development Services, Support Services, Office of Public Affairs, and regional and field offices. DLG functions through 13 regional offices and through field offices established in all provinces, cities and municipalities which coordinate directly with local government leaders. DLG's expenditures have been increasing, from P 419 million in 1988 to P 524 million in 1989 and P 551 million budgeted for 1990. 3.15 DLG's Office of Project Development Services, attached to the Office of the Secretary, has a number of Special Project Offices which take care of the developmental functions of the LGUs. The Project Management Office for Rural Water Supply (PMO-RWS) was established to manage the USAID-assisted Barangay Water Program (para. 1.14). While the appropriation for the development of physical works was de-obligated, USAID has continued to support DLG in its institutional development role. The PMO-RWS will undertake the LGU institutional development and the community development to be carried out under the project. This office has about 45 staff members, divided among three divisions: monitoring, research and evaluation; engineering review and supervision; and training and organization. Local Water Utilities Administrtion 3.16 The Local Water Utilities Administration (LWUA) was established in 1973 to provide financial and technical assistance for the development of Level III water supply and sanitation services in urban areas outside Metropolitan Manila. About 800 municipalities potentially fall under its jurisdiction. In these municipalities, LWUA assists in the formation of Water Districts, which are autonomous from local government. In the future, as it implements an ongoing plan to regionalize its operations, LWUA is expected to play a larger role in coordinating and supporting overall regional water supply development. In 1987, when it absorbed the Rural Waterworks Development Corporation, LWUA gained the added responsibility of providing Level II water supply systems to small rural settlements. 3.17 LWUA has experienced considerable operational and financial difficulties due to the economic depression of the mid-1980s and the after-effects of the revolution. Serious management/staff disputes broke out which resulted in a succession of acting Administrators or officers-in-charge who managed LWUA but had only limited executive powers. As a result, LWUA has been virtually inactive over the past few years. However, a new Administrator was appointed in mid-1989, and LWUA is now on its way to regaining its previous status as one of the leading water supply authorities in southeast Asia. 3.18 LWUA has an authorized roster of 1,580 staff under its recently revised organization plan; as of mid-1989, however, it had only 927 personnel. In 1988, its capital and operating budgets totaled P 488 million and P 159 million, respectively, but actual expenditures on investments and operations totaled only P 202 million and P 89 million, respectively. Both locally- and externally-funded projects are implemented through LWUA's normal organizational structure, which eliminates the need for special Project Management Offices. LWUA does, however, appoint experienced staff to coordinate project implementation and liaise with external lenders. 3.19 Despite its past difficulties, LWUA remains a basically sound institution with a well-qualified work force. Apart from its financial difficulties which would be partly addressed - 25 - under the project (para. 2.18), LWUA is in a satisfactory condition to resume its activities in the sector and carry out the proposed project studies which would not only map its future sector strategy and investments but also plan for its financial restructuring. C. OLerations and Maintenance 3.20 Completed and fully functioning wells would be formally handed over to the BWSAs, which would accept responsibility for maintaining the wells. However, to ensure adequate quality control over the works carried out, DPWH would warrant the satisfactory performance of wells drilled and pumps installed against defective materials and poor workmanship for a period of one year after installation, during which time they would bear the cost of repairs due to defective installation or manufacture. Thereafter, the maintenance responsibility will fall exclusively on the users of the wells. During negotiations, agreement was reached with Government that DPWH would provide one-year warranties against defective materials and faulty workmanship on completed wells, including handpumps. 3.21 Routine maintenance of systems provided under the project would be the responsibility of the relevant BWSAs, with back-up support provided for more complex overhaul and rehabilitation tasks. Three alternative models of back-up maintenance support are possible. First, in areas where Water Districts (WDs) are able and willing to provide back-up support, the WDs would provide technical assistance and support to the BWSA in return for a fee; second, in other areas, DPWH Regional or District Offices or Provincial Public Works Offices would provide support on the same basis; finally, the Government would encourage a greater private sector role in these activities through the training of local technicians. Each Provincial Sector Plan will recommend the most appropriate operation and maintenance arrangements for the rural water supply facilities to be provided in the province. D. Monitoring. Progress Renortina and Sugervision 3.22 The monitoring arrangements for the proposed project have been designed with a view to promoting two key project objectives: to support government efforts in decentralizing appropriate operations to the local government level and to promote community participation in sector development. A bottom-up approach would therefore be taken in project monitoring, with the BWSAs, local DOH units and local government units responsible for the first level of data collection and reporting. To facilitate the introduction of this process in the Philippines and to ensure the smooth implementation of this first sector project for water supply and sanitation, rather detailed physical targets, standards and specifications, and implementation arrangements have been prepared for the use of the implementing agencies and local monitoring units. 3.23 Project monitoring would cover two areas: (a) the actual progress of implementing project components, i.e., in terms of achieving provincial plan targets, the expenditures incurred, and the quality of work; and (b) subsequent operations and maintenance, population served and measurable health benefits. A monitoring system would be put in place with the help of consultants to ensure the funneling of information from the grissroots level up through the local and provincial governments and to the PCC. Data on project progress would be reported by the BWSAs and local DOH staff to the local municipal governments, which would receive training in the preparation of periodic reports on project achievements for submission to the Pro;iacial Governments. The Provincial Governments would include this information in their annual updates of the Provincial Water Supply, Sewerage and Sanitation Sector Plans as well as in their reports to the PCC. The latter would also include the locally-based information in its reports, submitted as defined in para. 3.2. The monitoring indices to be used in the various reports are shown in Annex 2C. 3.24 The progress of project implementation would be reported in the Quarterly Project Progress Reports submitted by PCC to the Bank. The DPWH Project Management Office would - 26 - also submit a Project Completion Report on the overall course of project implementation within six months of the loan closing date. 3.25 Project supervision by the Bank will be coordinated through a Supervision Plan, which would be agreed during the project launching mission scheduled immediately following Board approval of the loan. Bank field supervision would require a total of about 60 staff-weeks during the life of the project, of which about 15 staff-weeks would be required during each of the first two years of implementation for project start-up, procurement, and specifications review. Supervision would be carried out by general water supply and sanitary engineering and finance staff; during the first two years of implementation, specialists would also be needed to provide assistance with the improvement of handpump manufacture and well-drilling activities, training and community development, and establishment of quality assurance and control capabilities. E. Accounts and Audit 3.26 DPWH, DOH, DLG and LWUA would establish and maintain separate project accounts for expenditures incurred under the project. Similarly, an account would be maintained by DOF, showing transactions in the Special Account. LWUA would prepare annual financial statements for its corporate operations. These accounts and annual financial statements, including Statements of Expenditure, would be audited annually by independent auditors, acceptable to the Bank, with the audit also including a separate opinion on Statements of Expenditures used as a basis for disbursement. 4. JUSTIFICATION A. Proiect Benefits 4.1 General. The safe drinking water and improved sanitation to be provided under the project would improve the health of the rural population in the project areas, reduce their medical and hospitalization costs, increase their effective nutrition - especially in children due to a reduction of intestinal parasites - and foster the productivity of the rural population. 4.2 Statistics on morbidity and mortality in the Philippines indicate that while the mortality rate has declined, the morbidity rate continues to increase, particularly for diarrheal diseases. Diarrheal diseases, which are strongly associated with unsafe water and poor hygiene and sanitation, are ranked second among the ten leading causes of morbidity, with an incidence rate of about 990 per 100,000 population in 1986. During 1981-85, the total number of cases of diarrheal diseases increased by an average 3.2% a year. It can be concluded that continued support to the rural water supply and sanitation subsector, using a comprehensive community-based approach which includes health education and community participation and is affordable to the poor rural communities, seems essential to improve the health of the rural population. 4.3 The project would also establish the institutional arrangements, standards and specifications required for an expansion of lending for water supply and sanitation development in the rural areas and for increased cooperation and participation in this development by central and local government and the local communities. The project particularly promotes and formalizes an increasingly participatory role for local government and NGOs in the planning and implementation of sector activities. In addition, a better balance in opportunities between rural and urban areas, more equitable access to social services, reduced use of forest resources to boil unsafe water, and improved environmental conditions in the rural barangays would also be brought about by project activities. Women and children who spend long hours fetching water would especially benefit from the project. - 27 - 4.4 Population Benefitted. The rural water supply component would provide corimunal service to clusters of households of about 20 families (about 130 people) from shallow wells, 30 families (about 190 people) from deep wells and 50 families (about 300 people) from developed springs. Close to three million people in Luzon will benefit from these facilities. The rural sanitation program would benefit about six million people nationwide. 4.5 Avorooriateness of Proiect Desian. Indicative levels of water supply service have been determined as 2 lcpd to sustain life, 20 to 30 lcpd to provide a minimum level of hygiene, and 80 to 120 lcpd to significantly enhance the quality of life. Domestic consumption in Metropolitan Manila was in the range of 135 to 160 lcpd from 1983 to 1988. For the proposed project, a target has been set of providing about 30 liters of potable water per capita per day from shallow wells and about 50 lcpd from deep wells, since, in the areas where the latter are located, alternate sources are not normally readily available. Supplies from gravitv-fed springs have been estimated at about 80 lcpd. The project design is such that the least-cost anc: most appropriate technology would be used. However, in the absence of economies of scale, the cost of rural water supply, particularly for deep wells, is not inexpensive (see para. 4.7). Sanitary pour-flush toilets are designed to minimize the quantity of water required for flushing and would be fabricated from durable PVC or other appropriate material. The project also includes the development and use of rainwater collection, wastewater treatment units and sullage removal. 4.6 Economic Evaluation. The project is designed to provide an integrated approach to sector development in the rural areas by including not only safe water and basic sanitation, but also health education in the use of the sanitary facilities, community development, community organization and institution building, which should contribute to overall community improvements. Due to the impossibility of assigning monetary values to these health and institutional benefits, the economic return on the overall project investment cannot be quantified. 4.7 The financial return on the project's water supply component has been estimated, however, based on a comparison of the expected production cost of water and, as a proxy for the water's value, the average price that rural consumers will pay for water produced under the project. The average per cubic meter cost of water to be produced under the project is roughly estimated at P 2.05 for shallow wells, P 3.94 for deep wells and P 3.20 for developed springs; the weighted average cost of water under the project would be about P 3.20 per cu m. The proportion of water derived from each of these sources is determined by the physical conditions in the project areas. The weighted average sales price of water is estimated at P 3.70 per cu m. The rate of return computed on this basis is about 29% for shallow wells, 5% for deep wells, and 8% for spring developments. The weighted average financial rate of return is 8%. which is considered reasonable for a social project of this type. The production cost of water derived from the analysis is close to the unit cost of about P 3.30 per cu m used in the economic analysis for the recently-approved Angat Water Supply Optimization Project (Ln. 3124-PH) serving Manila, under which domestic consumers would also be charged an average price of P 3.70 per cu m but where in addition profits would be earned from large commercial and industrial consumers. It demonstrates that the production cost and the selling price of water in the rural areas under this project, on average, is not necessarily less costly then water supply in large urban areas. 4.8 The financial rate of return under-estimates the project's benefits, since it excludes the many other direct and secondary socioeconomic benefits derived from the provision of a safe, potable water supply. This includes the value of time saved when fetching water over long distances is no longer necessary, conservation of fuel when boiling of water is no longer required, the economii gains from decreased mortality and morbidity rates, and savings in other preventive health costs. The value of safe drinkinp water can be inferred from the price which consumers 4 See: The Value of Water SuODlV and Sanitation in Development An Assessment of Health: related Interventions, WASH Technical Report, USAID, September 1987. - 28 - are willing to pay to vendors which can as high as P 0.30 per 20-liter can or a rate of P 15 per cu m for the minimal quantities needed to sustain life. The financial rate of return calculations and related test are shown in Annex 6. 4.9 No quantitative methods are available to evaluate the rural sanitation component. Nevertheless, its impact on the well-being, health and environment should be significant. The component is expected to have a major effect in reducing not only parasitical infections, especially ;. children, but also infant mortality and the death rate of young children due to enteritis and other diarrheal diseases caused by fly-borne vectors. The health education and household toilet construction program in the project is justifiable in terms of the reduction of these public health hazards. B. Ri,&k 4.10 The proposed project is part of a larger program and contains a number of innovations which necessarily imply an element of risk. The parallel implementation of water supply and sanitation improvements and related community development and training will require close coordination between the central and local governments. Since the cooperation envisioned has not always been forthcoming in the past, a Project Coordination Committee was established to oversee the various project participants, and procedures to be followed by that Committee and comprehensive performance monitoring requirements were developed. Lack of adequate counterpart funding in the longer term is also a potential risk. While the proposed project is but one of several projects in the Government's Water Supply, Sewerage and Sanitation Sector Plan 1988-2000 and is also in accord with the Medium-term Development Plan 1988-92, many competing investment objectives exist. Any deterioration in economic performance and henca in the availability of local counterpart funding would delay project implementation. 4.11 There is also the risk that the decentralization of responsibilities expected under the project may not proceed at the pace anticipated. The Bank is concurrently providing assistance to the Government in carrying out a Decentralization and Local Government Development Study, which is expected to lead to recommendations on a sound fiscal framework that would facilitate government decentralization plans. Ultimately, however, the sustainability of the program win depend on the BWSAs' ability and willingness to maintain the facilities provided. The project therefore includes a large training and community development program. Finally, under the Accelerated Water Supply Program in particular, the central government agencies will be required to meet very challenging implementation targets, in terms of the scale, quality and timing of program activities. To help ensure that these targets are reached while maintaining satisfactory quality control, the project provides substantial consultant assistance for project implementation, introduces changed procurement arrangements-- with the packaging of contracts for selected items, establishes a system for detailed monitoring of the progress of implementation, and provides assistance to advise on production techniques and carry out independent quality inspections. 5. AGREEMENTS REACHED AND RECOMMENDATION 5.1 During negotiations, agreement was reached with the Government that (a) it will cause the provincial governments of the Project Provinces to prepare, adopt and put into effect Provincial Water Supply, Sewerage and Sanitation Sector Plans, which shall be satisfactory to the Bank and be prepared in accordance with an agreed format and schedule (para. 2.13); (b) the Training and Community Development Program will be implemented as agreed with the Bank (para, 2.16); - 29 - (c) it will designate one DLG staff member to act as Community Organizer in each of the Project Provinces (para. 2.16); (d) it will, commencing in 1991, undertake biennial reviews of its water pricing policy and cost recovery principles and shall discuss and implement the results and recommendations of such review with the Bank by the end of the calendar year in which the review is undertaken (pan. 2.28)X (e) it will ensure that women have equal access to membership and management roles in BWSAs, and provide information about the involvement of women in the Project (para. 2.43); (f) implement the Project in accordance with a program acceptable to the Bank, maintain a Project Coordination Committee, and organize and conduct a Project Launching Workshop by December 31, 1990, in an manner satisfactory to the Bank (pam. 3.2); (g) ensure quality control and obtain quality assurance as agreed with the Bank in respect of specified goods (handpumps, wells and toilet bowls) provided under the Project (paras. 3.3 and 3.6); and (h) DPWH w;I provide one-year warranties to BWSAs against defective materials and faulty workmanship on completed wells and handpumps (para. 3.20). 5.2 A condition of loan effectiveness is the preparation, adoption and putting into effect of at least eight Provincial Water Supply, Sewerage and Sanitation Sector Plans, approved by the Bank (para. 2.13). 5.3 Subject to the above agreements and condition, the proposed project would constitute a suitable basis for a Bank loan of US$85 million equivalent, for a period of 20 years, including a grace period of five years, at the standard variable interest rate. The borrower would be the Republic of the Philippines. PHIUPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT DEPARTMENT OF PUBLIC WORKS AND HiGHWAYS Organizational Chart MHELWU 8UDEFECMTAM' AMg. sEOARY _. _AWs.:EREr _PLAN"" R6Gm# pO Y ADB alPrNET SERVIC VAT SERI0 _ suREwOF cAR REG ON vn _ gRD PR _OOuT r SUREWO -.EO . REIO Vo. W.SOr I U EA OEFO IEO i FMG i( FOT PRiE7 MA 8TA -f IY MATEACEI I II D IRECTOR UIO IUNINFRA- AWT 1^SECT.ARY SUtA OF N.C.Ft FtE q X STUTt MTERNAL AUT Ft ASTDgrS. I IPROJECTS S ERVICE I " DECTOR l g{_ { SUMM OF FIG NV-A RION Xl i I I I I ~~~~~~FLOOD CONTFBL FM-GMNN IV-9 REMXONe I&DRAINAGEI .. 1 I FCECTS ol RE1310 DEVEqLOPM I 1, 1 I ~~~~~~ParsJ I - SPEIA 1PROECTS EKA433 PHIUPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT DPWHI- PMO RURAL WATER SUPPLY PROJECTS Organizational Chart cv m I _r I q A3 | -| l t WRUR4L4 | 3 RUFAL EA 4 RR PHILIPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT DEPARTMENT OF HEALTH Organizational Chart Pr iPPINMESDICAL CAM _OCHJLOFSWECRETARY DANGERDOUS RUS MMAR SECRTA PUIBUC H ALTH MOMA EXEtMM[E srANA AND MNGMN SERVICE AND fAMLY FOR NArwL FIELI) REGULA1KMN 6FRVICE9 J NBERCIS | I HOSPITAL HO|SPRVITALS & FtUENSENAMDH ADM IRAIV _ CON1EOL _ PERATINS L_EH ALH _ LBRATORIES _ NDISR | CH"JUNICAE RADILOGALT | DSREIGTA FOI ANWNII jH NANTE M18A8ECONTOLI HEATH HEALTH OFF1CES g 11 DEEL TUBEASECUOSIS HOPIA PEAL NCIAL LIENIN AND MANAEMETlC | ONTERtL MANDENANI HEARLY EUATO CADVIOR _COMNICA BLEH HE_T DTHUC QUARATI H _om RURALY PRPlEEN t1t~~~~ ow t~~~4 HELHTALN PRODUCTIO I I ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~I _AIMLYPLANNN9 NU_r_O PHIUPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT OFFICE OF ENVIRONMENTAL HEALTH SERVICES Organizational Chart PREOUAURCIN PROJECT B18 8 A SMAAEt -LTT COM E OFIE GENERAL PROJECT STAFF PROECT STAFF <ENEUAL lECHNICAL SUPPORT IBRI>ASSSTED LOCALLY-FUNDED ADIWNISTRATIVE STAFF PROJECTS PROJECTS SUPPORT STAF F FI RST RURAJLI W8AND SAN.| ,FIRST SECTO1R PROJECT E 'I1 PHIUPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT DEPARTMENT OF LOCAL GOVERNMENT Organizatonal Chart uldw swratoy 0f ftx Watw6ppIy Is aUoed PALS -1 4~P I g I ~~~~~~~~~~~~~~~~~~~~~~~~0 a PHILIPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT DEPARTMENT OF LOCAL GOVERNMENT - PMO FOR RURAL WATER SUPPLY Organizational Chart . s~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~sf R I ~~Techr" c lIIMn b wtnrn l r n _ l l a M*"T r &fm " | I d I m*ftam Samn I d X E EKARM10ft ~ ~ @1 PHIUPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT LOCAL WATER UTIUTIES ADMINISTRATION Organizational Chart pa P8C IA NAtBENT SERINCES |INTERNAL AUDIT PUU ADMINIlRATO S ERVIES SERVICES | AND FINANCIAL | DNSEFIPAIV | AREAS I ARtEAS ON HUMAN 1t4 1-4 LON RESOlURCES FORM PATIN RNIN G WAtenYTA PROPERTY _ DIY1810N l 1 DWVU3ON AUDIT l 1MNQ | ADV180ORY DE8KN TFESR LIl GENERA DOUN DIVISION AND SUDGE7T SERV.I. E . IIEGULATORY CONSTMWM~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~A DIV1810N _ OlSION .ACCOUNTING _OPERATIO TRAINING SERVIM _F~~~~~~~~~~~~~~~0 EKi4SmI - 37 - Annex 2A Page 1 FHILIPPINM FIRST WAT SEWP,LY S13AE NO SANITATION MMTOR PROT Sector Hx-tar Plan: Phialcal T^argta. Inve_tMent Reauirmonts and Serviec Coverage First Stapp (1908-92) Iaple- Investment Populatlon carved Population carved Particulare _entetion Physical Targets requir-mants Addit. Cuaulativ. Addit. Cuaulativs agency (P si llion) (million) ( 1 2 8 4 5 6 7 8 A. Watr SJupuly 21J6L91 8 I. Matro Manila and Its 9S6 d 1,440 8,448 87 continguous areas 1. manila - Water Supply Replace 131S000 house con. 973.87 Project Remove 28,000 spagheti con. Replace 200 km pipelines Install 600 floa rec. atations Replace of 108,000 pcs. aster meter. Repair 22,80 pcs. moter cetera Install 12,000 pcD. matr meters Repair 300 pca. viave. Replace 2.250 pcc. valve 2. Metro Manila Water Construct 28 km na pipelines 829.51 Distributlon Project nwtal I 100o000 ne house con. Intercon. 72 cub, to cerve 15 600 FH In#ill 24 areas with secondary and tertiary pipelines Conat. tertiary pipelines for 160 low-income aroas Drill and equip 5 new deepwell. S. Manila Water Supply Complete ongoing works 176.08 Project II 4. Angat Water Supply Install new and upgrade old 5S,9810 Optiization Project auxiliary turbine pumps Const. now 6.4 km tunnel Conat. new 16.8 km Eapunw La Mesa Treatment Plant Conat.lInstall distribution pipelines, pumping stations and reservoir Install addtl. houe service connections S. Manila Water Supply Replace 104.000 house con. 1,048.40 Rehabilitation Project II Remove 19,000 spaghetti con. Replace 50 km pipelinea In-tal l 1,040 water mter. Repair 7,279 mater aters In-tal I8120 water meters Install 1,560 new valves Replace 11,440 water aters Repair or replace 1,560 valves S. Fringe Aroes Vater Supply Construct deep wells 1.02155 Project ConstructlInstall pipelino. Rehab existing facilities Install now house service connection 7 Water Supply Development LWA Construct shallow and deepal I- 161.64 in Rial OLO Construct/Install pipelines Develop springs Install nouse service connection I. Other Urban Ares D-lH Construct: OLC 450 eiped system (L-Il/IIl) LWUA Repai r/Rehab. 260 systems 424.00 ISt. Rural Areas Construct: 988 piped syste L_*-II/II1) 2,6S 00 87.460 point aourcss (L-I) 5S990,00 98.00 Sivrn 2,111W.6 I. Metro Mbni-a and Ito 1SS 1 9S6 6S contiguous areas 1. IETRSS I Construct sewor lines 288.16 Construct minor drainag Rehabi existing sever lines Install nw house sewer connections -38 - Annex 2A Page 2 o Ip Investmeat Peculation aerved PeOulation erved Particular- _mntation Physical Targets requirments Addit. Cuoulative Addit. Cumulative agency (P million) (million) (U) 1 2 8 4 6 7 6 2. IETRS lI Construct e km new double barrel 1.068.69 euttellI to MnlXa lOah t;onstruct 80 km trun coer and intoereptore Conatruct 400 km *oe maine and lateralI. Construct several mewerage lift stations Install new houme seawr connections Construct primry saver treatment plant II. Other Urban Areas 1 60000 0.09 0. 0.8 I Key cities LMA,OPW4 6 projects 1,44O.00 0.04 0.06 2 Key urban areas LMWA.DPdH 6 projects 60.00 0.0O 0.0O C. Sanitati Rural Armo M.21.707. Toilet construction DM 1,500.000 7.T4 28.22 14.78 76.6 We11 disinfection 800,0C0 2.00 T Ph,f 5ia 25021 I r l ..nnex 2A Page 3 PHILIPPINES flRST ATER PPLY. S tA0E ND SANITATION SJTIR PROJET Sector ,hMater Pin PlaclTargets. mnv.? illft r.mnts and Serv ic* Coverage. Fi rst Stage mpl*_ Invoctmnt Peeulat'gn d Pulatlun Zrv Particular* 2mtatian Phy Ical Targets requl ramente w . ........u AMIN 'au.v 1 2 a ~~~~~~~~~~~ ~ ~~~~~~~(P, Illion) (million)(1 I. Natro Nanila and Its 22 68921 1.440 6.448 centinague ar"a. 1. anlla - ater Supply Const. 118 a rockfillld dam 12.900.00 2.705 1. i53 10 97 Project Conat. 2.400 oId eater treatment plant Const. 14 km tunnel Canst. 23.2 mega watte hydro electric plant Conct. pumping stations and re*rvoi rs Insta ll 170.000 new hoeus service connections It. ether Urban Area LMV Construct: 6.915 9.025 23.506 18 95 654 Piped Systes_ (L-11/111) 6.S21 9.025 Repaii rRehab. 350 eyete_a 594 III. Rural Area oft". Construct: 2.874.21 2.715 3#.0 16 93 LJA 794 Piped Systems (L-II/III) 1,929.00 0.715 183,40 Point Source. (L-i) 755.4S 2.00 Rptair/Rehab. 21,000 system 161.25 Replaceant 9.500 system 28.50 S. Sectors Lm83. I. Matr Manila and Its continuouu area 1. 3RSS n NSs Comet. 6 km new double barrel 6t863.00 1.5 2.7 18 32 outfal l to fan I a ua Const. 80 ka trunk meer and Interceptors Cont. 400 kamovewr main- and lateral. Conat. several awerage lift stations Canet. primary aewr treatmnt plant It. Other Urban Area. 500.00 0.25 0.51 1.01 1. KIy Citi.s UKJA.OP 4 project. 480.00 0.08 0.14 2. Key Urban Area, I AA.DOW 8 project. 20.00 0.06 0.11 C. Sauitatio n D Rural Ar Tollt Centructian 2801,9165 445.98 8.06 3.5 28 16.8 98.4 Well 1 l1infaction 1.540.000 5.22 Tota Phu" UI Seat., NasteL Plan _0041 PHILIPPIMM FIRST WATER SUPPLY. SEKCE AND SANITATION SB WR PROJET PROJET PROFILES ProjecttRequilreesot Idntii-f I plente- t;Inestent oreIgn (000.000) cation No. Project Title Descriptien tion Period Loction Physical Targe CDP (a) *xchnn 6 To" I (a) P91I.0-1 Central and Western Vitayye L-I, Training R&0 1988-1990 Axian, Antique, Cepl, COWl 625 SW' 1,200 VW. 9.90 206.00 Water Supply Project Ilolo., Sohal, Cebu 76 Spring 0ev. (69.90) 60 L-II PHI-0-2 Institutional Development Tra;ning Progra 1900-1990 Nationwide Om. L.S. 4.80 100.00 Project I H b Ee LJA, 0OH (64.80) (64.80) *nd Surve l lance Sector Studides PHI-D-S Pilot Rural Environmental L-I,L-II, Toilet 1988-1990 8ulucan Roeblon 1W, 70-L-I. 12.22 254.10 and Sanitation Project II Facilities, Cebut Aibay, Aqsan LUA 42 L-11, (612.22) Consulting del Sur Miaomgs 112 School Serviceo Oriental. South Toilets Cotebato, Lana. del 4,200 sit Type Sur1 Maguindanao and Toilets. Taml-Tai 800 Squat T pe Toilets wi;1 Treat_nt Faci I i- ties, 21,140 Squat Type To, lets, 10 V h;cl. 10 Vacuum Trucks PHI-D-4 Rural Water Supply Project L-I. Training 1069-1991 Abra, Mt.Province. DlWl 1.400 SW 121.62 8.77 304.04 for Autonomous Areas "uet. Apyao, 1?700 DW (68.8i) (114.62) as ilan. Sulu, Tawi- 600 Spring Dev. Tawi, Zambonga del 440 Rehab. Norte, Zamboanga City, Lanso del Norts, Maguindmnao, North Cotebato, Sultan Kuderst PHI-S Rural Water Supply Project L-I, Training 1989-1991 Metro Man;Ila and Major OPWH 1 000 SW 46.13 2.15 90.82 for Slighted Areas Cities 800 OY (62.22) (14.37) PH4I--S Water Supply, Sewerage end L-I, L-IIl, 1989-1992 Luxon - L-I. DPWH, 9000 SW 963.85 100.12 3 212 85 Sanitation Sector Project Sewerage Sanita- Nationwide - L-III. WUAA DM1 7,000 CY (.46.34) C&184.46) tion and C,n- Sanitation and 1,000 Spring Dev sulting Services Secerage 3.000 Rehab. 70 L-111 4 Sewerage Proj. 1.800000 Toilets 12 Stabilization Ponds PHt-D-7 Rural Water Supply IV L-I, L-III, 199-1992 V;oyn-s and Mindanao 0PH 6,8000 SW 477.96 83.58 1 592 12 Proj et Consulting (except those under LUJA 8,SOO W (M2396) (I76.84) Services IAO, 'd and JICA) 1,000 Spring Dev. to 2.000 Rehab. co 5 100 L-III ID C PH1t8 Water Suppi Facilities Rpir and 19W31997 Nationwide DPH. lis SW 173.36 12.5 433.40 . Reprar and UmbebI I tation RMoab; itat;on of LJA 30.000 VW (68S.3) (120.84) tI Progra L-I L-II and 2,000 SPR L-III Project 20 L-II 20 L-ZU1 PH1-0-9 Deep Well Construction in Level I/Training 1980-1991 Nationwide DOPW 8S.0 Dv 843.423 Selected Provinceo in the (e40.163) Philippine PIoectfi Implementa- Ivleseonting Inveetment foreign (000 00 esttin No. Project Title Description tion Period Location Agenp /.iee Physicul Target CDP (a) euchange (8) Total"(0) PHI-I Angst Water Supply Construction of 198-199S Angst, Sulacan iM A. 6.4 km Tunnel 1 881 98 I.3.3 4 655 25 Optimization Projoct Aqueduct, from IPO to (i90.48) (122S8.1) Additional isgt; Tratrment Plant 8. 16.8 km Capacity and Aqueduct from Distribution 8igtt to La System Network me"t PHI-- manila Water Supply Phasue I 1988-1992 Tonsy, Rizal, SS A. 113 m Hit 273 42 277.9S 11 054 78 Project III SlP III) A. Head Works Antipolo, Rizal Rock-Fil ed (0258:85) (SAal.41) 8 Treatment DNa Worksi 8. 80m W." C. Distribution Reeervoi r System C. 14 km Tunnel 0. 28.2 Meoawatte Phase U1 199-1997 Hydro- A. Treatment El ectric Plant Works E. 121 M Liter S. Distribution Treated Water System F. 60 H Liter Covered Phase III 1998-2000 Rservoi rs A. Trsteent 0. 100 ka Prismary Works M ins D. Distribution H. 400 km system secondery 2001-2002 Network Phase Ir I. 170,000 A. DiOstribution Domestic System, Servi ce Connections PHI-8 Metro Manila Seweragst and E"pa.talon of 1988-1993 Southern Part of metro NMS A. 80 kgm of Trunk 1 240 66 143.44 4 28S 22 Sanitation Project I Sewerage System Manila Swer nd (160.08) (1O 62),1 (OETROSS I) to eb Soutihern Interceptors Portion of Metro 8. 400 km Sewer Manila Maine and Lateral.t FHI--4 Metro Manila Sewerage and E ipanson of 1998-1999 Northern Part of Metro 5Si Lump Sum 10.00D 00 Sanitation Project II Sewerage System Manila (40T.77) (IfREOSS II) to the Northern Portion of Metro Manila PF MS Manila Water Supply Rth*b- A. Accelerated 1988-1992 Metro Manila "S Lump Sum 406.64 29.9 1 028 77 Ilitation Project II Rehabilitation (*19.5U) (149.46) (NOWP II) Program 8. Reduce NRW In the RemI ning 53 Zones to 23-30t PHI-M-I Water Supply Development in A. Provide 1988-1991 Metro Manila "tMS Lump Sue 81.74 9.6 156. 62 Zeal Prov (3lP) Potable Water (8.S9S) (S7.oS) to the Rest of Rizal Towns 8. Upgrade Exsting osoe in hse Towns PHI-N-? Fringe Area Water Supply Provide Potable 19881992 Metro ManIla "MSS LuMp SuN 111.07 141.42 S 052 61 Projects (FAWSP) Water to the (*5.34) (1146876) Iaolatad Fringes of "M5S Service X Ares ms sll as a Pocket wi thin the Central yet uneerved and which ore rot included In the Current Water Supp ly Irrwe- sent rrore of MIISS Proe . PrjctTtl scrpio IleitigIveten ment cation "D. ProJ ct Title lOecriptten tion Period Location Agency/ie. Physical Target COP (a) exchangs (a) To 1ta PHI-L-I Second Water Supply Sector L-1 L-11 L-11I. 1M9- 16 Island Prosinces 7,000 SW 24.5 30.60 915 Project Traninyi ;ad 0DW 6.000 06 (613.20) (144.00) Conultirg 1,000 SPaR Services 2.000 Rehab. Construction af 570 L-II and L-III Syste PWI-L-2 Urban Water Supply Cntructio nd l9.16-2000 t - t1.41i2iIJ0 L-II(I2 211. 4S)00 3 2sas leprovesnt Project Ieproweant of Projct. 70) u 70) Water Supply Fci lI tie " for 68 Area, PlI-L-S Rural Water Supply F.$ 8 Design and 1109-2000 Natinide YUF 7620 L-1 and a 006.00 168.00 11,440.00 1.proveeet Project Conptruction of L-IlI System. (8- 8.00) (68000) 7,6210 Rural Water Supply System FMH-II Solid Wast Manaement Soltd Waste 1969-1994 Chartered City 0O U Lup SuO 68.11 14.18 00.20 sownstration Project for a Manaemt s3.148) (33.68) Chartered City PHI-2 Rural Water Supply and Construction ad 1907-1090 Nationide 0. IN L-I 898 7tU.75 11.2 82S.00 Sanitation Project Repair of L-II (Construction) (618.7b) (620.00) Syutr_. 12 L-11 (Rhab.) Couter.. WhCleo$ PHN-II Water Quality Manaent Disnfection of 19-198 Nationide am Ltup Sue 25.09 .01 2.1t0 Water Supply (381.76) (626.00) system. ter Anrlyale g Laboratories 00i I' IN - 43 - Annex 2B Page I PHILIPPINES FIRST WATER SUPPLY. SEWERAGE AND SANITATION SECTOR PROJECT Imnlementation Arrangements Proiect Organization 1. The implementation of the proposed project will be a joint and coordinated effort of four government agencies, namely, the Department of Public Works and Highways (DPWH), the Department of Health (DOH), the Department of Local Government (DLG) and the Local Water Utilities Administration (LWUA). The rural water supply component will be implemented by DPWH through its Project Management Office for Rural Water Supply (PMO-RWS), with suprport from DLG for institutional and commnunity development activities. DOH will implement the sanitation component, and LWUA will undertake technical studies for future sector projects. 2. At the national level, a Project Coordination Committee (PCC) will be established to ensure the efficient and effective implementation of the project. The PCC will facilitate coordination, monitor progress and disbursements, conduct periodic reviews of project implementation, and oversee consultants engaged to assist with project implementation. The Committee will be chaired by the DPWH PMO-RWS Project Director and will include as members the DOH PMO Project Manager, the DLG PMO Project Manager, a LWUA Deputy Administrator, and a NEDA representative. The PCC will meet formally at the launching of the project and at least quarterly thereafter. It will review and approve Quarterly Progress Reports for submission to: (a) Secretaries of the involved Departments and the LWUA Administrator, (b) concerned provincial governments, and (c) the Bank aid other financing agencies. It will maintain minutes of its proceedings which will be distributed with the Quarterly Reports. An organization chart showing the agencies involved in the PCC is attached as Appendix 1. Prenaration and Use of Provincial Sector Plans 3. Project activities under the project in Mindanao and the Visayas will be limited to rural sanitation activities, to be planned and carried out by DOH. However, project activities in the Luzon island group, consisting of the integrated delivery of water supply, sanitation, training and community development, will be implemented in accordance with Provincial Water Supply, Sewerage and Sanitation Sector Plans to be prepared for all 37 Luzon provinces. The Plans will be prepared by the provincial governments, initially with the help of central government aguicies and consultants funded under the p.roject. Each province will be considered a subproject, and the preparation of the Provincial Sector Plan will be required for each province in which integrated water supply, sanitation, and training and community development will be provided under the project. The Plans will provide the local governments and communities with a means to express their aspirations and priorities within the provinces and will thus engender a closer local identification with the project through the initial planning and subsequent monitoring of project implementation and performance. The Provincial Sector Plans will also provide the sector agencies with a means to ailocate resources among orovinces in a rational and equitable manner. 4. The Plans will be prepared according to an already developed standard format and will cover a description of the planning area, the existing situation, future developments, requirements and priorities, an investment program and details of implementation and operations specific to the concerned province. The Plans will be formally presented by the provincial governments to the PCC, the sector agencies, and NEDA in their bid lor government financial support to improve water supply and sanitation in the provinces. - 44 - Annex 2B Page 2 5. After reviewing a Provincial Sector Plan, the PCC will formally advise the concerned province of the physical targets to be achieved and the financial support forthcoming for water supply, sanitary improvements and training and community development within the province, as well as the time frame and annual monitoring indicators to be used in reviewing progress. The PCC will further inform the provincial governments of their obligations under the agreed investment program, including their participation in the formal handover of completed water supply facilities to Barangay Waterworks and Sanitation Associations (BWSAs), their provision of institutional and technical support to the BWSAs, the monitoring of impkimentation progress and the operation of facilities, and the reporting of monitoring results at least annually to the PCC. Sector Aaencies 6. The roles of the sector agencies will be as follows: (a) The DPWH Project Management Office for Rural Water Supply will (i) chair the PCC and prepare the consolidated Quarterly Reports; and .ii) implement the rural water supply component for the provision of Level I service and moni or the performance of contractors and consultants. (b) The DOH Project Management Office will 'i) implement the rural sanitation component; (ii) prepare information, education and communication (IEC) materials and conduct community health education programs; (iii) assist with the monitoring of implementation, operational performance, and health status at the barangay level; and (iv) undertake community health education and training activities. (c) DLG wilt (i) supervise preparation of the Provincial Sector Plans I v the provincial governments, with the assistance of consultants; and (ii) assist in the institutional development of local governments for improved program delivery. (d) LWUA wilt (i) undertake the preparation of feasibility studies and designs for a potential project, with the assistance of consultants; (ii) engage consultants for and supervise the preparation of the Sewerage and Sanitation Master Plan to lay the groundwork for future investment; and (iii) supervise consultants to be engaged for the Financial Restructuring Study. - 45 - AXxex 2B Page 3 ImWlementation of the Rural Water SuDDlv Comoonent 7. Implementation of the project water supply component will be based largely on the institutional arrangements established by the Government for the implementation of the Accelerated Water Supply Program (AWSP). The magnitude of this program as well as the need for essential community development and participation necessitated the formulation of an inter- agency collaboration for sustained program delivery. Consequently, a Memorandum of Agreement (MOA) was concluded between DPWH and DLG in August 1989, which describes their roles and those of the local government units (LGUs) in the implementation of Level I water supply projects. The water supply component of the proposed project will, therefore, be implemented in line with the above arrangements, which make DPWH responsible for physical implementation and technical supervision of works. Related institutional development activities, comprising training and community development, will be shouldered by DLG and the local government units. The MOA further states that DPWH and DLG will undertake a three-year program to develop the LGUs' capability to a3sume responsibilities in project preparation, design, the bidding and awarding of contracts, monitoring, and implementation of Level I water supply projects. DPWH has also entered into another Memorandum of Agreement with DOH and the Department of Education, Culture and Sports (DECS) for their assistance in the formation and organization of BWSAs and in the conduct of training and health education activities. 8. To establish a clearer understanding of AWSP implementation procedures and institutional arrangements, a national workshop involving the relevant sector agencies was held in September 1989 to formulate an Institutional Development Program. A model was developed identifying the activities at the provincial, municipal and barangay levels to be undertaken by the respective agencies and units of DPWH, provincial, municipal and city governments, barangay councils, BWSAs, DOH, DECS, and non-governmental organizations. The institutional development model which will form the basis for the implementation of the water supply component is attached as Appendix 2. 9. Di'WWs PMO-RWS will have overall responsibility for implementation of the rural water supply component. The Regional and District Engineers Offices of DPWH (RDOs/DEOs) will be responsible for construction and installation of the water supply systems and rehabilitation of the existing facilities under the overall guidance and direction of the DPWH PMO-RWS. DLG wiUl initiate the formation of BWSAs, assist in the registration process and conduct training courses. The PMO-RWS will have the following responsibilities in the implementation of the project develop guidelines, primers and training materials, . conduct project site surveys, . prepare detailed design of projects, . prepare work programs and schedules, construct water supply facilities, consolidate project implementation status reports, provide technical assistance to LGUs, provide general supervision and coordination. 10. As stipulated under NEDA Resolution No.5, which was recently issued in conjunction with the AWSP, both DPWH and DLG will jointly strengthen the LGUs in the implementation of Level I water supply facilities. DPWH would provide technical training, as described in Annex 5, while DLG will: . assist in the conduct of briefings and dialogues at the provincial and local levels, - 46 - Annex 28 Page 4 . conduct training courses for provincial and municipal planning and development offices, to develop their capabilities in community organization and training of BWSAs, . coordinate and assist in the organization and registration of BWSAs, . undertake reproduction and printing of training materials, . monitor the operational status of BWSAs, . provide institutional assistance to BWSAs, . provide feedback and reports to DPWH and the PCC. 11. The provincial and municipal governments will actually implement the institutional and community development activities related to the rural water supply component. Their responsibilities are to: . brief and conduct dialogues with the governors and mayors, . conduct provincial training . consolidate BWSA formation/registration reports, . assist the BWSAs, facilitate the registration of BWSAs, . conduct BWSA basic skills training, . monitor the operational status of BWSAs, provide institutional assistance to BWSAs, prepare reports for DLG and DPWH. ImWlementation of the Rural Sanitation Cornonent 12. The DOH Project Management Office, attached to the Environmental Health Office, is responsible for overall supervision of the sanitation program and will provide nationwide planning, programming, management, monitoring, reporting and logistic support. Through its grassroots organization at the municipal and barangay levels, DOH will assist in the integrated training of the BWSAs. The central PMO will also manage the bidding, procurement, and supply of equipment and materials. 13. Implementation of the sanitation component will be carried out by Project Management Offices organized by DOH at several levels. The PMO at the regional level will be responsible for monitoring operations in the region, including training and guidance on technical matters provided by senior sanitary engineers and support staff. At the provincial level, sanitary engineers and supervi3ing sanitarians under the Provincial Health Officer will be responsible for the training of and technical assistance to the local inspectors. At the municipal level, the PMOs will carry out project activities related to health education, training, community motivation and organization in toilet construction and water surveillance, using DOH's primary health care delivery organization. The municipal PMOs will be headed by Municipal Health Officers and staffed by sanitary inspectors. The latter wiU be primari!y responsible for project activities related to sanitary toilet construction and water quality surveillance. They will be assisted by health workers and midwives from the Rural Health Stations. Imnlementation Schedules 14. DOH will prepare an implementation schedule for rural sanitation activities carried out in Mindanao and the Visayas. Project-financed consultants will prepare implementation schedules for project activities to be carried out in each province in Luzon, covering all phases from planning to operation and maintenance. The detailed schedules will include: - 47 - Annex 2! Page 5 (a) preparatory work and project mobilization; (b) detailed activities during the BWSA pre-formation phase; (c) formation of BWSAs and implementation of community development and training activities; (d) equipment and materials supply, procurement, delivery, stores handling and all related logistics support; (e) detailed surveys and construction schedules for hydrogeological surveys, drilling, installation of handpumps and construction of household and school latrines, and preparation of information, education and communication materials; and (f) handing over of water supply facilities to BWSAs and training of BWSA officers in system operation and maintenance. Project Launchine Workshon 15. A Project Launching Workshop will be held for the staff of the implementing agencies and of relevant Provincial Development Offices before project start-up. This would provide the project managers with an opportunity to rally support for the project and emphasize the need for coordination of project activities and for speed, quality and dedication. At the Workshop, an overview wiUl be given of project implementation arrangements and Bank procedures for procurement, engagement of consultants, preparation of disbursement applications, including use of Statements of Expenditure, reporting and monitoring requirements, and preparation of project accounts and the audit thereof. Arrangements for the Workshop wili be made by consultants to be engaged to assist with project implementation (see Annex 7D). Other Proiect Implementation Assistance 16. To further assist the implementing agencies, the Singapore-based UNDP/World Bank Water Supply and Sanitation Team (WSST) will from timo to time ',:ovide the services of experts to advise on the manufacture of handpumps, well drilling techniques including hydrogeological advice, quality assurance and control, and operations and maintenance procedures. See Annex 7F for terms of reference for this assistance. 17. Under the auspices of the International Training Network (ITN), which is administered by LWUA under the direction of a Steering Committee comprising representatives of concerned sector agencies and in ntitutions of learning, assistance will be provided for the formulation and execution of train.ng courses for well drillers and hydrogeologists being educated in the Philippines, and for the production of training manuals pertaining to the various activities and skills in the water supply and sanitation sector. Terms of reference for ITN assistance are included in Annex 7F. PHILIPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT PROJECT COORDINATION COMIMITTEE OrganIzatIonal Chart PROJECT COORDINATION COMMITTEE (NEDA.DPWHDOH.OLG.LWUA) DPWH DON OLG LWUA RECODNAL REXUONAL REGIONAL DIRECTORS HEALTH OEVELOPMENT WATER OFFICES COUNCILS DISTRIICTS DITROINCT PROVINCI NAL O ENGINEERS HEAt4LTHVL OFFICES OFFICES OFFCESI DISTRACT MUNICIPAL HEALTH OVELg:g OFFICES IFFCES MNIKCIPAL-I HEALTH OFFICES STATKONS EK/W46373C I0. H 't' PHIUPPINES FIRST WATER SUPPLY, SEWERAGE AND SANITATION SECTOR PROJECT Rural Water Supply Institutional Development Model Assey BWSA Fonrmti Phm .mpleme Pa Opeatn A MaiMale Phase Oqu~~~~~tsn RsgWbuflon ~ ~ ~ ~ ~ ~ ~ ~~ B~WmA overtanmm at ins * * svGI * i Stw . ooblita * e * ' a OWSA teo fro ~~~tmln* pw ma l b _ ta~ ,orw * *pwen OWSA~~~~~~~~~e ~~~ttae * US8 * _ * Wmso h -C *neo *s w- ptovhwa tot kf0 IXsWO ' : m D oilyi Gov't *moan*poia mf huc ond uct modcom ev-t P.Aes wss I '
Группа Всемирного банка · Staff Appraisal Report
Philippines - First Water Supply, Sewerage and Sanitation Sector Project
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