Benin - Rural Water Supply and Sanitation Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 12860-BEN STAFF APPRAISAL REPORT REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT MAY 11, 1994 Infrastructure Operations Division Country Department I Africa Region This document has a restricted distribution and may be used by recipients only in the perfonnance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  CURRENCY EQUIVALENTS Currency Unit: CFA Franc ' (CFAF) US$1 = 590 CFAF FISCAL YEAR January 1 - December 31 SYSTEM OF WEIGHTS AND MEASURES (METRIC) 1 meter (m) = 3.28 feet (ft) 1 kilometer (km) = 0.62 mile (m) 1 liter (1) = 0.26 US gallons 1 cubic meter (rr') = 35.3 cubic feet (cu ft) 1 liter per capita per day (lcd) = 0.26 US gallons per capita per day ABBREVIATIONS AND ACRONYMS (English/French) CFD French Aid Agency/Caisse francaise de d6veloppement DANIDA Danish International Development Assistance DH Directorate of Water Works/Direction de l'hydraulique DHA Directorate of Hygiene and Sanitation/Direction de l'hygiene et de l'assainissement IAPSO Inter-agency Procurement Service Office of the UNDP ICB international competitive bidding/appel d'offres international IDWSSD International Drinking Water Supply and Sanitation Decade LCB local competitive bidding/appel d'offres local MEMH Ministry of Energy, Mines and Water/Ministere de l'energie, des mines et de I'hydraulique MS Ministry of Health/Ministere de la sante NGO non-governmental organization/organisation non gouvemementale RWS Rural Water Supply RWSG-WA West Africa Regional Group of the UNDP/World Bank Water and Sanitation Program SBEE Benin Power and Water Utility/Societe beninoise d'electricite et d'eau SOE statement of expenditure/releve de depenses SRH Water Works Regional Office/Service regional de I'hydraulique UNDP United Nations Development Programme UNICEF United Nations Children's Fund/Fonds des Nations Unies pour l'enfance USAID United States Agency for International Development VIP ventilated improved pit latrine VLOM village level operation and maintenance WSC Water and Sanitation Committee/Comite villageois pour l'eau et l'assainissement The CFA Franc exchange rate is rixed at a rate of 100: 1 with the French Franc. The latter is a floating currency.  REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT STAFF APPRAISAL REPORT CONTENTS Page No. I. INTRODUCTION .......................................... 1 Population ............................................. 1 Macroeconomic Situation .................................... 1 II. THE RURAL WATER SUPPLY AND SANITATION SECTOR .... ......... 2 Water Resources . .............. . ............................ 2 Rural Water Supply and Sanitation Services ......................... 2 Sector Organization ........................................ 3 Sector Issues ............................................ 5 Sector Strategy ........................................... 7 Prior IDA Involvement and Lessons Learned ........................ 9 III. THE PROJECT ........................................... 10 Generation and Rationale ................................... 10 Objectives ............................................. 10 Description ............................................ 11 Costs ................................................. 14 Financing ............................................. 15 Procurement ........................................... 15 Disbursements .......................................... 18 Accounting and Audits ..................................... 20 IV. IMPLEMENTATION AND MONITORING ......................... 20 Organization and Management ................................ 20 Project Cycle at Village Level ................................ 21 Organization of Operation and Maintenance ........................ 21 Phasing and Implementation Schedule ............................ 21 Reporting and Monitoring ................................... 22 Supervision and Evaluation .................................. 22 This report is based on the findings of the Bank appraisal mission which visited Benin in November 1993. The appraisal mission comprised Mmes./Messrs. Richard Verspyck (Principal Water and Sanitation Specialist and Mission Leader), Yao Badjo (Sanitary Engineer), Letitia Obeng (Sr. Water and Sanitation Specialist), Jenifer Cornet-Vessa (Community Development Specialist), Alain Mathys (Chief, RWSG-WA) and Yves Degiacomi (RWS Engineer). Mr. Alain Locussol (EA31N) is the Peer Reviewer. Messrs. Olivier Lafourcade and Alberto Harth are the Department Director and the managing Division Chief, respectively, for the operation. This document has a restricted distribution and may be used by recipients only in the performance of their offcial duties. Its contents may not otherwise be disclosed without World Bank authorization.  Page No. V. JUSTIFICATION AND RISKS ........... ...................... 23 Benefits and Beneficiaries . .................................. 23 Environmental Impact . .................................... 24 Sustainability ........................................... 24 Risks ............................................ 25 VI. AGREEMENTS AND RECOMMENDATION ........................ 25 Agreements ............................................ 25 Recommendation ......................................... 27 TABLES Table 3.1: Type and Number of Water Supply Facilities ..... ............ 11 Table 3.2: Summary of Project Costs .......... ................... 14 Table 3.3: Project Financing Plan ............ ................... 15 Table 3.4: Amounts and Methods of Procurement ...... ............... 17 Table 3.5: Disbursement of IDA Credit ........................... 19 ANNEXES 1-1. Sector Policy Letter 2-1. Detailed Project Costs 2-2. Disbursement Schedule 2-3. Non-governmental Organizations 3-1. Implementation Program 3-2. Implementation Schedule 3-3. Table of Contents: Implementation Manual 3-4. Sanitation Component 3-5. Agreement MEMH/MS 3-6. Training Program 3-7. Supervision Plan 4-1. Monitoring Indicators 5-1. Executive Summary of the Environmental Study  REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT CREDIT AND PROJECT SUMMARY Borrower: Republic of Benin Beneficiary: N/A Implementing Agency: Directorate of Water (DH) Credit Amount: SDR 7.0 million (US$9.8 million equivalent) Terms: Standard with 40 years maturity, including 10 years of grace Project Objectives and Description: The main purpose of the project is the full-scale demonstration of the new sector strategy whose objectives are: (a) to maximize the impact and use of safe water supply and sanitation facilities in rural areas; and (b) to ensure that the future development of the sector will actually respond to the demand of rural population. This requires to create an enabling environment for local contractors and consultants, for commercializing village-level operated and maintained (VLOM) pumps and spare parts through private networks and for promoting affordable solutions for on-site sanitation. The project comprises four components: (a) water supply for rural communities in two regions; (b) provision of VLOM pumps to cover the needs of all RWS projects in Benin; (c) sanitation and hygiene education for rural communities in two regions; and (d) capacity building. The project would cover the Atlantique and Zou regions. Project Benefits and Risks: By targeting rural communities and particularly small communities which could not have access to safe water and improved sanitation, the project would benefit the poorest strata of population. Time savings--accruing to women and girls--and improved health should translate into increased productivity of adults and increased informal sector activities and should also generate greater opportunities for education and training. The integration of water supply, sanitation and hygiene education would maximize the health benefits and ensure a long-term impact. Operation and maintenance of the water systems would be independent of government's subsidies or technical inputs and the systematic recourse to the local private sector and local organizations in executing works and providing goods and services would further enhance the sustainability of the project. Main risks pertain to: (a) the capacity of DH to adjust to its new responsibilities and its commitment to not interfere with communities' decisions; and (b) the effectiveness of NGOs and other private actors in dealing with communities and cooperating with governmental entities. To mitigate these risks, strengthening of DH and SRHs through selection and training of key personnel take place during the PPF period. NGOs and private contractors would also be prequalified and trained well in advance of the start-up of field operations. The training program will be extended throughout the implementation phase to allow for self- evaluation and exchanges of experience and lessons between the various actors.   Estimated Project Costs and Financing Plan (in US$ million): A. Summary of Project Costs % of Component Foreign Local Total Base Cost A. RURAL WATER SUPPLY 5.72 0.90 6.62 53 B. VLOM PUMPS 1.28 0.00 1.28 10 C. SANITATION 1.17 0.38 1.55 13 D. CAPACITY BUILDING 1.51 0.35 1.86 15 E. PPF REFINANCING 1.17 0.00 1.17 9 TOTAL BASE COST 10.85 1.63 12.48 100 Physical Contingencies 0.97 0.16 1.13 9 Price Contingencies 0.73 0.66 1.39 11 TOTAL CONTINGENCIES 1.70 0.82 2.52 20 TOTAL PROJECT COST 12.55 2.45 15.00 120 B. Financing Plan Source of Funds Foreign Local Total Government of Benin 0.16 0.29 0.45 Communities 0.59 0.18 0.77 Government of Denmark 3.36 0.62 3.98 IDA 8.44 1.36 9.80 TOTAL SOURCES 12.55 2.45 15.00 Estimated Disbursements of. IDA Credit by Semester (in US$ million): FY95 FY96 FY97 Si S2 Si S2 SI S2 Semestrial 2.63 1.20 2.12 1.34 2.34 0.17 Cumulative 2.63 3.83 5.95 7.29 9.63 9.80 Economic rate of return: N/A Poverty Category: Program of Targeted Interventions   REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT STAFF APPRAISAL REPORT I. INTRODUCTION Population 1.01 The population of Benin was estimated at five million in 1992, of which 60 percent live in rural areas (population groups of more than 5,000 are designated as urban.), scattered in 3,500 administrative villages, 7,000 communities of between 50 and 300 people and 15,000 smaller human settlements. The population is increasing at an average annual rate of about 3.2 percent. Its geographical distribution is very uneven. Population density varies from 340 inhabitants/km2 in the dkpartement of Atlantique to about 14 inhabitants/km2 in Borgou. As a result, 63 percent of the population is concentrated on 12 percent of the land area. Macroeconomic Situation 1.02 The annual per capita income was slightly above US$400 in 1992. Benin's principal resource is its arable land, which makes it potentially self-sufficient in food in overall terms while enabling it to produce cash crops such as cotton and palm oil as a source of foreign exchange. The agricultural sector accounts for about 36 percent of GDP, more than 70 percent of exports and 75 percent of employment. The annual growth rate of agricultural production in the 1990-1992 period was 4.2 percent. This performance, although remarkable, was largely achieved through more extensive utilization of available land. The industrial sector accounts for about 13 percent of GDP, essentially in the form of manufacturing, cement production and limited offshore oil resources. The geographical configuration of Benin, together with the deep-water port of Cotonou and its relatively good road and rail network, allows it to provide transit services for landlocked countries to its North. The services sector (50 percent of GDP) basically consists of informal but vigorous trading activities, growing at an annual rate of 3.5 percent. 1.03 Between 1983 and 1987 Benin's economy grew only slowly, partly as a result of a decline in trade and a collapse of the regional transit traffic, but particularly as a consequence of the inefficiency and poor management of the productive sectors dominated by public enterprises. In 1989 the Government introduced a program of economic reforms prepared with the assistance of the Bank and the IMF. This program reflected a change in Benin's economic policies, the reduction of the State role in the economy and promotion of private sector activities, a balanced management of public funds, and an improved balance of payments situation. 1.04 Despite the progress registered since 1989, the Beninese economy remains fragile and its overall competitiveness is weak. In January 1994, the Government decided, in consultation with its partners in the West African Monetary Union, to reinforce its economic  - 2 - strategy by modifying the external parity of the CFA franc. This adjustment, accompanied by the reinforcement of a number of structural policies, is expected to provide a strong boost to the export and import substitution sectors. Other important objectives of the reinforced adjustment strategy are the following: (a) the further reduction of domestic and external imbalances; (b) the reduction of poverty and protection of vulnerable groups; and (c) the rehabilitation of social and physical infrastructure and the promotion of human resources development. II. THE RURAL WATER SUPPLY AND SANITATION SECTOR Water Resources 2.01 Average rainfall in Benin varies from 1,300 mm/year in the coastal region to 900 mm/year in the north. Availability of groundwater varies between the coastal sedimentary basin and the precambrian basement which covers 80 percent of the country. Annual abstraction of groundwater for supplying urban and rural population centers represents on average less than 3 percent of the annual recharge of the aquifers (1,850 million in3). 2.02 The water resources of the coastal sedimentary basin, ranging in width from 50 km to 100 Iam, are abundant and generally exceed the needs of the villages, but tapping them can sometimes be difficult because the groundwater is deep below the surface. The water obtained is often of poor chemical quality (excessive iron, manganese, fluorine and chlorides) and commonly very aggressive. Water is generally available in the fracture zones of the precambrian basement. When attempts are made to position wells as close as possible to villages, which are commonly located on high ground, the risk of failing to strike water is high (20-40%) and usable flows are generally low. 2.03 The hydrographic system comprises two main basins: the Atlantic basin in the south with Ou6m6, Mono and Couffo, and the Niger basin in the north. Surface water is not used for village water supply but, especially in the rainy season, can serve as a back-up source that is more readily accessible and therefore often preferred by the communities over the modem facilities put in for them. Collection of rainwater from roofs and its storage in large household cisterns is a common practice in the south and center of the country. In the area formed by the barren wedge of the continental terminal on the crystalline bedrock (north of Mono and south of Zou) or in the coastal areas where the groundwater is of poor chemical quality and located at great depths, this is often the only workable method of supply. Rural Water Supply and Sanitation Services 2.04 Large-scale village well construction programs have been launched since the beginning of the 1980s with external financial assistance amounting to US$48 million. 3,180 boreholes and 980 modem wells and 23 small piped systems had been constructed at the end of 1992 to serve 1,700 villages with an estimated total population of 1.8 million. The country-wide coverage rate is 44%, increasing markedly from the South (between 18% and  -3- 25 % in Mono, Atlantique and Oueme departments) to the North (77 % in Atacora and 82% in Borgou). These percentages do not take into account the village communities' willingness to use and maintain the facilities made available to them. About 25 % of the 3,600 handpumps installed on point-source systems are not functioning. Surveys show that rural communities use modem facilities to supply drinking water during the dry season and consume about four liters per capita per day (lcd). The latter figure compares to the one observed in secondary urban centers served by piped systems and is well below the daily consumption of about 35 lcd of the large urban centers. 2.05 Only 12 % of the rural population have some sort of on-site sanitation system--to be compared with more than 50 % in urban areas. The most common system is the pit latrine. A limited number of ventilated improved pit (VIP) latrines were constructed during the International Drinking Water Supply and Sanitation Decade (IDWSSD) to serve schools, health centers and markets. They have often been built with concrete blocks rather than locally available building materials and are not affordable to rural households, except where they have been heavily subsidized by projects. Sector Organization 2.06 Directorate of Water Works. The Directorate of Water Works (Direction de l'Hydraulique-DH) of the Ministry of Energy, Mines and Water (MEMH) is responsible for the gathering and updating of hydrological and hydrogeological data, formulation and monitoring of regulations applicable to water use, and coordination and execution of the village water supply programs. DH employs 123 permanent staff, including 35 in six regional offices (Service regional de l'Hydraulique-SRH). DH also employs temporary staff whose numbers vary depending on the amount of force account work in progress (69 at present). Senior staff comprise 23 engineers and technicians, one administrative manager, one sociologist and one recently recruited community development specialist. 2.07 DH does some drilling and well construction work on force account with its own well-digging equipment and two drilling rigs provided by Japanese assistance. The drilling teams of UNICEF are also staffed with DH employees. In 1990, DH drilled 71 boreholes and sank 12 wells with its own personnel. 2.08 The Societe Beninoise d'Electriciti et d'Eau (SBEE). SBEE, a national enterprise also under the supervision of MEMH, is responsible for the generation and distribution of electricity country-wide and for urban water supply. In 1992, SBEE operated 46 piped systems regrouping about 42,000 service connections and sold 11 million m3. SBEE, which is financially autonomous, has invested over US$93 million in developing this sector, almost all of it derived from external financing, and is responsible for the service of the debt incurred. Revenues from water service are insufficient to cover the full amount of operating costs and debt service by about CFAF 1.5 billion. The shortfall is covered from electricity revenues. Officially, SBEE does not operate in rural areas, but it has for some time put in systems in a number of small centers (classified as urban) where service conditions are similar to those found in the villages.  -4 - 2.09 Other Ministries or Technical Services. The key ministry involved in on-site sanitation development and hygiene education in Benin is the Ministry of Health (Ministare de la Sant&-MS). The ministry's Directorate of Hygiene and Sanitation (Direction de l'Hygiene et de l'Assainissement--DHA) which works in this area is staffed by sanitary engineers, higher level technicians and hygiene agents (public health inspectors). Its professionals are based either in Cotonou or in regional services (SHA) under the ministry's regional directorates of Health (DDS). DHA is currently involved in planning, regulatory, policy making and implementation activities and depends on project funds for the majority of the implementation activities. Several donors (UNICEF, USAID, UNDP, GTZ, KfW, WHO) have been involved in the sanitation sub-sector in recent years. A UNICEF/USAID project was implemented in Zou as part of the program for the eradication of Guinea Worm. Valuable experience was developed in construction of facilities for households, schools and health centers, training, and hygiene education. Another ministry with an interest in the sanitation sub-sector is the Ministry of Environment, Housing and Urban Planning. Its key department for sanitation activities is the Urban Planning and Sanitation Directorate which is currently involved in drainage, urban planning and general sanitation activities in urban areas. 2.10 Non-governmental Organizations (NGOs). Prior to 1991, there were practically no local NGOs operating in the country, apart from religious organizations who were active in urban and rural areas. International NGOs have taken a limited part in village water supply and sanitation projects in Benin, compared with other countries of the region; their primary focus is construction of modern wells and small earth dams. German, French, Dutch and Cathwell volunteers put in some 650 wells. They undertake projects if requested by the village communities and require a significant contribution in labor and funds (for example, CFAF 150,000 per well in Atlantique department). 2.11 The democratic revival of 1989 resulted in the establishment of hundreds of local NGOs and, with the encouragement now being given to private initiatives, the numbers continue to grow. Typical activities of NGOs include support to natural resources management, provision of basic health care, training and education and support to income- generating activities. A number of NGOs primarily focus on rural women and provide training in nutrition and health education by using participatory techniques developed by the Research Group for Support to Rural Self-Promotion and the West Africa Center of Social and Economic Studies of Burkina Faso. A brief presentation of Beninese NGOs is given in Annex 2-3. 2.12 Private Sector. The local private sector is mostly active in supplying spare parts and in maintaining handpumps. Three trading companies import pumps and parts from France (Vergnet and UPM) and India (India Mark II). Pumps are exclusively sold to RWS projects. Parts are distributed through separate networks regrouping 37 retailers. The annual turnover of the retailers varies between US$500 and US$6,000, which yield limited incentives to stay in business. 2.13 Around 180 pump mechanics, selected among village repairmen of bikes or mills, have been trained in the course of different projects; the DH assigns them a certain number  -5- of villages in which they can work, but the communities have the option to call on the mechanic of their choice. The communities buy the spare parts from the retailers and pay the mechanics for their services. Pump maintenance generates revenues of US$75 per mechanic, i.e. 10% of their annual income. Small piped systems are also maintained by private contractors and an enterprise supported by French aid (Caisse francaise de developpement - CFD) has recently been formed that specializes in installation and maintenance of solar pumps. Sector Issues 2.14 By the end of the IDWSS Decade, DH, assisted by the West Africa Regional Group of the UNDP/World Bank Water and Sanitation Program (RWSG-WA, Abidjan), reviewed the outcome of past RWS projects in Benin. This review identified the basic shortcomings which hampered the development of the sector and limit the use and impact of water and sanitation facilities in rural areas. These may be summarized as follows: (a) lack of community participation generating the absence of ownership; (b) the absence of local capacity; (c) the ineffectiveness of the sanitation and hygiene education programs; and (d) the total dependence of the sector on external resources and the absence of sustainability. 2.15 Community Parikipadon and Ownership. The village communities have always been viewed as beneficiaries of projects planned by a central agency, and very rarely as initiators; this is a direct consequence of the present organization of planning in the sector. Project identification is most often based on conditions set by the financing agencies. Some of these agencies are more concerned with health (Guinea worm eradication) or economic (livestock water needs, development of small agricultural lots) objectives, others want to limit themselves to a particular region, type of work (drilling or regular well sinking) or to a certain form of project execution (contracting out or force account). In the absence of a document setting Government policies and guidelines for the development of the sector, the donors proposed projects ensuring swift execution and focusing essentially on water point construction. 2.16 The initiative for construction of a water point has almost always come from DH or the project unit; there has been no formal procedure through which a community can request construction of a water point if it is not located within the geographic area of the project. The initiative for improvement of the sanitation environment (latrine construction, for example) has always come from the project unit. The promotion methods have tended not to offer much choice: as a rule, one single type of water point or pump will be proposed since the community development teams seldom have the training needed to propose alternative technical solutions. Some communities have been prepared, as demonstrated in CFD-financed projects, to go for more sophisticated equipment (motor or solar pumps), which can provide better levels of service or generate economic activities. 2.17 Since the initial financial contribution of the village is often symbolic, it is quite hard to determine its real interest in improving its water supply. The work to be done is often being explained to the community as construction progresses. This subordinated role of the communities may persist after the construction period: village committees often cannot draw  -6- on the account they have opened at the savings bank to finance maintenance costs without prior SRH approval. The role of women, generally seen as crucial in the management of community water supply and sanitation, is limited to upkeep of the surroundings of the water points and collecting of the cash contribution when applicable. Hardly any women are chairpersons of a water point committee or treasurers or pump mechanics. 2.18 Local Capacity Building. Few projects seem to have had as their main purpose the development of a sector less dependent on external financial and technical assistance as a result of establishment of local execution capacity or support for community development actions. Project execution has been based on the traditional "public works" approach and generally includes selection of international consultants from a limited list and the awarding of large drilling and pump supply contracts on the basis of invitations to tender that are more or less open depending on restrictions as to the origin of equipment. 2.19 No local consulting engineer has contributed directly to the preparation, supervision or monitoring of projects. Local expertise in control of drilling works, developed over recent years, had been, however, available. Because of the near-closure of the market, the professionals concerned have moved into government but tend to reappear in private practice by being subcontracted by foreign consulting engineers and companies. 2.20 Borehole drilling is carried out by specialized enterprises prequalified on the basis of their experience and financial criteria and selected after competitive bidding. The size of the contract packages, generally several hundred boreholes to be executed in two or three annual batches, actually precludes the few Beninese or regional enterprises to participate. Exceptions are the UNICEF projects and the Japanese assistance project, which employ their own rigs on force account. This also has not supported the emergence of local private contractors. 2.21 Sanitation and Hygiene Education. Rural sanitation has received much less attention than water supply; hardly any projects, except the one financed by USAID and executed by UNICEF, have established a direct link between water supply, sanitation (especially excreta disposal) and improved health. However, some projects funded by UNDP and German assistance have been designed to promote latrines in rural and urban areas and have financed construction of such facilities (essentially of the "ventilated improved pit" or VIP type). The standard-type latrines are very costly (US$250-350 for a VIP latrine with a single pit and one shelter, which is equivalent to the cost of a rainwater collection cistern), whereas latrines of the "improved Mozambique" type developed in East Africa only need a bag of cement for the slab and local materials for the shelter, ventilation line and top and cost no more than US$30-50. 2.22 The health and hygiene education messages delivered during community development sessions have been too ambitious in regard of the limited time spent by extension workers-- usually civil servants--with the communities. Community development activities have been actually carried out in parallel with the execution of physical works and have to adapt to the quick pace of execution of drilling works. Follow-up sessions have not taken place after the commissioning of the facilities and most of the message is lost and rarely acted upon. Even  -7- if the water points are conveniently located and easily usable, as is the case with the standpipes and connections provided in the small centers served by SBEE, the villagers have mainly used them in the dry season, which shows once again that they attach much more importance to the quantitative rather than the qualitative side of water supply. 2.23 Sustainabiliy. DH has been virtually unable to function without exteral financial assistance. For example, it will find it very difficult to pursue the gathering and processing of hydrological and hydrogeological data, activities developed with French and UNDP assistance, once these projects are completed. Personnel costs make up for 95% of budget allocations. DH's operating costs--including travel expenses and salary supplements--are thus covered by subsidies received from the majority of the RWS projects and by billing services to contractors and consultants. The directorate's capacity to take initiatives and to respond to urgent needs has been therefore quite limited. The SRHs have received no budget and have very little capacity for maintaining permanent liaison with the village communities, which ought to be their main role. These policies have reflected a widespread view that the performance of the sector is only related to the number of water points constructed regardless of their use or their operating condition. Sector Strategy 2.24 Following the identification of the above sector issues, DH and SBEE asked RWSG-WA to assist in the preparation of a rural water supply and sanitation strategy for the 1990s which would allow: (a) to maximize the impact and use of existing safe water supply and sanitation facilities in rural areas; and (b) to ensure that the future development of the sector will actually respond to the demand of rural populations. 2.25 A new strategy was produced and discussed in a national seminar held in Lokossa in December 1991, which was attended by most of the donors active in the sector. The "Lokossa declaration", issued at the end of this seminar and subsequently approved by the Council of Ministers on March 18, 1992 calls for a bottom-up approach to the construction and maintenance of water facilities and for a drastic change in the role played by the public sector, as the latter should no longer directly provide rural water supply and sanitation services, but rather should act as a promoter and a facilitator of services. The basic principles underpinning the strategy are as follows: (a) decentralization of the decision-making process at all stages of the RWS project cycle; (b) financial participation of the communities toward initial investment costs in accordance with their willingness to pay for a given level of service; (c) reduction of construction and maintenance costs; and (d) systematic recourse to the private sector for constructing, maintaining and operating rural facilities, with special emphasis on the promotion of local capabilities and contractors.  -8 - 2.26 Village water supply, and to a lesser extent sanitation, will in the years ahead still receive significant external financial assistance for funding capital costs; however, DH or the RWS projects will no longer decide in advance which communities will receive water or sanitation facilities. Communities wanting to improve their water supply systems and sanitation facilities would have to make their own request for a construction grant to the departmental unit of DH (SRH), agree to make a significant contribution to the initial investment and pay all the operating costs. 2.27 Decentrlzation and Community Participation. With an average of 700-1,000 settlements of more than 100 inhabitants per department (or 5,000 settlements per department including those with a population of less than 100), a SRH cannot itself maintain permanent direct relations with the communities. The regular contacts would be maintained through prequalified local NGOs established on a permanent basis in each department. They would elicit the priorities of the communities and help them formulate their water supply and sanitation needs and make sensible choices by explaining appropriate technical features and their financial consequences. The NGOs would also help the communities organize themselves to meet the conditions required to obtain an investment subsidy. Finally, the NGOs would help the communities organize the maintenance and management of water supply and sanitation installations. 2.28 The essential role of the SRHs would be to promote water supplies and sanitation to local communities and to program the projects of the communities that have met the conditions for obtaining a construction grant subsidy in packages of works of the same type (boreholes, wells, small networks). This system would ensure a regular flow of activities, particularly of works contracts that, while smaller than the contracts currently executed, would for that very reason enable local or sub-regional firms to participate. 2.29 Cost Recovery. The principle of community financing of maintenance costs has already been introduced in Benin and is well accepted wherever villages benefit from reliable equipment and easy access to mechanics and spare parts. Communities would also be required to pay part of the capital costs of basic service. Higher levels of water and sanitation service are encouraged, but the communities would be required to pay a substantial part of the additional cost. Specific surveys, financed under the PPF, are being conducted to assess the willingness to pay of the communities. 2.30 Cost Reduction. Drilling costs, which reflect the present organization of the market, are high, as elsewhere in West Africa (about US$12,000 for a fifty-meter productive hole in bedrock). Scaling down the size of contracts together with simplification of the technical and administrative specifications should enable local or regional enterprises using lighter and less costly equipment to participate in bidding, which ought to bring about some reduction in costs without affecting the technical quality of the work. The percussion drilling technique seems particularly well suited for making the very large number of concession wells usable year round. 2.31 More than 25% of the pumps installed in Benin will need to be replaced; they are no longer being manufactured and parts are not available. It costs as much to repair these  -9 - pumps as to buy new ones, while their technology is deficient and villagers do not trust them. To select the type or types of pumps to be recommended to the communities, DH would run an open competition for supply of all pumps to be installed in Benin over the coming three to five years. No restrictions would be placed on the origin of the equipment, which would allow to take recent developments in technologies into account. The pumps would be warranted for three years by the manufacturer (excluding wearing parts), but this warranty would be calculated separately so that it would be possible to ascertain its precise impact on the total cost of the contract. The orders would be placed in several batches spread out over time. 2.32 The design of the small piped water supply installations will be based on realistic consumption figures derived from an analysis of current water consumption in large villages. Solar pumping equipment will be standardized; the capacity of the gravity tank will be reduced to the strict minimum and small ground-level tanks of 1-2 m3 will be built by the community near the standpipes. 2.33 Promotion of the local private sector. All construction works and provision of good and services would be carried out by the private sector. DH would disengage from all activities which may be executed by private contractors such as drilling on force account and well-siting. The existence of a sustainable local network of contractors, consultants, artisans and pump mechanics should reinforce the sustainability of the facilities. The emergence of this local network would require unrestricted access of the local private sector to public contracts, which in turn calls for: (a) quick procurement decisions; (b) timely payment of contractors; (c) the assurance of a steady flow of potential business; and (d) training and management support. Prior IDA Involvement and Lessons Learned 2.34 IDA has provided two credits to the Government in the urban water sector, for a Water Supply Engineering Project (Credit 1171-BEN) in 1982 and the Second Water Supply Project (Credit 1721-BEN) in 1986. Both were directed towards the expansion of the water supply systems of Cotonou and Porto-Novo with SBEE as executing agency. The first project was satisfactorily carried out and the second was closed on December 31, 1993. The works were completed on time and without cost overruns. While the latter project has exceeded its objective in terms of coverage, due particularly to a successful social connections program which doubled the number of customers, the actual consumption observed is well below appraisal forecasts. SBEE also experienced difficulties in maintaining its revenue billing and collection performance, while arrears on water and electricity bills of the public sector have sharply increased. 2.35 IDA has no prior experience of a free-standing rural water supply project in Benin, but the experience gained in preparing and executing RWS projects in West Africa, particularly CMte d'Ivoire and Ghana has amply demonstrated the need for greater community participation from the planning and design stage. The experience of RWS projects fmanced by other donors in Benin has confirned that: (a) the participation of communities in maintenance activities greatly increased the availability rate of handpumps, but did not bring  - 10- by itself a sensible improvement of the use of water facilities; and (b) the expectation that the health benefits of improved water supply could be easily perceived by the villagers and would in turn reinforce the sustainability of the services has not materialized. 2.36 Outside of the water sector, the portfolio of IDA-supported projects in Benin has faced for some time generic issues related to procurement and disbursement practices as well as to the lack of counterpart funding and of adequately trained accounting staff in the civil service. They could be addressed by incorporating in the design of the project specific solutions tested in recent operations to: (a) facilitate access of small contractors to public contracts and streamline disbursements from the Special Account (Urban Rehabilitation and Management Project - Credit 2338-BEN and Credit 1721-BEN); and (b) establish decentralized accounting systems (National Resource Management Project - Credit 2344- BEN). III. THE PROJECT Generation and Rationale 3.01 Following the national seminar held in Lokossa in December 1991, the Government of Benin requested IDA's assistance to implement the decentralized approach of the development of rural water and sanitation services. IDA's participation would: (a) reinforce the Government's commitment to policy reforms; (b) help eliminate bottlenecks created by conflicting donors' interests, particularly in technological choices; (c) bring about a more comprehensive perspective of the respective roles of the public and private sectors and of local communities within the framework of Benin's structural adjustment process. The DH prepared a draft sector policy letter, which was discussed and finalized during negotiations. The sector policy letter has been approved by the Government and officially sent to IDA before Board presentation. 3.02 Project preparation was done by Bank and RWSG-WA staff. RWSG-WA prepared a draft project document which was discussed during pre-appraisal and presented to a national workshop during appraisal. The project document was further developed into a Project Implementation Manual by a small unit established in DH. Objectives 3.03 The main purpose of the project is the full-scale demonstration of the new sector strategy whose objectives are: (a) to maximize the impact and use of safe water supply and sanitation facilities in rural areas; and (b) to ensure that the future development of the sector will actually respond to the demand of rural population. The adoption of a decentralized approach would help ensure that investments are demand-driven. This requires to create an enabling environment for local contractors and consultants, for commercializing village-level operated and maintained (VLOM) pumps and spare parts through private networks and for promoting affordable solutions for on-site sanitation.  - 11 - Description. 3.04 The project comprises four components: (a) water supply for rural communities in two regions; (b) provision of VLOM pumps to cover the needs of all RWS projects in Benin; (c) sanitation and hygiene education for rural communities in two regions; and (d) capacity building. The project would cover the Atlantique and Zou regions which are located in the South of Benin where traditional water sources are relatively abundant. RWS projects have proved to be even less sustainable there than in other parts of the country (more than 50 percent of the pumps are in disrepair in Atlantique), particularly the Sahelian zones. 3.05 Rural Water Supply. Rural communities that place a high priority on water supply would be given the opportunity to plan and design the improvement of their water systems. They would be requested to prepare a village project document with the assistance of a local NGO, including preliminary design of the facilities to be constructed and a management plan describing maintenance and cost recovery arrangements. Communities would be offered to choose between the following options (or a combination of these options): (a) rehabilitation or improvement of existing wells, boreholes and replacement of handpumps; (b) six types of water supply sources: cistern, spring catchment, well, borehole, standpost or small piped system; and (c) three types of pumping equipment: handpumps, diesel-motorized pumps and solar pumping. 3.06 About 200,000 people in 400 rural communities would be served by the rural water facilities to be constructed. Table 3.1 gives a tentative breakdown of the type and number of rural systems expected to be requested by the communities in the two regions covered by the project. These figures are indicative, since they are based on the condition of the existing facilities and the potential water resources in each department. Table 3.1 Type and Number of Water Supply Facilities Atlantique Zou Type of Rural System Department Department Total Cistern 10 10 20 Sring Catchment 8 12 20 Well9 10 10 20 Well Rehabilitation 25 25 50 Borehole 100 260 360 Borehole Rehabilitation 20 20 40 Standpost 3 3 6 Small Piped System 2 2 4 3.07 UNICEF, which has carried out several RWS projects and sanitation and health projects in the Zou region in the last seven years, expressed interest in being associated with the implementation of the strategy. UNICEF projects have been the only ones in Benin to associate water, sanitation and health education. The continuation of the UNICEF program  - 12 - during a two-year trial period, during which UNICEF would disengage from the force account drilling activities, would be included in the project. UNICEF would assist in the design and supervision of the execution of 200 boreholes in Zou (included in the above Table 3.1) and would be financed by IDA on the basis of services rendered. Boreholes would be drilled by private contractors selected in accordance with Bank procurement guidelines. The remainder of UNICEF activities in Zou, i.e. the sanitation and health program would be financed by UNICEF from its own resources. Assurances were obtained during negotiations that DH: (a) would discontinue its force account activities no later than January 1, 1995; and (b) divest of its drilling equipment no later than January 1, 1996. 3.08 Provision of VLOM pumps. The Government has decided to select the types of pumps to be recommended to communities on the basis of international competitive bidding, which would eliminate restrictions on the origin of equipment. The selected types would be used by all future RWS projects throughout Benin, in order to lay the ground for efficient operation and maintenance in the four regions not directly affected by the project. The project would thus include the provision and delivery to Cotonou of some 1,500 pumps to cover the needs of rehabilitated and new water facilities over the next three years. Three different lift ranges would be specified to suit the variable hydrogeological conditions. Technical specifications would be precise as regards minimum yield performance, ease of disassembly and maintenance, corrosion resistance and maximum annual part costs to be borne by the communities. 3.09 Handpumps financed under the project will be delivered by the supplier to the selected distributor in Cotonou who would stock them prior to final delivery to the communities or to other RWS projects. The Project Implementation Manual will specify the procedures under which the pumps would be handled to other projects, in order to ensure particularly that possible claims be exclusively directed to the supplier and/or distributor. The contract of the distributor/installer will specify the arrangements for controlling: (a) the inventory of equipments, including spare parts; and (b) quality and performance at the final delivery point and after installation. 3.10 Sanitation and Hygiene Education. The overall objectives of this component are to contribute to improvements in the health of rural populations and to the quality of the rural environment through better management and delivery of sanitation services. Specific objectives are to: (a) increase the demand for improved sanitation services through extensive marketing and promotion campaigns; (b) train masons (and small enterprises) who can construct and promote on-site sanitation systems for households, communities, schools and health centers; (c) improve the environmental sanitation conditions and hygiene practices in schools and health centers and; (d) improve the environmental sanitation and hygiene practices of rural households and communities through integration of appropriate messages and activities in the community mobilization process for the water supply program. 3.11 A detailed description of the sanitation component is given in Annex 3-4. The component comprises four interlinked sub-components:  - 13 - (a) development and dissemination of marketing and promotion tools. This will involve assistance of a marketing specialist in the identification of appropriate multi-media and preparation of appropriate tools for "selling" sanitation. Materials already existing for promotion of improved sanitation services will also be assessed and incorporated into the marketing and promotion process; (b) development of appropriate training materials for private masons and training them to construct and market a range of latrines; (c) systematic construction of latrines in schools and health centers (about 300) which do not already have functioning ones. Linked to this construction program will be the provision of water points (cisterns), and development, dissemination and use of training materials on hygiene education and on the proper management of these latrines; and (d) integration of messages (about improved management of sanitation facilities, hygiene and maintaining a clean physical community environment) into the mobilization and training activities for delivery of improved water supply facilities to the target communities. 3.12 Capacity Building. The implementation of the sector strategy would entail considerable shift of responsibilities between the public sector and the private sector. The capacity building component would therefore comprise training, technical assistance, studies, monitoring and evaluation activities and project management. The training program, consisting of modular units targeted on the various public actors (DH, SRHs, regional committees) and to the private sector organizations and firms (NGOs, local consultants, contractors, masons, well-diggers, pump mechanics) is detailed in Annex 3-6. The training program will be managed by a NGO and about 32 months of training would be provided by regional or Beninese institutions familiar with participatory techniques or assistance to small contractors (CEPEPE). Technical assistance would focus on the technical aspects of implementation (36 staff-months of one expatriate advisor) and community development (36 staff-month of one Beninese consultant). The expatriate TA would help: (a) prepare the technical specifications of the bidding documents, including design criteria; (b) prepare guidelines for the selection of technologies and technical solutions; (c) set up a monitoring system for contract management; (d) monitor the performance of local contractors; and (e) provide assistance to local consultants and NGOs. The Beninese advisor would help: (a) design the information campaign; (b) identify private actors and NGOs and set up cooperation arrangements between them and the public actors; and (c) monitor the implementation of the mobilization process by NGOs and organize periodic evaluations. Overall supervision and evaluation would be provided by RWSG-WA and through operational audits carried out by short-term consultants. Project management would be the responsibility of DH and the SRHs. IDA would finance equipment and incremental operating costs (except salaries and benefits) on a declining basis.  - 14 - Costs 3.13 The estimated total cost of the project is US$15.0 million (excluding taxes), of which U$12.6 million are foreign exchange costs (84 percent). A breakdown by component is given in Table 3.2 and detailed cost estimates are provided in Annex 2-1. Table 3.2 Summary of Project Costs US$ million % of Component Foreign Local Total Base Cost A. RURAL WATER SUPPLY Civil Works 4.11 0.62 4.73 Equipment and Materials 0.46 0.06 0.52 Consultant and NGO Services (incl. UNICEF) 1.15 0.22 1.37 Sub-total 5.72 0.90 6.62 53 B. VLOM PUmPS Sub-total 1.28 0.00 1.28 10 C. SANITATION Civil Works 0.69 0.21 0.90 Equipment and Materials 0.07 0.00 0.07 Consulting Services 0.26 0.07 0.33 Operating Costs 0.15 0.10 0.25 Sub-total 1.17 0- 1.55 13 D. CAPACITY BUILDING Training 0.35 0.07 0.42 TA and Consulting Services 0.52 0.06 0.58 Monitoring and Evaluation 0.18 0.02 0.20 Equipment 0.15 0.00 0.15 Operating Costs 0.31 0.20 0.51 Sub-total 1.51 0.35 15 E. PPF REFINANCING 1.17 0.00 1.17 9 TOTAL BASE COST 10.85 1.63 12.48 100 CONTINGENCIES Physical Contingencies 0.97 0.16 1.13 9 Price Contingencies 0.73 0.66 1.39 11 TOTAL CONTINGENCIES 1.70 0.82 2.52 20 TOTAL PROJECT COST 12.55 2.45 15.00 120 3.14 Base costs are expressed in January 1994 prices. They are based on contracts awarded in Benin for similar major works and on contracts recently awarded in West Africa for supplying pumps and updated to take into account the impact of the devaluation of the CFA Franc. The number of water points to be constructed will rather depend on the actual choices of technologies by the communities. Physical contingencies have been set at 10 percent. Price contingencies for costs in foreign exchange reflect Bank projections for world inflation at an average rate of 3.1 percent per year. Inflation rates in Benin for costs in local  - 15 - currency are derived from PFP projections of the GDP deflator, i.e. 25 percent in 1994, 9.8 percent in 1995 and 3.1 percent thereafter. Financing 3.15 The Project cost of US$15.0 million equivalent would be financed as shown in Table 3.3. The IDA credit of US$9.8 million equivalent would finance 65 percent of total project costs. The Government of Denmark would provide US$4.0 million on a grant basis under joint co-financing arrangements with IDA. Cross-conditionalities will be established between the effectiveness of the IDA credit and the effectiveness of DANIDA financing. The Government of Benin would finance US$0.5 million and the project would require budgetary allocations in the Public Investment Program (PIP) of CFAF 30 million in 1994, CFAF 40 million in 1995, CFAF 53 million in 1996 and CFAF 34 million in 1997. Assurances were obtained during negotiations that the Government would allocate these amounts in the Public Investment Program and timely deposit them in the Project Account according to a time table agreed upon with IDA. Table 3.3 Project Financing Plan (in US$ mfllion) Source of Funds Foreign Local Total Government of Benin 0.16 0.29 0.45 Communities 0.59 0.18 0.77 Government of Denmark 3.36 0.62 3.98 IDA 8.44 1.36 9.80 TOTAL SOURCES 12.55 2.45 15.00 3.16 Assurances were obtained during negotiations that the financial contribution of the communities would be determined on the basis of the willingness to pay studies (Para. 2.29) and in respect of the level of services provided. Communities would for instance finance the full cost of the superstructure of wells and boreholes, the local transport costs and installation costs of the VLOM pumps, the full cost of motorized pumps and 10 percent of the cost of piped networks and of solar pumping systems. On average, communities would finance about six percent of the capital costs of their water supply systems. They would also finance 25 percent of the costs of the sanitation facilities constructed in schools and health centers. Household latrines would be fully financed by the beneficiaries and have not been included in project costs. Procurement 3.17 The procurement methods for all project items and for the items to be financed by IDA are summarized in Table 3.4. IDA guidelines of procurement will apply to items financed jointly by the Government of Denmark and IDA. International competitive bidding  - 16 - (ICB) would be used for 41 percent of all procurement and 66 percent of the procurement of goods and works. 3.18 Civil Works. Borehole drilling would be tendered through ICB. Because of the demand-driven nature of the project where communities plan their systems, the SRHs will annually program the works which would be packaged in contracts regrouping 30 to 40 boreholes. Discounts for the combined execution of two or more packages would neither be solicited from bidders nor considered in contract award. Local drilling contractors would receive a margin of preference of 7.5 percent when comparing bids with those of foreign contractors. 3.19 Rehabilitation of existing boreholes (about 20 per year), construction of new wells (about 20 per year) and civil works for small piped systems (5 per year), borehole superstructure and drains, and, generally, civil works contracts exceeding US$20,000 would be tendered through local competitive bidding (LCB). Individual contracts awarded under LCB would not exceed US$200,000, up to an aggregate value of US$1,900,000. Foreign firms would not be precluded to participate. Civil works for improving existing wells and cisterns and for the construction of spring catchments and of latrines, for individual contracts of less than US$20,000 would be tendered at the regional level by the SRHs among prequalified small contractors and masons to be trained under the project. Given their lack of experience in public procurement, tendering at the regional level would be carried out as follows: (a) contracts would initially be let on the basis of fixed prices, up to an aggregate value not to exceed US$100,000; and (b) thereafter contracts would be tendered through local shopping, up to an aggregate value not to exceed US$350,000. 3.20 Goods and Equipment. Supply and delivery to the port of Cotonou of 1,500 VLOM pumps would be tendered through ICB. Tender documents, including detailed specifications and performance standards for three different lifts have been prepared by RWSG-WA which would assist DH in the selection process. Electrical and solar equipment for the small piped systems and, generally, supply contracts not exceeding US$150,000 would be tendered through LCB, up to an aggregate amount of US$450,000. Local or international shopping or procurement from IAPSO would be utilized to procure goods under contracts estimated to cost less than US$50,000, up to an aggregate amount of US$300,000. 3.21 Local distributors of VLOM pumps would be identified and selected by DH in parallel with the procurement process for the pumps. Distributors would be responsible for transport and on-site delivery and installation of the pumps, supply of spare parts and of training of mechanics. Communities will directly contract the distributor and SRHs and DH will supervise and monitor the execution of these contracts. 3.22 Consulting Services and Trining. Consultants would be hired for studies, supervision, technical assistance and monitoring on terms and conditions acceptable to the  - 17 - Association and in accordance with the Bank's Guidelines for the Use of Consultants. Local NGOs would be prequalified to assist communities on the basis of experience, demonstrated capabilities, prior involvement in areas covered by the project, staff and sustainability (Annex 2-3). They will receive a lump sum payments based on average time and costs for each phase of the community's project cycle (mobilization, planning, construction and follow-up). An international NGO with suitable experience in community-based water projects may be directly contracted to train and evaluate the local NGOs. UNICEF would be contracted to provide design and supervision services for the execution of some 200 boreholes contracted to private drilling companies in the Zou department and to provide support services, up to an amount not to exceed US$650,000. 3.23 Project Management Costs. Eligible incremental operating expenditures consist of travel allowances for Project staff, equipment maintenance, vehicle costs (fuel, maintenance and insurance), office supplies and compensation of the accounting staff recruited in the private sector under fixed-term contracts. They will be financed on a declining basis (averaging 75 percent) by IDA and the Government of Denmark. Operating budgets of DH and SRHs for project-related activities would be agreed with the Association. Table 3.4 Amounts and Methods of Procurement (in USS million; amounts rmanced by IDA are shown in italics) Description ICB LCB Shopping Other NIF a Total Civil Works 4.62 1.87 0.33 0.10 0.00 6.92 3.14 0.98 0.17 0.05 0.00 4.34 Handpumps, Equipment, 1.50 0.42 0.27 0.00 0.20 2.39 Vehicles, etc. 1.02 0.27 0.17 0.00 0.00 1.46 Consulting Services, 3.52 0.00 3.52 Training, Technical 2.39 0.00 2.39 Assistance and NGO Services Operating Costs 0.78 0.22 1.00 0.44 0.00 0.44 PPF Refinancing 1.17 0.00 1.17 1.17 0.00 1.17 Total 6.12 2.29 0.60 5.57 0.42 15.00 IDA 4.16 1.25 0.34 4.05 0.00 9.80 a/ Not IDA-financed 3.24 Procurement Documentation and Review. Assurances were obtained during negotiations that the Government and DH would use the standard bidding documents recommended by IDA to prepare the procurement documentation. Sample bidding  - 18 - documents have already been established for Benin and a new procurement code, reviewed by IDA, has been submitted to the Parliament. Consultants will assist DH to prepare generic tender documents, based on the sample bidding documents, for each specific type of works or goods contract and the detailed procurement procedures, to be included in the Project Implementation Manual. RWSG-WA assisted DH in preparing tie tender documents for the VLOM pumps supply contract. Standard documentation for the procurement of consulting services (letter of invitation, contract form) is already used by IDA-financed projects in Benin. All contracts for goods and works estimated to cost US$25,000 or more, all contracts with consulting firms estimated to cost US$100,000 or more, and all consultant contracts with individuals estimated to cost US$50,000 or more would be subject to IDA's prior review. The remaining contracts would be subject to post review on a selective basis (one in four). 3.25 Procurement information would be collected and included in the quarterly progress reports. DH will submit to IDA updated information on: (a) contract award; (b) revised cost estimates for individual contracts and the total costs; (c) revised schedule of procurement actions, including advertising, bidding, contract award and completion time for individual contracts; and (d) compliance with aggregate limits on specified methods of procurement. The periodic operational audits (Para. 4.11) would include a review of procurement and contract management practices. Disbursements 3.26 The IDA credit and the DANIDA grant would be disbursed as shown in Table 3.5. The Project is expected to be completed by July 1997 and the closing date would be December 31, 1997. Disbursement schedules are given in Annex 2-2. 3.27 To facilitate disbursements, a Special Account in local currency would be established in a commercial bank on terms and conditions acceptable to the Association. Opening the Special Account will be a condition of credit effectiveness. DH would open and manage the Special Account and would prepare the replenishment applications to be sent to IDA each month under the signature of the Minister of Finance. DANIDA funds would be channelled into the Special Account as IDA procurement and disbursement procedures will apply. The authorized amount of the Special Account would be US$1,050,000 (US$700,000 drawn from the IDA credit and US$350,000 from the DANIDA grant), which would cover three months of eligible expenditures. 3.28 DH would also open and manage a Project Account in local currency with an initial deposits of CFAF 30 million in a commercial bank in Cotonou. This will be a condition of credit effectiveness. A sub-account would be opened in a commercial bank in Abomey- Bohicon as soon as a bank branch would be established there. The Project Account will be used for local counterpart funds and to pre-finance small contracts tendered at regional level. It would be replenished monthly from the Special Account for eligible expenditures. Amounts deposited by the Government would be adjusted annually in line with the increasing financing requirements, in accordance with a schedule agreed with the Association during  - 19 - negotiations. The SRHs would also maintain a petty cash account (not to exceed CFAF 200,000) to cover their operating costs. Table 3.5 Disbursement of IDA Credit and DANIDA Grant (in US$ million) Amount Allocated IDA DANIDA Category Credit Grant Method of Disbursement la. Civil Works for Water 3.22 1.55 IDA 68%, Danida 32% of expenditure Supplies lb. Civil Works for 0.63 0.30 IDA 68%, Danida 32% of expenditure Sanitation Facilities 2a. Equipment for Water 0.25 0.11 IDA 63%, Danida 27% of expenditure Supplies 2b. Supply of Handpumps 0.94 0.45 IDA 68%, Danida 32% of expenditure 2c. Equipment and Vehicles 0.15 0.07 IDA 63%, Danida 27% of expenditure for DH and DHA 3. Consulting Services, 1.67 0.82 IDA 68%, Danida 32% of expenditure Training and Technical Assistance (including NGOs and UNICEF) 4. Training 0.45 0.21 IDA 68%, Danida 32% of expenditure 5. Operating Costs 0.39 0.13 Declining rate averaging 56% for IDA, 19% for Danida 6. PPF Refinancing 1.17 0.00 Amount due 7. Unallocated 0.93 0.34 TOTAL 9.80 3.98 3.29 The payment by the community of its financial contribution to investments would be a condition of the start-up of the works in the village. Rural communities would be required to open a deposit account with the local rural credit agency (CLCAM) or make other arrangements to secure their part of the investment costs. To the extent possible, community funds would be used to finance advance payments to the contractors in order to expedite mobilization. 3.30 Disbursements would be made against standard IDA documentation with the following exceptions, for which certified statements of expenditure (SOEs) would be used: (i) contracts costing less than US$20,000 equivalent; (ii) training courses and seminars held in Benin; and (iii) travel allowances. SOEs would be certified by the managing director of DH for Parts A and D and by the designated national program coordinator in DHA for Part C  - 20 - (Sanitation). These SOEs would be subject to review by supervision missions, annual financial audits and periodic operational audits. Accounting and Audits 3.31 MEMH through DH would maintain separate accounts and records for all project activities, including SOEs, the Special Account and the Project Accounts. An experienced firm is being contracted to assist DH in establishing an accounting and budget system in accordance with internationally acceptable accounting procedures and to train project staff. The system would: (a) be decentralized at regional level; (b) provide cost accounting information on the costs of individual village projects; and (c) permit rapid consolidation of project expenditures. The establishment of the accounting and budget system would be a condition of credit effectiveness. 3.32 Assurances were obtained during negotiations that: (a) MEMH would have the records and accounts of the Project audited for each fiscal year by independent auditors acceptable to the Association; (b) the Special Account, the Project Account and SOEs will be audited semi-annually; and (c) MEMH will submit the annual audit report to IDA within six months of the end of each fiscal year and three months after the end of each semester for the semestrial audits. The selection of the auditors would be a condition of credit effectiveness. IV. IMPLEMENTATION AND MONITORING 4.01 The implementation arrangements and the implementation schedule are detailed in Annexes 3-1 and 3-2 and summarized below. Organization and Management 4.02 DH would be the implementing agency of the project. The deputy managing director of DH has been designated as project coordinator. A small team has been set up which includes an assistant coordinator, two technical assistants (one technical implementation advisor and one community development advisor, already selected on a competitive basis) and support staff. This team prepared a draft Project Implementation Manual (the table of contents of the Manual is given in Annex 3-3) and launched a campaign to disseminate the sector strategy. The draft Implementation Manual was finalized during negotiations. The central unit would be responsible for overall project coordination, establishment of guidelines and standards, management of contracts tendered through ICB or LCB and accounting and financial management of the project and would provide assistance to the SRHs. One accountant is being recruited in the private sector to complement the team. 4.03 DH would delegate the implementation of the Sanitation component (Annex 3-4) to the DHA of the MS which would appoint a national program coordinator. Decentralized implementation would be the responsibility of two regional teams, established in the DDS. Each team would comprise the following skill mix: one unit head/planner, one  - 21 - promoter/trainer for on-site facilities and one promoter/trainer for hygiene education and promotion activities. The program coordinator has been appointed and the staff of the regional teams has been selected before negotiations. Working relationship and respective responsibilities of the MEMH and the MS have been spelled out in an agreement signed by the two ministers (Annex 3-5). 4.04 The two SRHs of Zou and Atlantique would manage the project at regional level. To ensure closer and easier follow-up of RWS activities, the SRH of Atlantique would be transferred outside of Cotonou. Two teams, each comprising two engineers, one community development specialist and one accountant would coordinate and supervise the local NGOs, check village applications and project documents, program the construction contracts and delegate supervision of works to local consulting engineers. The selection of the staff of the SRHs has been completed before negotiations. Two follow-up committees (commissions multipartites de suivi - CMS), made up of representatives of interested ministerial departments (Health, Territorial Administration, Planning), of elected representatives and of NGO associations would also be established at regional level and would receive training and assistance from the international NGO. Project Cycle at Village Level 4.05 The Village Project Cycle would start with the submission of an initial application for improving water supply to the SRH. After checking the SRH would contract one of the prequalified NGOs--or a joint venture between a NGO and local consultants if the technical solution is complex--to assist the community to mobilize and to prepare a village project document that would provide the preliminary design of the facilities and a description of the operation and maintenance arrangements as well as of the cost recovery and financial procedures. The mobilization phase includes the establishment of a Water and Sanitation Committee (WSC) that would represent the community and the NGO would ensure the participation of women in the mobilization and planning process. The village project document would be passed to the SRH to check its conformity with policies and guidelines. The SRH would then prepare the procurement documentation and packages for boreholes, large wells and piped systems. Villages would contract local artisans or provide in-kind contribution for the simpler works and would also contract directly the distributor of handpumps for delivery and installation. The NGO would train the community in managing and maintaining its water facilities and provide follow-up support and would carry out the hygiene education program throughout the process. Organization of Operation and Maintenance 4.06 Maintenance of point source water supply systems (wells, handpumps and spring catchments) would be the responsibility of communities with day-to-day management provided by their water and sanitation committees. The WSC would monitor the use of the water point, collect revenues, keep accounts, and make repairs themselves or hire the services of a private mechanic. Several WSC members (normally women) would be trained to perform all routine maintenance and repairs, and local mechanics would be trained to make all types of repairs by the importer or representatives of the supplier. Maintenance  - 22 - of piped systems would also be the responsibility of the WSC which would contract maintenance functions to local mechanics or representatives of the supplier of equipment. Water User Groups would be established for the operation of each delivery point and would collect revenues to be transferred to the WSC on the basis of the metered consumption of the delivery point. Phasing and Implementation Schedule 4.07 The project would be implemented in three phases. The expected outcome of the first phase would be to create an environment enabling the rural communities to participate and to initiate the communication process. This phase, financed by PPF advances of US$1.2 million, started in July 1993 and to be completed in July 1994, would allow to: (a) select and train project staff; (b) develop standards and specifications; (c) select the pumps and the distributors; (d) identify, train and test local NGOs, local consultants and other resource persons; and (e) design and test the communication campaign targeted on communities. The second phase of implementation would start with a five-month information campaign and the training and prequalification of small contractors. The NGOs would contact the communities by mid-October 1994. It is expected that the first batch of village projects would be programmed and packaged in February 1995 and be completed by the end of 1995. A second batch of projects would be designed, programmed and executed from October 1995 to December 1996. The third phase (January-June 1997) would be devoted to the validation of the demand-driven approach and would include: (a) an exhaustive operational audit covering all facets of project implementation; (b) surveys of use and impact of the water and sanitation facilities; and (c) formulation of recommendations for the replication of the project. Reporting and Monitoring 4.08 Assurances were obtained during negotiations that quarterly progress reports will be prepared by the SRHs and consolidated by DH and sent to IDA. These reports would include: (a) progress against agreed schedule of activities and key performance indicators; and (b) procurement information and cost estimates, updated as needed (Para. 3.24). 4.09 Key monitoring indicators refer to effectiveness in implementation and to progress in achieving project objectives. They would cover the following: (a) the effectiveness and sustainability of the decentralized planning process; (b) progress in developing private sector capacity; (c) the ownership and community management of facilities; and (d) the use and impact of facilities. Annex 4-1 provides a list of detailed indicators that would be discussed and agreed upon during negotiations. Supervision and Evaluation 4.10 The innovative nature of the project and the inherent dispersion of project activities requires an intensive supervision. The Government and the co-financiers have requested RWSG-WA, which was involved at an early stage, to provide support in this respect. RWSG-WA would schedule about 15 staff-months of a rural water supply specialist and of  - 23 - a community development specialist. RWSG-WA's involvement would include field supervision, assessment of compliance with established procedures and feedback on the possible needs to modify them and cross-fertilization with other projects in West Africa. 4.11 Evaluation will refer primarily to the effectiveness of the decentralized approach. Self-evaluation and exchange of experiences of the NGOs and the regional teams would be encouraged and supported by the central unit and the international NGO through quarterly sessions. External evaluation would also be provided through periodic operational audits covering; (a) procurement and contract management practices; (b) performance of the contractors; and (c) accounting and financial management. 4.12 Assurances were obtained during negotiations that, once a year, DH would organize a joint IDA/DANIDA/Government review of project implementation covering: (i) progress reports and annual work program and budgets; (ii) status of monitoring indicators listed in Annex 3-8; and (iii) the sectoral investment program. Other donors represented in Cotonou would be invited to facilitate the dissemination of lessons learned and experience accumulated during implementation; and 4.13 Assurances were obtained during negotiations that a mid-term project review would be carried out by the relevant Government agencies jointly with IDA and DANIDA no later than March 31, 1996 to assess: (a) project management and coordination; (b) timeliness in providing budgetary allocations and counterpart funding to DH; (c) effectiveness of the WSCs and capacity of communities to plan and manage their water supply facilities; (d) performance of NGOs and local consultants in assisting communities to plan their water systems and performance of contractors in constructing water and sanitation facilities; (e) impact of sanitation and hygiene education programs; and (f) overall progress of project implementation with respect to key indicators. DH would prepare and transmit to IDA an evaluation report one month in advance of the mid-term review. The procedures followed in project implementation, the pace of execution and the allocation of responsibilities may have to be modified, depending on the outcome of the review. V. JUSTIFICATION AND RISKS Benefits and Beneficiaries 5.01 Through the construction of water facilities offering closer and more reliable sources of supply to the communities, the project would first allow to save time and efforts in fetching water, particularly in the dry season. Health benefits would be generated by the synergistic effects of the improved quality of drinking water, the increased consumption and the improved personal hygiene and excreta disposal. Waterbome diseases would be expected to decline and consumption of safe water would interrupt the transmission of the Guinea worm, endemic in the Department of Zou. Iodine deficiencies disorders, also frequent in Zou, could also be eradicated by equipping wells and boreholes with iodine-releasing devices which proved their effectiveness in Mali and CAR.  - 24 - 5.02 By targeting rural communities and particularly small communities which could not have access to safe water and improved sanitation, the project would benefit the poorest strata of population. Time savings and improved health should translate into increased productivity of adults and increased informal sector activities and should also generate greater opportunities for education and training. The emphasis placed on the development of the private sector--particularly of small contractors and artisans--and of low-cost technologies would also create greater employment opportunities by promoting labor- intensive techniques. 5.03 Time saving benefits would accrue to women and girls who are traditionally responsible for household supply. Women would be the primary target of the mobilization process as the sustainability of cost recovery mechanisms would depend on their contribu- tions. As such, they would be encouraged by the NGO teams to grasp opportunities to participate at all levels which would help them develop skills in decision-making and in management, which will be applicable in other domains. Environmental Impact 5.04 Improvement of sanitation facilities and hygiene education would bring improvements of the village environment. Particular attention would be paid in design and execution of the physical works to mitigate potential negative environmental effects generated by the incremental use of water resources and the increased volumes of waste water, particularly in the vicinity of the new water points. Groundwater resources to be mobilized will be minimal. Wherever higher yields or spring water would be tapped, hydrogeological investigations will be conducted to ensure sustainability and adequate management of resources. Water quality will be tested and monitored. The interactive design and ihnplementation process should also result in better siting of point sources in regard of potential contamination and better management of water point surrounds. Technological options focus on renewable energies (handpumps and solar energy). The project does not include dams or resettlement. The project has been assigned to category B. An environmental study was carried out in January 1994. The executive summary of the study is attached as Annex 5-1. Sustainability 5.05 The overall project concept is geared to ensure greater sustainability. The demand- driven approach would create genuine ownership of the facilities by the villagers. Operation and maintenance of the water systems would be independent of government's subsidies or technical inputs and the systematic recourse to the local private sector and local organizations in executing works and providing goods and services would further enhance the sustainability of the project. In addition, the integration of water supply, sanitation and hygiene education would maximize the health benefits and ensure a long-term impact.  - 25 - Rsks 5.06 Main risks pertain to: (a) the capacity of DH to adjust to its new responsibilities and its commitment to not interfere with communities' decisions; and (b) the effectiveness of NGOs and other private actors in dealing with communities and cooperating with governmental entities. To mitigate these risks, strengthening of DH and SRHs through selection and training of key personnel already takes during the PPF period. NGOs and private contractors would also be prequalified and trained well in advance of the start-up of field operations. The training program will be extended throughout the implementation phase to allow for self-evaluation and exchanges of experience and lessons between the various actors, and complemented by the feedback from the external supervision team. 5.07 Another risk would be represented by the inadequate allocation of counterpart funds by the Government. This would not create any delay in the execution of works--for which counterpart funding is provided by the communities--but rather would undermine the efficiency of project management. Substantial assurances have been required from the Government to mitigate this risk which would be closely monitored and scrutinized in the mid-term review. Moreover, MEMH and DH fully acknowledge that the new missions of DH require permanent and secure funding and could no longer depend on the sporadic support of external financial assistance. VI. AGREEMENTS AND RECOMMENDATION Agreements 6.01 The following actions have been taken before negotiations: (a) a draft policy letter and a draft Implementation Manual have been sent to IDA (Paras 3.01 and 4.02); (b) an international NGO has been selected to manage the training activities (Para. 3.12); (c) the sanitation program coordinator and the staff of the regional teams of the DHA have been selected (Para. 4.03); and (d) the teams of the SRHs have been selected (Para. 4.04). 6.02 During negotiations, confirmation and agreement was obtained from the Government that: (a) DH would discontinue its force account activities before January 1, 1995 and divest of its drilling equipment before January 1, 1996 (Para. 3.11);  - 26 - (b) the amounts required for counterpart funding of equipment and incremental operating expenditures would be timely allocated and deposited in the Project Account (Paras 3.15 and 3.28); (c) the financial contribution of the communities would be determined on the basis of the willingness to pay studies and in respect of the level of services provided (Para. 3.16); (d) standard bidding documents recommended by IDA would be used to prepare the procurement documentation (Para. 3.24); (e) MEMH would have the records and accounts of the Project audited for each fiscal year by independent auditors acceptable to the Association and would submit the audit reports to IDA within six months of the end of each fiscal year. The records and accounts of the Special Account, the Project Account and SOEs would have to be audited semi-annually (Para. 3.32); (f) quarterly progress reports would be sent by DH to IDA (Para. 4.08); (g) once a year, DH would organize a joint IDA/DANIDA/Government review of project implementation and of the sector investment program (Para. 4.12); and (h) a mid-term project review would be carried out by the relevant Govermnent agencies jointly with IDA no later than March 31, 1996 (Para. 4.13). 6.03 The signed letter of sector policy was transmitted to IDA before Board presentation: (Para. 3.01). 6.04 The following actions will be taken before effectiveness: (a) the contract for supplying handpumps would be awarded (Para. 3.08); (b) the Special Account would be opened by DH in a commercial bank (Para. 3.27); (c) the Project Account would be opened with an initial deposit of CFAF 30 million (Para. 3.28); (d) auditors would be appointed and an accounting and financial monitoring system would be established (Paras 3.31 and 3.32); and (e) agreements with co-financier would be effective (Para. 3.15).  - 27 - Recommendation 6.05 With the above agreements and actions, the proposed project would be suitable for an IDA credit of SDR 7.0 million (US$9.8 million equivalent) to the Republic of Benin.  0  REPUBLIQUE DU BENIN Annexe 1-1 Page l of 6 MINISTERE DE L'ENERGIE, DES MOMUS ET DE LHYDRAuLiQuE N O16/MEMHIDC/DH LETIXE DE POLITIQUE DE DEVELOPPEMENT DU SECTEUR DE L'EAU POTABLE ET DE L'ASSAINISSEMENT EN MILIEU RURAL Ceue letre a pour but de decriTe la politiquc sectorielle et les principes d'acdon que nous entendons- suivre-pour d6velopper les services d'alimentation en eau potable et d'ass'inissement en milieu rural. Dtes mesures et un calendrier d6tailles figurent dans le plan d'action fourmi en annexe. Streae gcs6rale de ddveloppenent du secteur L'Cau, source de vie, a toujouTs consttu6 pour le Gouvernement de la R6publique du B6nin une priorite tant dans le milieu rural que dans les grandes villes et agglomerations periurbaines. La mobilisation et la mise i disposition de cette ressource fondamentale avait toujours occupE une place de-premier plan;, - iProfltanL de la deMi6re46cennie qui avait Ete decrEtte Dcennie Inteittionale de>jE#u Yotabe te, l'smicmt (DIEPA), la Republique -du Benin a, ave le tconcours tc ses dift6rcnts partenalres au d6vcloppcmcnt, Elabor6 et executE plusicurs projets d'Hydr ulique viliageoise qui ont permis de couvrir lea besoins urgents des populations rurales en eau potable. Cependant, la construction d'ouvragcs modernes s'est faite a un rythme elevc qui n'a pas toujours permis dc consacrer suffiwmment de temps i la verification de l'intEr6t des conmunautes a utiliser et gerer les installations-mises A leur disposition. .La tenue de la consultation g!obale mondiale sur Tleau potabk ce l'aseaitssement I New Delhi, en Ide en 1990 a dEgage pour chaque pays, h n6cessiO de se doter d'une strategic dim le seteur. . La strat6gic de d6veloppernnt du secteur de l'alimentation en eau potable et de leassainissencwnt,en milicu rural, adopt6e par le Gouvernement de la R6publique du Bednin le 17 mars 1992 constitue UnC nouvelle etape I franchir par rapport i la politique men6e antcrieurement. Elie se fixe comme objectifs de maximiser l'impact et I'utilisation effective des installations,villageoises et d'assurer le d6veloppmennt durable de I'alimentation en eau I potable et de l'assainisserment en donnant aux communautds. rurales un r6le central dans Ic processus d'elaboration et d'cxecutioi dc projets d'uiveMent puis dim lour exploitation.'  Annexe 1-1 Page 2 of 6 Les principes de base do la nouvelle strategie sont ls suivants: * dcenuralisaion du processus de prise de decision se traduisant par un rolo accru donn6 aux commuutc pour a'asurer que les installations r6pondent A une demande r6elle des populations et aussi par une d6concentration significative des services de la Direction de I'Hydraulique. participation financitrc des conunurnut6s l l'investissement initial et prise en charge de 1'exploitation par les communaut6s. - r6ducdon des coCts de construction et d'exploitation des ouvrages par des choix techniques adapt0s fozxl6s sur les besoins r6els des communaut6s et correspondant i Jeur volont6 at capacit6 do payer. * dsenwpgecment de l'Etat des tiches d'ex6cution des travaux et, correlativement, participation accrue du secteur priv6 national, tant au niveau des 6tudes que des travaux pour permcttrc I'6mergence d'entreprises comp6tentes et comp6titives. - integration des messges (sur la gestion am6lior6e des installations d'assainisscmcnt. l'hygi&ne et le maintien d'un environnement communautaire physiquement propre) damr les activiths de mobilisaion ot de formation des communaut6s cibhcs. Mise en oeuvre Comptc tenu de son caractbrc innovateur, la mise en oeuvre de cette nouvelle strategie devra etrc proreulve dans to tempr et dans l'cspac pour permettre une n6cssairc mis A l'Epreuve sur Ic terrain de ces principes dans une zone g6ographique donn6e, graduele tant dan ses objectifs que dans les actions en cours de r6alisation ou de pr6paration, concrke par ia mise on oeuyre de prosomm de travaux bas6 sur la volonte des communaut6s rurales, rEaUte par la modulation de Ia participation des communautfs en fonction de leur capacit6 r6elle. La premiere wape de miss en oeuvre coincide avec la r6alisation d'un projet qui a re;u le soutien dc I'Aociation Internationale pour le D6veloppement et du Royaume du Danemark. Elic aura pour but de cr6r je contexte favorable A la prise en charge effcctive de l'alimentaton en eau potable ct de I' sent par les communaut6s rurales. La r6ussite de co programme ne soa pas 6valu6e en termes de r6alisations physiques, mais en termes d'1vidence de l'udlisation contlne des instalbations apres Ic retrait des interventions ext6risures au milieu. Pans une deumxie 6tape, la nouvelle strathgie sera 6tendue a I'ensemble du pays. Enamsnments de l'Etat Pour garanuir la mise en application des dispositions de la nouvelle strat6gie, I'Etat s'engage A: 2  Annexe 1-1 Page 3 of 6 -sc d6gager des activit6s de construction; *ocuvrer pour la promotion du secteur priv6 local et de l'expertise nationale; *mettre les moyens n6cessaires, en particulier budgetaires, a la disposition de la Direction de l'Hydraulique ct de la Direction de l'Hygifne et de l'Assainissemcnt, de mani&re pgarantir Dpositon d prlnipes d'appikation =WKets tairl La Direction de i'Hydraulique ne decidera plus a priori quelles communaut6s bdn6ficieront des 6quipements d'eau ou d'assainissement. Los conununaut6s desireuses d'am6liorer leur systbmes d'alimentation en eau et Icur environnement sanitaire devront introduire elles-m6mes une demande de subvention auprFs du service r6gional de l'Hydraulique (SRH). Pour cela les communaut6s pr6pareront leur propre dossicr de projct avec l'assistance d'ONC b6ninoises qui les aideront a se mobiliser, A mettre en place un comite d'eau et d'assainissement et a d6finir leurs propres proc6dures de gestion at d'entretien des installations. Lcs SRH regrouperont les projets communaumtires, programmeront les travaux et proc6deront aux appels d'offres. Einan?mazal Le principe de financement des frais d'entretien par les communaut6s est d6ji introduit au B6dnin. 11 a 66 tres bien acceptc lorsque les villages b6n6ficient d'6quipement fiables et d'un acces facile aux artisans reparateurs et aux pibces de rechange. Les communaut6s devront 6galement payer une part du codt des installations fournissant le niveau minimum de services. On encouragera la mise en place d'instaLations permettant un mcillcur niveau de service; cependant les communautes devraient payer une part significative des coOts additionnels correspondants. Les normes de participation finanuiere scront d6teftifides en fonction des r6sultats des enquetes sp6cifiques conduites pour 6valuer la volonte de payer des communaut6s en fonction des niveaux de service qui leur sont propos6s. Choix Les communaut6s d6cideront non seulement si elles veulen. participer au programme, mals aussi quels equipements d'alimentation en cau et d'assainissement doivent Ite install6s. Les communaut6s auront ainsi la possibilit6 de faire un choix parmi les options suivantes (ou une;combinaison de ces options): rEhabilitation ou amilioration do points d'eau existants, six types de points d'eau et trois types d'exhaure. Le Gouvernement a par ailleurs d6cid6 que le choix du type de pompe A recommander aux cominmunauts villageoises sera fait sur la base d'uti appel d'offres intemational. Le(s) type(s) dc pompe s6lectionn6(s) sera(ont) utilise(s) dans tous les projets futurs d'AEP en milieu rural afin d'etablir une assise solidc pour l'exploitation at le'ntretien des pompes manuelles dans les quatre rEgions non dircctenint touchdes durant la prmmi6re etape de mise en oeuvre de la nouvelle stratEgic. Comme par le passe le codt des latrines a etW un obstacle, majeut i leur 3  Annexe 1-1 Page 4 of 6 diffusion, des latrines h faible co8t, utiuiunt au maximum les materiaux locaux seront propos6cs aux families. MoalitLs Tous les travaux, biens et services seront r6alises ou fournis par le sectcur priv6. Lexistence d'un r6seau national fiable d'entrepreneurs, consultants, artisans et reparateurs de pompes devrait renforcer la p6rennitd des installations. L'*nergence de ce r6seau n6cessitera de ne plus limiter I'accts aux march6s publics du secteur priv6 national, et pour cela: (a) d'adjuger rapidement les marchks; (b) de payer i temps les factures des entrepriscs; (c) de garantir un courant r6gulier d'activits pimtentielles; ct (d) dc fournir aux entrepriscs UnD assistance i la formadon ct A la gcstion. aloitation et entretien L'entretien de points deau (puits, pompes manuelles et captage de 5ource) sera a la charge des communautd3 villageoises avec une gestion journaliore assur6e par les comites d'cau et d'asainissemt (CEA). Les CEA contr6leront l'exploitation des points d'eau, collecteront Ics recettes. ticndront la comptabilit6, et feront Ies reparations eux- memes. ins pourront s'assurer lc services d'un artisan r6parateur priv6 de Icur choix. Plusieurs membres des CEA (de pr6f6rences les femmes) seront form6s A 1'entretien des pompes ct aux r6paradons de routine. Les artisans r6parateurs seront form6s A tous les types de r6paration par l'importateur ou Ic repr6sentant du fournisseur. L'cntrctien et lexploitation des petits reseaux sera Cgalement A la charge des CEA qui pourront s'assurer les services de r6parateurs locaux ou dcs repr6sentants du foui fisseur des 6quipements. Une aociation des usagers sera crMe pour l'exploitation dc chal. e point de livraison collectif et pour la collecte les recettes dont une partie sera transf6ree au UEA sur la base des relev6s des compteurs instll6s sur chaque point de livraison. Pla d'ctio Un calendrier d6tailld de mine en oeuvre des actions ct principes dcfinis ci-dessus est donnc dans l'annexe ci-apres. Pait i Cotonou, le 03 1994 Le Ministre de l'Enrr -iI1set de F'H yd ,' &Wr-U3LiQUUg< .. 4  Annexe 1-1 Pag? 5 Df 6 PL&A.N iYACFJON * R6oegaalsadon des snuctum de Is DUI Man 1994 * Nominatim peoe dues senvices r6gionaux Avril 1994 * Intallation du service r6gional de I'Atltique hors de Cotonou Octobrc 1994 * Mise en pace d'un sysi6ne de suivi de rutilisation et de l'impaca Mars 1995 des insullations d'AEP et d'assainissemcnn dans les d6partentls du Zou at de I'Atiantique * O6nhralisation du sysime de suivi i tous les departements Mars 1997 Udalsldoo ot advli * Mise A jour du manuel d'ex6cution Annucllc - Misn & jour des spEcifcations techniques, crithres de conceplion at Annucile documents-types d'uppd d'offrcs - Priperadon de programmes d'activit6s au niveau des services Annuelle * Preparadon de rappotu d'evahaon et de suivi de la perfomace Annuelle du irvenms du sectur public et priv6 (ONO, edteprises et comxiiauat) et de I'lmpa et de Putilisadondes Instalions d'ABP et d'inh_ * lasclrption au Programne d'invesuissemespublics (PIP) des fonda Inscription de coireparti n6conains & ia r6alisation du projat at virein des annuelle au PIP cEdits incrt au compte du projet at virements *emnesxade * I _uculptom au budSm de f h mne des crdt n6cessaires au Inscription f - dfeafif d SRH, y compris leun misions de suivi annudel  FAX 229 31 08 90 PAXONSPSHV P06 Amhie 1 1 souc. *u d6ioppumeot dn eur p6 Page 6 of 6 Janvier 1995 * arwt dc activit6s de foraSe en rdare * cession des Equipements de construction de poins d'eau Janvier 1996 * tranfet progrertif des activids d'implancon a g6ophysique au Janvier 1996 secew priv6 bninuis * 4 ONG foni6es et qualifri (ayans sist6 10 villageu& etablir des Juillea 1995 dossias de proJeu cot mnunauuires sadsfasunts) dans chacun des ddpartemcnts du Zou at de l Atlamique * au moins 20 masons form6s et qualifi6s dans chacun des doux luillet 1995 dpartements * mise en place d'un r6seau fonctionnel d'installation, de stockagc et Juillet 1995 de reparation dans le Zou et l'Atlantiqje * misc en place du reseau dans lea autres d6partements Juillet 1996 Gesdon - mise en place du sysim comptable et budgdiaire permetant de SepLimbre 1994 swvre I d6peames du projet, la iareb6a et le coOt des inscalltions des comnnautui dam le Zou et I'Atlannque - g6ndralisaion du syst6me aux aures d_pamus D6cembre 1996 * mise en pasce d'instasatiom foncionnelles d'alimentauion en eau Taux de potable et d'uaini_ dam 350 conunauts;Tn misc en place r6aisation dc d'insaIations fonctionnelles d'assainissemes dan 300 ecoles et 30% en centres do san d6ceimbre 1995 et 100% en aurs 1997  Annex 2-1 Page 1 of 3 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Detailed Project Costs Million CFAF US$ Thousand % % of Component Foreign Local Total Foreign Local Total Foreign Base Costs A. RURAL WATER SUPPLY Al. CIVIL WORKS Wells 18.2 5.6 23.8 30.0 9.2 39.2 Cisterns & Springs 2.9 0.9 3.8 4.8 1.5 6.3 Boreholes 36.3 5.6 41.9 60.0 9.3 69.3 Superstructure & Drains 73.6 22.7 96.3 121.5 37.4 158.9 Small Systems 53.7 6.2 59.9 88.8 10.3 99.1 Sub-total 2475.8 372.3 2848.1 4111.1 617.5 4728.6 86.9% 37.9% A2. EQUIPMENT Transp./lnst. Handpumps 2.5 0.5 3.0 4.2 0.8 5.0 Solar & Electrical Equipment 15.8 1.8 17.6 26.0 3.0 29.0 Sub-total 279.3 35.1 314.3 460.8 57.8 518.6 88.8% 4.2% A3. CONSULTING SERVICES Design & Supervision 76.3 15.2 91.5 126.9 25.3 152.3 Support to Private Sector 113.8 13.3 127.1 190.4 22.3 212.7 NGO Costs 166.8 33.2 200.0 276.5 55.0 331.5 Sub-total 407.4 99.3 506.7 676.0 164.8 840.8 80.4% 6.7% SUB-TOTAL A 3448.5 540.2 3988.6 5726.4 896.2 6622.5 86.5% 53.0% B. SUPPLY OF HANDPUMPS 767.1 0.0 767.1 1277.5 0.0 1277.5 100.0% 10.2% C. SANITATION Cl. CIVIL WORKS School Latrines/Cisterns 326.0 100.8 426.8 540.0 167.0 707.0 Health Center Latrines 86.9 26.9 113.8 144.0 44.5 188.5 Office Rehabilitation 3.5 1.1 4.7 6.0 1.9 7.9 Sub-total 416.5 128.8 545.3 690.0 213.4 903.4 76.4% 7.2% C2. EQUIPMENT Vehicles 29.5 0.0 29.5 50.0 0.0 50.0 Computers & Equipment 7.1 0.0 7.1 12.0 0.0 12.0 Sub-total 39.5 0.0 39.5 67.0 0.0 67.0 100.0% 0.5%  Annex 2-1 Page 2 of 3 Detailed Project Costs (continued) CFAF Million US$ Thousand % % of Component Foreign Local Total Foreign Local Total Foreign Base Costs C3. CONSULTING SERVICES Marketing & Implementation Specialist 1.8 0.6 2.3 3.0 0.9 3.9 Marketing & Training Materials 19.5 6.2 25.6 33.0 10.4 43.4 Sub-total 156.8 39.5 196.3 264.0 66.6 330.6 79.9% 2.6% C4. OPERATING COSTS Staff salaries (DDS & DHA) 0.0 40.8 40.8 0.0 67.8 67.8 Travel Allowances 52.4 16.2 68.6 86.9 26.9 113.9 Office & Transport Costs 26.0 3.0 29.1 43.2 5.0 48.2 Sub-total 91.5 61.6 153.1 151.8 102.3 254.1 59.8% 2.0% SUB-TOTAL C 704.3 229.9 934.2 1172.8 382.2 1555.1 75.4% 12.5% D. CAPACITY BUILDING DI. TRAINING DH & SRH Teams 23.5 4.7 28.3 39.5 7.9 47.4 NGOs 38.1 7.7 45.9 64.6 13.1 77.7 Consulting Engineers & Contractors 13.2 2.7 15.9 22.3 4.5 26.9 Artisans, Masons & Repairers 21.3 4.3 25.6 35.8 7.2 43.0 Evaluation 8.5 1.7 10.2 14.0 2.8 16.8 Sub-total 206.6 41.7 248.4 347.6 70.2 417.8 83.2% 3.3% D2. SUPPORT TO DH & SRHs 277.8 32.3 310.2 462.0 53.8 515.8 89.6% 4.1% D3. STUDIES 36.0 4.2 40.2 60.0 7.0 67.0 89.6% 0.5% D4. MONITORING& AUDITS 106.1 12.3 118.4 176.0 20.4 196.4 89.6% 1.6% D5. OFFICES & EQUIPMENT Equipment 14.5 0.0 14.5 24.6 0.0 24.6 Vehicles 0.0 0.0 0.0 0.0 0.0 0.0 Sub-total 90.8 0.0 90.8 152.6 0.0 152.6 100.0% 1.2% D6. OPERATING COSTS Staff salaries 0.0 12.1 12.1 0.0 20.1 20.1 Travel Allowances 13.7 4.2 17.9 22.7 7.0 29.7 Office Costs 19.5 6.0 25.6 32.4 10.0 42.4 Equipment Maintenance 4.3 0.5 4.8 7.2 0.8 8.0 Vehicle Costs 52.2 6.0 58.2 86.4 10.0 96.4 Sub-total 186.1 122.7 308.7 308.6 203.6 512.2 60.2% 4.1% SUB-TOTAL D 903.4 213.2 1116.7 1506.9 355.0 1861.9 80.9% 14.9%  Annex 2-1 Page 3 of 3 Detailed Project Costs (continued) CFAF Million US$ Thousand % % of Component Foreign Local Total Foreign Local Total Foreign Base Costs E. PPF REFINANCING 690.0 0.0 690.0 1169.5 0.0 1169.5 100.0% 9.4% TOTAL BASELINE COSTS 6513.4 983.3 7496.6 1085.3 1633.4 12486.5 86.9% 100.0% Physical Contingencies 582.3 98.3 680.7 968.4 163.3 1131.7 85.6% 9.1% Price Contingencies 479.9 390.6 870.5 732.7 647.6 1380.3 53.1% 11.1% TOTAL PROJECT COSTS 7575.6 1472.2 9047.8 12554.1 2444.4 14998.5 83.7% 120.1%   Annex 2-2 Page 1 of 2 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Project Financing and Disbursements Filnancing Plan by Category (US$ Thousand) GOVT OF GOVT OF BENIN VILLAGES DENMARK IDA TOTAL Amount % Amount % Amount % Amount % Amount % la. Civil Works Water Supply 0.0 0.0% 247.2 4.3% 1769.6 30.6% 3760.4 65.1% 5777.2 100.0% lb. Civil Works Sanitation 0.0 0.0% 282.5 25.0% 271.2 24.0% 576.4 51.0% 1130.2 100.0% 2a. Equipment Water Supply 0.0 0.0% 240.2 37.6% 119.4 18.7% 278.6 43.7% 638.3 100.0% 2b. Supply of Handpumps 0.0 0.0% 0.0 0.0% 479.3 32.0% 1018.6 68.0% 1497.9 100.0% 2c. Equipment and Vehicles for DH & DHA 26.1 10.0% 0.0 0.0% 70.5 27.0% 164.6 63.0% 261.2 100.0% 3. Consulting Services, UNICEF and NGOs 0.0 0.0% 0.0 0.0% 894.4 32.0% 1900.6 68.0% 2795.0 100.0% 4. Training 0.0 0.0% 0.0 0.0% 233.0 32.0% 495.2 68.0% 728.2 100.0% 5. Operating Costs DH & DHA 420.2 42.0% 0.0 0.0% 145.2 14.5% 435.6 43.5% 1001.0 100.0% 6. PPF Refinancing 0.0 0.0% 0.0 0.0% 0.0 0.0% 1169.5 100.0% 1169.5 100.0% TOTAL 446.4 3.0% 770.0 5.1% 3982.7 26.6% 9799.4 65.3%14998.5 100.0% Disbursements by Category (USS Thousand) 1994 1995 1996 1997 % of S2 Si S2 Si S2 SI Total Total la. Civil Works Water Supply 498.2 761.2 1817.0 786.6 1914.2 0.0 5777.2 38.5% lb. Civil Works Sanitation 53.6 137.1 206.5 338.7 394.2 0.0 1130.2 7.5% 2a. Equipment Water Supply 0.0 0.0 250.0 0.0 388.3 0.0 638.3 4.3% 2b. Supply of Handpumps 459.5 0.0 474.0 0.0 564.4 0.0 1497.9 10.0% 2c. Equipment & Vehicles for DH and DHA 203.0 0.0 0.0 58.2 0.0 0.0 261.2 1.7% 3. Consulting Services, UNICEF and NGOs 486.0 541.9 459.1 725.8 428.7 153.5 2795.0 18.6% 4. Training 361.2 254.9 47.2 39.5 25.4 0.0 728.2 4.9% 5. Operating Costs DH & DHA 154.7 158.8 163.0 172.8 174.8 176.9 1001.0 6.7% 6. PPF Refinancing 1169.5 0.0 0.0 0.0 0.0 0.0 1169.5 7.8% TOTAL 3385.8 1853.8 3416.8 2121.7 3889.9 330.4 14998.5 100.0%  Annex 2-2 Page 2 of 2 Disbursements by Semester and Source of Flnancing (US$ Thousand) 1994 1995 1996 1997 % of Source S2 Si S2 Si S2 S1 Total Total Govermment of Benin 66.9 60.5 62.5 84.0 78.9 93.6 446.4 3.0% Communities 13.4 34.3 251.9 84.7 385.7 0.0 770.0 5.1% Govermnent of Denmark 672.3 556.0 982.6 617.3 1084.5 69.9 3982.7 26.6% IDA 2633.2 1203.1 2119.8 1335.7 2340.7 166.8 9799.4 65.3% TOTAL 3385.8 1853.8 3416.8 2121.7 3889.9 330.4 14998.5 100.0% Disbursements by Semester and by Component (USS Thousand) 1994 1995 1996 1997 % of Conmponent S2 S1 S2 S1 S2 S1 Tota Total A. RURAL WATER SUPPLY Civil Works 498.2 761.2 1817.0 786.6 1914.2 0.0 5777.2 38.5% Equipment 0.0 0.0 250.0 0.0 388.3 0.0 638.2 4.3% Consulting Services 24.7 230.0 164.0 390.4 236.9 0.0 1046.1 7.0% UNICEF Services 161.9 158.6 122.8 163.9 31.0 0.0 638.2 4.3% Sub-total A 684.9 1149.8 2353.8 1340.9 2570.4 0.0 8099.7 54.0% B. SUPPLY OF HANDPUMPS Sub-total B 459.5 0.0 474.0 0.0 564.4 0.0 1497.9 10.0% C. SANITATION Civil Works 63.1 137.1 206.5 338.7 394.2 0.0 1139.5 7.6% Equipment 76.0 0.0 0.0 0.0 0.0 0.0 76.0 0.5% Consulting Services 216.1 131.3 16.2 16.4 0.0 16.9 396.8 2.6% Operating Costs 52.6 54.0 55.4 56.0 56.7 57.3 332.0 2.2% Sub-total C 407.8 322.3 278.1 411.2 450.9 74.2 1944.4 13.0% D. CAPACITY BUILDING Training 248.3 139.5 47.2 39.5 25.4 0.0 499.8 3.3% Support to DH & SRHs 109.0 111.0 113.1 114.7 116.4 59.0 623.2 4.2% Studies 40.5 0.0 0.0 13.1 0.0 27.0 80.6 0.5% Monitoring 46.7 26.4 43.1 27.3 44.3 50.6 238.5 1.6% Offices & Equipment 117.5 0.0 0.0 58.2 0.0 0.0 175.8 1.2% Operating Costs 102.2 104.9 107.6 116.7 118.1 119.5 669.0 4.5% Sub-total D 664.1 381.7 311.0 369.6 304.3 256.1 2286.9 15.2% E. PPF REFINANCING 1169.5 0.0 0.0 0.0 0.0 0.0 1169.5 7.8% TOTAL 3385.8 1853.8 3416.8 2121.7 3889.9 330.4 1498.4 100.0%  Annex 2-3 Page 1 of 3 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Non-Governmental Organizations Background 1. During the years of the one party system in Benin, there were practically no local Non- Governmental Organizations (NGOs) operating in the country, as the Government considered them to be a dangerous element of possible opposition. There were also virtually no community associations, and in villages and urban areas neighborhoods were run by local leaders, who were party members. There were, however, voluntary services linked to bilateral donors, such as the Service des Volontaires N6erlandais (SVN) from Holland, the French Volontaires du Progres, the Service de Developpement Allemand (SDA) from Germany, and the Peace Corps. There were also religious organizations, mainly Catholic, who were active in both urban and rural areas. International NGOS played and continue to play only a limited part in village water supply and sanitation projects in Benin, compared with other countries in the region; their primary focus is construction of modem wells and small earth dams. Germnan, French, Dutch and Catholic Relief Services have put in approximately 650 wells. They undertake projects if requested by the village communities and require a significant contribution in labor and funds (for example, CFAF 150,000 per well in the Atlantic Department. 2. However, in 1991, multi-party presidential and legislative elections were held and a new democratic Government was elected. This democratic revival resulted in the creation of numerous local NGOs, both in urban and rural areas and with the encouragement now being given to private initiatives, the numbers continue to grow. However, there appears to be no law regulating the formation and operation of these organizations although strictly speaking all associations are required to register with the Ministry of the Interior, Security and Territorial Administration, a procedure which has not been followed by many of the new groups. Consequently, it is difficult to obtain an exact estimate of how many local Beninese NGOs currently exist, although 300 are officially registered. A Council of Non-Governmental Organizations (CONGAB) and a National Federation of NGOs (FENONG) were created in 1988 and 1991 respectively, with the objective of coordinating the activities of the various NGOs and facilitating their contacts with the Government. Unfortunately, however, these two bodies are not accepted by all the NGOs, and are therefore not truly representative. Furthermore they lack the necessary funds to be fully effective. A regional grouping, CODONG-Zou, has also been created in the Zou Province. The Government is aware of the need to monitor and coordinate the activities of all NGOs. To this end the Ministry of Plan is setting up a unit which will establish a roster of NGOs and study ways to promote collaboration and partnership. Activities 3. Most local NGOs are constituted by groups of people sharing common interests, with the objective of supporting development activities in their community. Some typical NGO activities include support to natural resources management at the community level, provision of basic health care, training and education, management of small credit and savings schemes, and support to income-generating activities. However, the major obstacle for many of these NGOs is the lack of training and field experience of their members and above all, lack of funds. Some of them are fortunate enough to receive funding from the bilateral organizations mentioned above,  Annex 2-3 Page 2 of 3 multilateral organizations and religious sources, but the lack of adequate training remains a serious problem. It is for this reason that the training of the NGOs selected to participate in this project is one of its primary objectives and the services of an international NGO specialized in training, Helvetas, will be enlisted to this end. Identification of potential partners 4. An extensive survey of the NGOs identified as currently active in the rural areas of the Zou and Atlantic provinces was carried out during the preappraisal and appraisal and field visits were made to meet their staff, observe and evaluate their working methods and achievements in some of the villages they serve, discuss with themn their needs and difficulties, and assess their suitability for inclusion in the project. Some of them were found to be only marginally active, usually because the staff serve on a volunteer basis due to lack of funds, and because of a lack of equipment. However, in the case of active NGOs, even with volunteer staff, the high level of commitment was often most impressive. In one instance, because of lack of transport, the volunteers from an NGO dispensing primary health care in the Zou regularly walk over 10 km. in each direction to reach the villages they serve. In the case of the religious organizations, who have been active in the rural areas for over 10 years, the staff have all already had some training in participatory methods such as GRAAP (Research Group for Support to Rural Self-Promotion - -Groupe de recherche et d'appui pour l'auto-promotion paysanne) and CESAO (West Africa Center of Social and Economiz Studies-Centre d'6tudes economiques et sociales de l'Afrique de l'Ouest). Over the years they have put in place a substantial network of trained village counterparts, which will prove to be of considerable help in carrying out the information and training program in many of the villages. It was found that even when an NGO has sufficient unding to pay its staff, the stipends paid are very low. The project is therefore being designed in such a way that it does not distort the basis of remuneration, but will rather provide training and material assistance for equipment. Prequalification Criteria 5. Following this survey a short-list was drawn up and those NGOs selected were visited again, and a detailed evaluation made of each. The criteria used for their selection for inclusion in the project were the following: a) they should have at least two years experience in the preparation and implementation of commnunity development projects; b) they should have proficiency in budget management, or show potential capability for such management; c) they should have demonstrated technology transfer capacity to rural communities; d) they should enjoy the confidence of the communities they serve. 6. From this short-list three NGOs were selected in the Atlantic Department (Geercop, OCPSP and Foyer de Nazareth), currently covering between them a total of 117 villages. In the Zou Departnent four NGOs were selected (ALDIPE, CBDIBA, AFPF and Survie de la mere et de l'enfant), but it will be necessary to identify another two for the northern part of the Department.  Annex 2-3 Pae 3 of 3 7. In addition, the project may also draw on the experience accumulated by the Peace Corps which supported the USAID-financed/UNICEF-executed water and sanitation project in the Zou Department. The Peace Corps currently has over 20 volunteers working on the eradication of Guinea worm in the Zou and Atlantic departments as well as on community development projects in general, and an agreement was reached with the Peace Corps Director in Cotonou that these volunteers would be made available to the project. They are currently in the process of setting up a network of counterparts in the villages they cover, and this network could be used to spread the word about the new water strategy and the objectives of the project.   Annex 3-1 Page 1 of 9 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Implementation Program This annex details the implementation program provided in the draft Project Document discussed with DH in November 1993. Programme de r6alisation 1. Compte tenu du caractere innovateur de l'approche retenue, I'assistance a la d6centralisation du secteur de l'eau et de l'assainissement en zone rurale comprendra deux etapes distinctes. Dans une premiere etape la strat6gie sera test6e et mise en oeuvre dans deux departements, puis g6n6ralisee apres validation dans une seconde 6tape a l'ensemble du pays. A. PHASAGE 2. C'est le financement de la premiere 6tape qui fait l'objet du pr6sent projet. Ce dernier se d6composera en quatre phases distinctes: Phase 1 3. L' objectif de cette premniere phase est de cr6er l'enviromement favorable a une reelle implication des populations dans un processus de communication pour qu'elles puissent presenter des demandes de points d'eau en toute connaissance de cause. Le contenu de l'information a fournir par le projet et les modalit6s de sa diffusion seront arret6s. II s'agira d'une phase de conception et de preparation. Cette phase durera environ un an et mettra en place les conditions indispensables au demarrage de l'ex6cution des points d'eau et de la composante assainissement: (a) L'assistance technique (AT) et les agents de la DH 6tabliront un 6ch6ancier d6taille des activites a mener pour lancer la phase 2 (execution). Ils choisiront ensemble les approches a adopter pour assurer, des le demarrage du projet, une participation de toutes les personnes concernees. (b) Les agents de la DH et des SRHs et les differents partenaires du secteur eau potable et assainissement seront informes sur la nouvelle approche de la planification des systemes d'AEPA au cours de seminaires et de rEunions diverses. On developpera egalement une strategie d'information continue de tous les intervenants du secteur. (c) On mettra en place les agents necessaires au bon deroulement du projet tant au sein de la DH que dans les SRHs. Des interviews permettront de selectionner les agents les plus motives. Au cas oi l'Administration ne pourrait pas mettre a la disposition du projet toutes les ressources humaines indispensables, du personnel contractuel sera embauch6 pour la duree du projet. (d) On d6finira les taches A r6aliser par les partenaires priv6s. On preparera les termes de r6ferences des ONG et des consultants locaux (bureaux d'6tudes). On identifiera les acteurs du projet: les ONG, le distributeur de pompes, les bureaux d'6tudes locaux, les entreprises, et les acteurs prives-relais de communication.  Annex 3-1 Page 2 of 9 On s6lectionnera parmi eux les partenaires principaux du projet: au cours de reunions on fixera avec eux les criteres de selection de ceux qui auront directement A collaborer avec le projet, ainsi que les cahiers des charges de chacun. (e) On 6tablira des nonnes techniques pour la conception et la realisation des differents ouvrages. Chaque composante des solutions proposees aux communaut6s devra etre identifiee, normalis&e et chiffr6e de maniere a permettre un choix optimum. (f) On elaborera des programmes de formation en fonction des besoins identifi6s. Au cours de la phase 1, ce sont essentiellement la DH, les SRHs et les ONG, les acteurs prives-relais de conmnunication qui beneficieront d'une formation. 4. L'UNICEF envisage un nouveau programme d'intervention dans le Zou dans le cadre de I'eradication du ver de Guin6e. La composante hydraulique villageoise comprend la r6alisation de 200 nouveaux forages. La composante assainissement comprend essentiellement la construction de latrines adaptees pour les menages, les ecoles et les centres de sante ainsi que l'education sanitaire. Les ressources financieres et humaines de l'UNICEF sont limitees. L'UNICEF d6sirerait cependant collaborer avec DANIDA et l'IDA pour appuyer le programme d'hydraulique villageoise du gouvernement en poursuivant ses activit6s dans le d6partement du Zou. Le schema propos6 A l'UNICEF par l'IDA et DANIDA pour (i) permettre d'atteindre rapidement l'objectif de desengagement de l'Etat des activit6s de construction et (ii) apporter a l'UNICEF les moyens de r6aliser de nouveaux points d'eau est le suivant: (a) Des fonds seraient mis A la disposition de la DH pour financer environ 200 forages positifs A realiser A l'entreprise en deux ans; (b) I'UNICEF agirait en tant que maitre d'oeuvre, assurant la gestion des march6s et le contr6le des travaux; (c) elle serait r6muneree en consequence; (d) les march6s seraient pass6s par petits lots de 30 A 40 forages; (e) les activit6s de r6gie seraient abandonn6es des que le financement serait disponible (les sondeuses etant soit vendues, soit transf6rees hors du Benin); (f) le personnel sp6cialis6 de l'UNICEF serait utilise egalement par le projet pour former et assister les entreprises locales dans la gestion technique et financiere de leur contrat d'ex6cution de travaux. 5. En appliquant la nouvelle strategie pour le secteur de l'eau potable et de l'assainissement en milieu rural (Declaration de Lokossa) l'UNICEF participera aux activit6s de conception et de pr6paration de la phase 1 pour le Zou. 6. Pour r6aliser la composante assainissement, on utilisera 6galement le plus possible les comp6tences des ONG et du secteur priv6 pour stimuler la demande et am6liorer les services et leur qualite. Les 61ements cles seront les suivants: - -_ - - - -  A 3-1 Page 3 of 9 (a) s6lection/identification des ouvrages d'assainissement qui pourraimet ere construits dans les deux d6partements en fonction de Iur costs et de leur ad6quation; pr6paration des materiels didactiques; identification des artisans et PME et fonnation de ceux-ci a la construction, a la selection et I la promotion des ouvrages (y compris la mise a jour des mat6riels didactiques); (b) d6vedoppement d'outils appropri6s pour le "marketing" et la promotion des services d'assainissement. (c) 61aboration/adaptation des materiels didactiques pour I'6ducation sanitairo do la population, dans les ecoles et centres de sant6; formation des enseignanus et des ONG/priv6s qui interviendront au niveau de la population (le groupe des ONGlprives en cours d'identification par le DH et le GREA sera ausi responsable de l'education sanitaire); (d) d6veloppement d'outils/indicateurs pour le suivi interne et le suivi externe des activit6s; (e) formation/visites aux autres projets. Phase 2 7. Cette phase correspondra & l'ex6cutlon des ouvrage de la premiere 6tape de l'appui i la d6centralisation du secteur. Elle comprendra l'identification des projets des conwumautEs et leur r6alisation dans le cadre d'un programme d'op6rations. Cette phase durera environ deux ans et demi. 8. D'apres l'approche retenue pour cette premiere etape, on peut pr6voir que cette phae d'exEcution suivra le sch6ma suivant: (a) Prise de contact avec les communautes: (i) Campagne d'information; (ii) Recolte des demandes. (b) Assistance aux communaut6s pour la classification de Iurs baoins prioritahos: (i) Identification des besoins en gen6ral; (ii) Hierarchisation de ces besoins; (iii) Formulation d'une demande de point d'eau si cela correspond i l'un des besoins & satisfaire en priorite; (iv) Pr6sentation de la demande au SRH de la r6gion. (c) Etude de la demande effective et choix des populations des zones conceSnns en matiere d'alimentation en eau potable: (i) REception par lea SRHs des demandes des mm enaub; (ii) Analyse par lea SRHs des demandes regues en fonction des donn6es a disposition;  Annex 3-1 Page 4 of 9 (iii) Evaluation, par les ONG charg6es de l'animation, des indicateurs de motivation r6elle; (iv) Proposition par les SRHs et les ONG, A chaque village, d'un choix de solutions effectivement L6alisables; (v) Choix avec la communaut6 concernee, de la solution la plus adapt6e i ses possibilites: ceci constitue le projet individuel de la communaut6. (d) Realisation des travaux: (i) Comme pr6alable: Participation financi6re effective; (ii) Programmation par la DH et les SRHs des travaux de projets communautaires pour la r6alisation de points d'eau par groupes d'operations coh6rentes et accessibles au secteur prive beninois; (iii) Lancement des Appels d'Offres (AO) et attribution des march6s; (iv) Travaux, installation des moyens d'exhaure et mise en service des postes d'eau autonomes et des mini-adductions (conventionnels ou solaires); (v) Actions de consolidation pour aboutir, A court terme, a une reelle prise en charge des installations par les usagers. 9. Par rapport aux projets ant6rieurs, une plus grande partie des travaux devra 6tre confi6e au niveau des villages afin de deplacer un maximum d'activites le plus pres possible des utilisateurs et favoriser ainsi un veritable attrait economique pour les ouvrages A p6renniser. Les travaux suivants devraient 6tre attribu6s en petits lots au niveau local: (a) Les captages de sources; (b) les citernes; (c) les superstructures de forages; (d) les plates-formes de puits; (e) la distribution, l'installation et la maintenance des pompes A motricit6 humaine; (f) la partie maconnerie et la maintenance des postes d'eau autonomes (PEA) et des r6seaux simplifi6s (RS); (g) les ouvrages d'assainissement. 10. Des regroupements d'ouvriers par corps de m6tiers, ou meme des PME, devront etre favorises dans chacun des deux d6partements. L'6mergence d'un r6el potentiel local de professionnels du secteur est l'objectif A moyen terme de tout projet de d6veloppement et celle-ci devra se r6aliser autour des artisans r6parateurs, des distributeurs de pieces d6tach6es, des vendeurs de cixnent et des entrepreneurs actifs et install6s dans la r6gion. Des institutions, comme le CEPEPE, pourraient apporter une aide A la mise en place, A la formation et A l'appui en phase de d6marrage de ces groupements ou PME. Le projet pr6voit un soutien A la gestion de ces petites entreprises locales impliqu6es dans le processus de concr6tisation des infrastructures. Une aide sera 6galement apport6e pour la mise a niveau des ouvriers des diff6rents corps de m6tier  Annex 3-1 Page 5 of 9 pour qu'ils puissent realiser dans de bonnes conditions les ouvrages envisages. Le recyclage des artisans r6parateurs sera assure par les attributaires des marches de pompes. Phase 3 11. II s'agira d'une phase d'evaluation et de validation. Elle permettra la revue exhaustive et l'audit operationnel de la phase d'ex6cution. Des enquetes seront menees aupres des usagers afin d'evaluer les v6ritables r6percussions de la phase d'execution sur l'amelioration de la desserte en eau potable et de I'assainissement au niveau des communautes villageoises. Ces enquetes devront deboucher sur des recommandations pour les futurs projets et la diffusion de cette information aupres des intervenants du secteur. Phase 4 12. Cette phase, basee sur les enseignements des phases 2 et 3, correspondra a la pr6paration de la deuxidne tranche de l'appui a la decentralisation du secteur. Un projet sera prepare pour reproduire l'experience de la preni-re etape a l'echelle nationale et qui verra l'execution de points d'eau modernes et de mesures d'assainissement simultanement dans l'ensemble des departements. B. CHRONOGRAMME PRtVISIONNEL 13. II est prevu que cette premiere etape pour la realisation du projet de d6centralisation du secteur se d6roulera sur quatre ans (aout 1993 a juillet 1997). Phase 1: (Aofit 1993 t juillet 1994: 12 mois) 14. Le chronogranune previsionnel de la phase 1 est present6 ci-apres. Entre la distribution du Draft du Document de Projet aux interesses (mi-aoat 1993) et la mission d'evaluation de la Banque Mondiale (novembre 1993): (a) on a realise une etude environnementale; (b) on a etabli le diagnostic de l'etat r6el des ouvrages d'assainissement dans les ecoles et centres de sante en milieu rural; (c) et on a mis en place l'assistance technique (AT). 15. La mission d'evaluation a inclus un seminaire pour expliquer les objectifs de la mise en oeuvre de la strategie du secteur et presenter les grands principes d'application contenus dans le Document de Projet. Ce s6minaire a regroupe les cadres de la DH et des SRHs ainsi que des representants des agences exterieures de soutien, des organismes nationaux ou r6gionaux, des ONG, des fournisseurs de materiaux, des bureaux d'etudes locaux et des entreprises de la place. 16. L'equipe du projet est mise en place apres la mission d'6valuation tant au niveau central qu'au niveau des SRHs. On rassemblera les donn6es existantes pour mettre en place un systeme de gestion de l'information au siege des SRHs concern6es de maniere a d6centraliser les connaissances acquises aupres de leurs utilisateurs directs. On profitera 6galement du demarrage  Annex 3-1 Page 6 of 9 de cette activite pour initier le processus de mobilisation des communautes afin de les associer des le d6but A la pr6paration de la phase d'execution de leurs propres projets communautaires. 17. Une ONG internationale (Helvetas) realisera une etude de volonte a payer des b6n6ficiaires potentiels des deux departements concernes (5 semaines): cette etude conceme aussi bien la composante eau potable que l'assainissement. 18. Le manque de cadre institutionnel pour definir, non seulement est responsabilit6s de tout un chacun, mais aussi la propriete finale des equipements install6s, a affecte la performance des precedents projets. En passant du concept de "population cible" A celui de "demande des populations" il faut pouvoir offrir aux partenaires du projet un veritable processus d'appropriation des investissements. Le cadre institutionnel devra etre defini avant la mise en pratique des programmes de formation (avant avril 1994). 19. Dans I'attente de la signature de l'accord definitif du financement de ce projet (prevue pour juillet 1994), les ONG partenaires seront identifiees et les entreprises et bureaux d'etudes locaux seront prequalifies. Des contrats types et des appels d'offres standards seront prepares pour pouvoir (i) commencer les actions d'animation dans les meilleurs delais et (ii) lancer les consultations necessaires des la programmation des travaux prevue dans la phase 2 (fevrier 1995). 20. Le pilier central de la mise en oeuvre de la strategie sera le developpement des ressources humaines. II s'agit de jeter les bases d'une approche decentralisee de ce secteur et d'assurer son d6veloppement A long terme. Au moins six mois (fevrier a juillet 1994), sur les douze que comptent la phase 1, seront necessaires pour mettre en route le processus. Le projet devra tout d'abord concevoir un programme de formation et elaborer le materiel didactique necessaire. Le developpement des ressources humaines concernera (i) le personnel des ONG (des avril 1994), (ii) les distributeurs de pompes apres leur identification et leur organisation (mai 1994), et les groupements d'ouvriers par corps de metiers (mai A juillet 1994). Par corps de metier, on entend: (a) les artisans reparateurs (pompes, reseaux, groupes electrogenes, ..); (b) les puisatiers; (c) les magons (superstructures pompes, plates-formes puits, citemes, ...); (d) les poseurs de tuyaux (mini-adductions); (e) et les electriciens (energie thermique ou solaire). 21. II convient de souligner qu'il ne s'agit que d'une mise en route du processus de d6veloppement des ressources humaines et que ce volet du projet se poursuivra, lors de la phase d'ex6cution, par des stages pratiques au sein des entreprises prequalifiees entrecoupes de sessions de formations theoriques. 22. En fm de phase 1, il faudra avoir concu un message clair et concis pour informer les populations des regions concernees sur les possibilites qu'offrent le projet de mise en oeuvre de la nouvelle strategie. Les populations contribueront directement A la conception de ce message. L'etude de volonte A payer constituera un maillon indispensable A cette demarche inter-active.  Annex 3-1 Page 7 of 9 23. C'est egalement pendant cette phase de conception et de preparation que l'on pr6cisera la maniere dont les beneficiaires pourront ameliorer leur cadre de vie par des mesures d'assainissement. 24. Parallelement a cette phase de conception et de preparation, on lancera la composante pompes a motricite humaine (fourniture, distribution et maintenance). Phase 2: (Aofit 1994 d janvier 1997: 30 mois) On prevoit la signature de la convention de financement vers mi-juillet 1994. 25. Au niveau des communautes, la phase d'execution commencera par une campagne d'information de 5 mois. DMs octobre 1994, on espere recolter les premieres demandes des villages. Celles-ci seront pr6sent6es aux SRHs qui devront organiser les activites des ONG pour repondre rapidement aux sollicitations. 26. Le travail des ONG coninencera, au niveau de chaque communaute, par la classification de leurs besoins prioritaires (mi-octobre 1994). Une fois que le besoin en eau et en assainissement aura 6t6 identifie comme le besoin prioritaire pour la communaute, l'ONG qui aura ete contractuellement choisie pour assister cette communaute devra etudier la demande sous divers aspects (motivation, capacites organisationnelles, ressources financieres, ...). 27. En attendant de trouver un meilleur indicateur d'adh6sion des communaut6s aux principes et aux objectifs du projet, la participation financiere effective permettra de retenir, pour la programmation des travaux, celles qui auront rempli leurs engagements. Les capacites financieres du monde rural semblent etre maximales entre decembre et fevrier de chaque annee. La participation des communautes au financement de leur propre projet devrait donc etre r6colt6e lors de cette periode. C'est donc en fevrier et en mars de l'annee correspondante que l'on pourra programmer les travaux. 28. Les travaux seront repartis sur deux camnpagnes: de juillet a decembre 1995 et de juin 1996 a janvier 1997. A partir du traitement des demandes directement formulees par les communaut6s rurales, on selectionnera en fevrier 1995 et 1996 au total 200 sites par departement qui feront l'objet d'une etude de faisabilite sociale, economique et technique . On pr6voit qu'environ 160 sites (80%) s6lectionnes par departement pourront techniquement beneficier d'au moins un type de point d'eau modeme. 29. L'animation sur le terrain se poursuivra, au niveau de chaque communaut6, par des actions d'appuis a l'organisation au fur et a mesure de la realisation des travaux. II faudra prevoir egalement des actions de consolidation pour renforcer les interventions de l'animation des la mise en service des ouvrages (juillet 1995) et poursuivre le processus de d6veloppement des ressources humaines. Cette operation, qui devra se developper au deli de la phase 2 (janvier 1997) reste delicate, mais essentielle pour installer les structures villageoises de gestion dans leurs nouvelles fonctions et les aider a resoudre les inevitables problemes en phase de demarrage et faciliter leur perennisation en rapprochant les prestataires de services et de travaux des utilisateurs. 30. On prevoit que les premiers appels d'offres pour la realisation des programnmes d'operations seront lances fm fevrier 1995. Entre le lancement de l'AO et l'attribution des marches on prevoit 60 a 90 jours. Les entreprises choisies auront alors 30 jours pour  Annex 3-1 Page 8 of 9 commencer leurs travaux respectifs (mobilisation). 31. Les actions des bureaux d'etudes locaux commenceront avec l'implantation des ouvrages (forages, puits, captages de sources). Pour la premiere campagne de travaux, on prevoit d'implanter une vingtaine de sites par mois de mi-juin A octobre 1995. Les travaux correspondants seront contr6les de juin A d6cembre 1995. Dans le cas od les difficult6s techniques depassent les competences de l'ONG, des consultants locaux pourront intervenir pour fournir une assistance dans l'etude de faisabilite du projet de la communaute (surtout dans les cas de demandes de reseaux). 32. Les travaux relatifs A deux lots de 30 a 40 forages positifs chacun demarreront en juin 1995. La premiere camnpagne de travaux verrait ainsi la realisation de 70 forages au rythme de 7 forages par mois et par foreuse. La deuxieme campagne pourrait s'etendre de mai a novembre 1996 et voir la realisation de 90 forages positifs au meme rythme (2 lots de 45) ou etre plus courte avec la repartition du travail en trois lots de 30 forages. La rehabilitation des forages sera conduite en parallele. 33. Les travaux de foncage des puits modernes demarreront A fin juin 1995. Le rythme prevu par equipe de puisatiers est de 1 puits fonce mecaniquement par mois dans le Zou et de 1 puits par trois mois dans l'Atlantique. Pour r6aliser les 20 puits modernes pr6vus se repartissant A parts egales dans les deux regions, il faudra compter sur deux campagnes de six mois chacune. Notons que ce choix permettra de poursuivre la formation th6orique (entre les campagnes) et pratique (pendant les campagnes) des puisatiers. Ces derniers devront avoir acquis assez d'experience au cours de ce projet pour intervenir en tant que formateurs de puisatiers dans les futurs projets et notamment pour la deuxieme tranche de mise en oeuvre nationale de la nouvelle strategie. 34. La realisation des travaux d'amelioration de puits traditionnels, de captages de sources, de r6alisation de citernes, de superstructures de pompes, de plates-formes de puits et de mini- adductions debutera en juillet 1995 et se repartira egalement en deux campagnes. Au fur et A mesure de l'avancement des travaux, les pompes A motricite humaine seront installees et les systemes de distribution seront mis en service. Ces operations concluront la phase 2 en janvier 1997. 35. La realisation des mini-adductions et la mise en service d'installations de pompages thermiques ou solaires necessitent un certain nombres de prealables. II faut en effet identifier les sites qui pourront etre techniquement equipes, concevoir des r6seaux simplifies adaptes au contexte du village, lancer des appels d'offres et realiser les travaux de genie civil avant d'installer un groupe electrogene ou de fixer des panneaux solaires. Nous avons prevu pour cette premiere etape une dizaine d'installations (3 postes d'eau autonomes et 2 reseaux simplifies par region), necessitant un total de douze mois de travaux repartis entre 1995 et 1996. Les premieres mises en service pourraient intervenir vers fin 1995. 36. On devra adapter le rythme d'execution de la phase 2 aux realites villageoises identifi6es lors de la phase 1. Ainsi, pour chaque departement, on ne passera des contrats avec les structures chargees de l'animation/sensibilisation que lorsque l'on aura selectionne un nombre suffisant de demandes de villages ayant repondu aux conditions de base du projet. Les villages devront avoir rempli leurs obligations morales et financieres avant d'etre retenus pour la programmation des travaux. Dans le cas oi le nombre de villages ayant repondu A nos criteres est largement inferieur a 100 A fm janvier 1995, le volume des programmes d'op6rations sera revu a la baisse et les travaux de r6alisation des projets communautaires seront attribues en plus petits marches. Par  Annex 3-1 Page 9 of 9 cette m6thodologie, on confirmera que l'accent doit etre mis sur 1'6tude de la demande et le respect des choix des communaut6s concern6es et non sur l'aspect technique de la realisation et la planification centralis6e. Phases 3 et 4: (Fevrier i juillet 1997: 6 mois) 37. L'evaluation de cette premiere 6tape, la validation de la mise en oeuvre de la nouvelle strat6gie et la pr6paration d'un projet pour 1'ensemble du territoire b6ninois seront conduites de f6vrier a juillet 1997.   Annex 3-2 Page I of 2 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT IMPLEMENTATION SCHEDULE - PHASE I 1993 1994 ID Name A SO N D J M A MI JIJ A S|O I DESION AND PREPARATION __._ _ 2 Projed Docmet 3 Envirlomnal Asseene 4 Set up Tedinical Aaistmnce 5 DH Saminar a 6 Apaml Misicn 7 willin to pay Studs I Set up Project Team 9 Collection Exiding Data - 10 Tedcnical Standlard 11 Maitana S 12 Iiot al/Le Framework 13 A nzFinawid Procedures 14 PeuaiScation local conactr 15 Sgtand Bidding Doumnt 16 I 17 HUMAN RESOURCES DEVELOPMENT 111 Design of Trining Proam 19 Trining Mateial 20 Traning DH/SRH_ 21 Trn NOOs 22 Traing Pump Distrilbutors 23 Trining Contactr Staff 24 Trining atWisam ell diggen 25 Infwmstion Campaig 26 27 PUMP SALES NETWORK M 28 Idetificat Pump Sellrs I 29 Orgization Sales Network. 30 31 SANITATION / HYGIENE EDUCATION 32 Set up Projed Teams 33 Infomation Campaign 34 Training Materias 35 Maketing Tools 36 Training Mason 37 Trining NOOs 31 Propam Schools I Health Centers Critical Milestone * Project: Eau Assainissemcnt Bin Noncritical Summary Date: 3/2/94 Progress Rolled Up  Annex 3-2 Page 2 of 2 REPUBUC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT IMPLEMENTATION SCHEDULE - PHASE n 19L 196 197 ID Nam JASONDJFMA MJ|JlAFSTOND J|F|M|AMJJASONIDJFA33 1 COMMJNllY LEVEL _ _ 2 Ionatio Capaig 3 Recriving Applications 4 Idutfication of Pri_ritie 5 Demln St*d - 6 Financial Pailicipaion _ 9 ProWamming Wotk s 12 Conlidation Acdivitie 15 Evaluation & P eptio Fdobp_ 16 17 SUPERVISION I 19 RFP 1"5 19 RFP 1996 20 CoatactSignmg 195 21 Coadact Siging 196* 22 Wells & Borehoks Siting 25 Supiaio Drlling - 28 Supavison Cistasi & Springs- 3 1 -uaito Wel 34 T SuperiltcnPiped Syt 37 38 DRILING CONTRACTS e 39 L inh Bgiddng I"S 40 Launch Biding 1996 5641 CL ud signing 195 42 coac Siging 1996 43 Mobiliao 46 Well oR_h_ .tion 49 Now Bterbole_ 52 53 WELLS 54 Launch Bidding 1995 55 LAunch Bidding 1996 56 Conac Signing 1995 57 Coact Signing 1996 50 Mobiliztion _ _ 61 Wup CIntaltion 64 65 OTHER WORICS.. 66 LAunch Bidding 1995 67 LmniBddinig 1996 68 ConwSiping 1"5 69 Ctct Siping 1996 70 Mobliz _ 7 int Cdchmws Cit 76 Sup_vwW Wells ABh 8 79 Piped Sy- n2 pump how ion j 5 jCOMMISSIONINO__  Annex 3-3 Page 1 of 2 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Project Implementation Manual: Table of Contents CHAPITRE I: DESCRIPTION DU PROJET 1-1. Lettre de politique sectorielle 1-2. Objectifs 1-3. Alimentation en eau potable 1-4. Assainissement et education sanitaire 1-5. Cofits estimatifs 1-6. Plan de financement 1-7. Principales conditions CHAPITRE II: CONDITIONS DE REALISATION 2-1. Programme previsionnel 2-2. Chronogramme previsionnel 2-3. Organisation institutionnelle 2-4. Formation 2-5. Mobilisation des communautes 2-6. Recouvrement des cofits 2-7. Execution des travaux 2-8. Gestion et entretien des points d'eau CHAPITRE III: ACQUISITION DES BIENS ET DES SERVICES 3-1. Pompes a motricite humaine 3-2. Systemes thermiques et solaires 3-3. Puits, captages de sources et citernes 3-4. Forages et essais de pompage 3-5. Superstructures et pose de pompes 3-6. Latrines 3-7. Developpement communautaire (ONGs) 3-8. Bureaux d'6tudes 3-9. Structures d'appui CHAPITRE IV: DECAISSEMENTS 4-1. Categories de decaissement et reallocations 4-2. Compte special 4-3. Comptes de projet 4-4. Circuits des paiements 4-5. Retrait des fonds du credit IDA et du don DANIDA 4-6. Fonds de contrepartie CHAPITRE V: COMPTABILITE ET AUDITS 5-1. Procedures comptables 5-2. Procedures budgetaires 5-3. Suivi des marches 5-4. Termes de reference des auditeurs  Ane 3-3 Page 2 of 2 CHAPITRE VI: SUIVI ET EVALUATION 6-1. Planning de supervision IDA/GREA 6-2. Audits techniques 6-3. Supervision interne 64. Revue A mi-parcours ANNEXES 1. Cycle du projet au niveau des communaut6s 2. Choix techniques offerts aux comniunaut6s 3. Programmes de formation 4. Modalit6s de participation du secteur priv6 5. D6tail des coats estimatifs 6. TdR assistance technique 7. TdR ONG internationale 8. TdR ONG locales 9. TdR Bureaux d'6tudes 10. Documents d'appel d'offres pompes 11. Documents d'appel d'offres forages 12. Documents d'appel d'offres petits travaux 13. Documents d'appel d'offres 6quipements 14. Documents lAPSO 15. Modele contrat bureaux d'etudes 16. Modele contrat ONG 17. Lettre de d6caissement  Annex 34 Page 1 of 6 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Sanitation Component A. DESCRIPTION Background 1. The IDWSSD targets set by Benin for improving of sanitation services were not met. Little progress was made in improving the quality and quantity of services for the urban as well as the rural poor. As follow-up to the National RWS Strategy, the Ministry of Health embarked upon the preparation of a national sanitation policy and strategy paper with the help of the UNDP/WB Water and Sanitation Program (RWSG-WA). The key principles on which this strategy is based include: decentralization of the decision making process; clear definition of institutional roles; participation of the community in funding investment costs as well as responsibility for O&M costs; promotion of lower cost applicable technologies; privatization of construction, service delivery, marketing, promotion and sensitization activities and; mobilization of communities to increase their demand for improved services. These principles are the same as those developed by the National Strategy for Improvement of RWS Services. 2. The key ministry involved in on-site sanitation development and hygiene education in Benin is the Ministry of Health. The Ministry's Directorate of Hygiene and Sanitation (Direction de l'Hygiene et de l'Assainissement) which works in this area is staffed by sanitary engineers, higher level technicians and hygiene agents (public health inspectors). Its professionals are based either in Cotonou or in the Ministry's Regional Directorates of Health. The ministry is currently involved in planning, regulatory, policy making and implementation activities and depends on project funds for the majority of the implementation activities. Another Ministry with an interest in the sanitation sub-sector is the recently (July 1991) created Ministry of Environment, Housing and Urban Planning. Its key department for sanitation activities is the Urban Planning and Sanitation Directorate which is currently involved in drainage, urban planning and general sanitation activities. 3. The Ministry of Health has been actively involved in the development of two codes which form the basis for current practice in the sector (although regulations required to enforce the codes do not yet exist). These are the Public Hygiene and Water Codes both issued in 1987. The Public Hygiene Code covers public places, housing and eating establishments, markets, water use, general environmental sanitation, pest control etc. 4. Several donors (UNICEF, USAID, UNDP, GTZ, KfW, WHO) have been involved in the sanitation sub-sector in recent years. A UNICEF/USAID project was implemented in Zou as part of the program for the eradication of Guinea Worm. Valuable experience was developed in construction of facilities for households, schools and health centers, training, and hygiene education. 5. The RWS Project will initially be executed in the provinces of Zou and Atlantique and will begin small, focussing on training, promotion, and sensitization activities, and introducing greater participation of the private sector in drilling, construction and operation of a maintenance system in a number of sub-prefectures in the two provinces. The sanitation component  Annex 3-4 Page 2 of 6 (Promotion of On-Site Facilities) of this Project will focus on increasing demand of the rural population for improved services. This component will be implemented by the Ministry of Health. Objectives 6. The overall objectives of this component are to contribute to improvements in the health of rural populations and to the quality of the rural environment through better management and delivery of sanitation services. Specific objectives are: (a) to increase the demand for improved sanitation services through extensive marketing and promotion campaigns; (b) to have trained masons (and small enterprises) who can construct and promote on-site sanitation systems for households, communities, schools and health centers; (c) to improve the environmental sanitation conditions and hygiene practices in schools and health centers and; (d) to improve the environmental sanitation and hygiene practices of rural households and communities through integration of appropriate messages and activities in the community mobilization process for the water supply program. Promotion of On-Site Facilities 7. The component comprises four interlinked sub-components addressing the specific objectives listed above. Key elements are hygiene education/promotion, training and marketing. (a) The first sub-component is the development and dissemination of marketing and Dromotion tools. This will involve assistance of a marketing specialist in the identification of appropriate multi-media and preparation of appropriate tools for "selling" sanitation. Materials already existing for promotion of improved sanitation services will also be assessed and incorporated into the marketing and promotion process. (b) The second is the development of appropriate training materials for private masons and training them to construct and market a range of latrines. (c) There will also be systematic construction of latrines in schools and health centers which do not already have functioning ones. Integrated in this construction program will be the provision of water points (roof catchunent), and development, dissemination and use of training materials on hygiene education and on the proper management of these latrines. (d) The final sub-component will involve integration of messages (about improved management of sanitation facilities, hygiene and maintaining a clean physical community environment) into the mobilization and training activities for delivery of improved water supply facilities to the target communities.  Annex 34 Page 3 of 6 B. IMPLEMENTATION STRATEGY 8. Implementation of the sanitation component of the RWS program will be based on a drive to increase demand for improved sanitation services/facilities, maximizing the participation of communities, individual households and the private sector and transforming the public sector into a promoter/planner rather than a provider of services. The schools and health center sub- component will build on the UNICEF program of latrine construction/hygiene education/water point construction, which was implemented in Zou. It will complete coverage in all primary schools in the two regions which are not currently served. Institutional Arrangements 9. The executing agency for the component will be the Ministry of Water (Water Directorate) which is the executing agency for the RWS Program as a whole. The implementation of the component will be integrated into that of the RWS Program. The lead responsibility for delivery of the component will however belong to the Directorate of Hygiene and Sanitation (DHA) which will coordinate/program all the sanitation related activities in close collaboration with the executing agency. The directorate will have a budget for implementation of the component and a clearly defined work program (which will be integrated into the one for the whole RWS Program). The Water Directorate will disburse the funds needed by the DHA for implementation of the various sanitation activities and the Directorate of Hygiene and Sanitation will assure their proper use. 10. The proposed institutional arrangements for implementation of the sanitation component are based on the recommendations being developed in the National Sanitation Policy and Strategy Paper which is currently under preparation. The strategy calls for, among other things, support to the decentralization process and clear definition of the roles of all actors (Annex I includes job descriptions for the directorate staff to be involved in implementation of the component). The proposed organization/arrangements for the component are as follows: (a) Community Level - NGOs and private extension workers and private artisans will be responsible for promotion, marketing, hygiene education, and construction of facilities for households and communities on a demand driven basis. (b) Regional Level - there will be a team of three regional staff based in the regional medical department (DDS). They will form (or be part of) a unit comprising the following skill mix: unit head/planner, promoter/trainer for on-site facilities, and promoter/trainer for hygiene education and promotion activities). This team will work closely with the SRH (Regional Water Directorate Unit) teams. It will plan and monitor activities, market and promote services, and participate in the preparation of training of materials and in the training of private artisan/extension agents/NGOs/teachers who will be responsible for construction, training and promotion activities with the communities. The teams at the regional will require training and skill enhancement in various areas. This need will be addressed as part of the RWS Program's training strategy. (c) National Level - there will be a coordinator at national level who will work with the Water Directorate in developing, supervising, and monitoring Program activities. The coordinator will also supervise the regionally based staff. The  Annex 3-4 Page 4 of 6 coordinator's skill enhancement needs will also be met through the RWS Program's training strategy. (d) Consultants, international NGO, training establishments, technical experts, marketing and promotion specialists, training specialists etc. will provide necessary periodic assistance to the teams in implementation/management of the work program. Donor Collaboration 11. UNICEF is currently preparing a program of support to Benin to be conducted in Zou province. The major elements of the sanitation component of the proposed UNICEF program are to construct appropriate latrines in households, schools, health centers and to train artisans. Their strategy is to integrate sanitation into water supply and hygiene education activities. Since UNICEF has limited funds to fully implement their sanitation component, it is proposed to integrate it into the RWS Program's sanitation component. UNICEF technical skills, and training materials would be needed for the component. Human Resources Development 12. A range of capacity building activities on which the success of the Program are based will be implemented. These are summarized below: Training Related Activites (these will be incorporated into the RWS Program training strategy) (a) Develop/adapt a range of training, information, educational, and promotional materials (on hygiene education, on-site sanitation facility construction and promotion, environmental hygiene etc.) for use with and by trainers, masons, teachers, extension agents and community members. The use of the materials should incorporate participatory methodologies. (b) Identify and train experienced masons and small enterprises who would be licensed to construct and promote on-site sanitation facilities (they would also be assisted in developing their marketing and business management skills and in developing a better understanding of the Water and Hygiene Codes). These masons would also be trained in the construction of rainwater roof catchments. (c) Identify and train extension agents (from groups of NGOs or other private individuals) to conduct promotion, hygiene education and sensitization activities using participatory methods. Marketing Related Activities (d) Develop a set of tools for mass media and local marketing of on-site sanitation facilities.  Annex 34 Page 5 of 6 Construction Related Activities (e) Identify a range of on-site excreta disposal systems which can be easily constructed in rural areas at affordable costs, are well suited to the existing conditions within the community and which use local materials where appropriate. (f) Make available to the population (households, communities, schools, health centers), private sector personnel with the appropriate skills for construction of a range of sanitation facilities which are within their ability and willingness to pay. (g) Initiate a program for construction of facilities (latrines and water points) in schools and health care centers in association with a hygiene education and environmental sanitation program. 13. The sanitation promotion program will implemented during a four year period with the major training and mnarketing drive occurring during years one and two. C. SERVICE DELIVERY Household On-Site Latrines 14. Construction of household facilities will be done on a demand driven basis with households directly paying the full costs for services provided. An initial socio-economic and baseline study and a WTP module will provide useful information for planming purposes especially in determining the need for a subsidy. It is however planned to reduce the costs of the on-site facilities (using alternative designs and building materials) such that there will be no need for subsidy. Follow up WTP surveys, will help to assess the effectiveness of the marketing and financing strategies adopted. Trained artisans currently construct facilities for households; efforts will be made to make services more efficient and effective. Marketing and promotion activities will support the whole process. Facilities for Schools and Health Centers 15. An analysis will be made of the existing conditions of school/health center latrines and water points. An evaluation will be made of the current hygiene education program in schools. A construction program (for the roof catchments and latrines), materials development/adaptation program will then be developed based on these studies. The participating communities will be expected to provide about 30% of the cost of construction of the facilities which is what they are currently doing. This may be modified subsequent to the demand studies. Monitoring and Evaluation 16. The monitoring and evaluation indicators will be developed by the national and regional teams (with external assistance) once they are in place. Three interlinked strategies for monitoring and evaluation will be employed:  Annex 3-4 Page 6 of 6 (a) assessment of the increase in demand (eg.using WTP as a monitoring tool, using numbers of new facilities constructed); (b) assessment of the effectiveness of the marketing/promotion campaign to be done monitoring several key indicators and; (c) assessment of the implementation strategy as a whole, also using selected indicators for monitoring (eg. number of trained artisans, improvement in general environment). Each of these will employ measurement of a mix of quantitative and qualitative indicators.  Annex 3-5 Page 1 of 2 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Protocole d'Accord pour I'Execution du Projet d'Assistance au developpement du secteur de l'alimentation en eau et de I'assainissement en nilieu rural ()partements du Zou et de I'Atlantique) Preambule 1. II a et conclu entre le Ministere de l'Energie, des Mines et de l'Hydraulique represente par la direction de I'Hydraulique (DH) et le Ministere de la Sante (MS) repr6sente par la Direction de l'Hygiene et de l'Assainissement (DHA) un accord pour l'execution du Projet d'Assistance a la Mise en Oeuvre de la Nouvelle Strat6gie pour le Secteur de l'Hydraulique Villageoise. 2. Ledit projet comporte deux composantes: (a) Composante principale: Alimentation en Eau Potable; (b) Composante d'accompagnement: Assainissement (promotion des installations sanitaires). 3. Le MEMH a travers la DH est le responsable du projet et le represente devant les Autorit6s, les bailleurs de fonds, et les partenaires au developpement. 4. La DHA sera responsable de la conception et de l'execution technique de la composante assainissement. Financement du projet 5. La gestion des fonds du projet est entierement sous la responsabilite de la DH. 6. Un budget cons6quent sera etabli pour toutes les activites du projet. 7. L'ex6cution financiere des activites relatives a la composante assainissement sera assur6e par la DH conformement au programme etabli. 8. Les d6penses engag6es pour la composante assainissement seront certifiees par la DHA. 9. Les equipements necessaires a la r6alisation de la composante assainissement seront affect6s a la DHA. III Organisation et coordination III-1 Niveau Central (National)  Annex 3-5 Page 2 of 2 10. La programmation et la coordination technique des activites seront principalement assurees par les responsables de la DH (4 personnes) et de la DHA (1 personne). 11-2 Niveau r6gional 11. Les 6quipes du Service R6gional de l'Hydraulique (SRH) vont assurer la programnmation, le contr6le et le suivi des activit6s de la composante Alimentation en Eau Potable. 12. Les equipes de la DHA basees dans les Services d'Hygiene et d'Assainissement (SHA) au niveau des Directions D6partementales de la Sante (DDS) vont assurer la programmation, le contr6le et le suivi de la composante assainissement. 13. La coordination des activites sera effectuee par les deux equipes sous la responsabilite du SRH. IV-3 Niveau Communautes 14. Le contact direct avec les populations se fera avec les Organisations Non gouvernementales (ONG) et les structures privees. 15. Les SRH et SHA vont participer a la conception et a 1'execution des programmes de formation des ONG et des structures privees. 16. Le programme de formation en IEC / marketing des ONG sera conumun aux deux composantes. IV Comit6 de suivi et d'dvaluation 16. Le comite de suivi et d'evaluation sera compose de la facon suivante: * le DH * le DHA * les deux CPC du MEMH et du MS * la direction technique du projet PrEst par DH DHA Approuv6 par: MEMH MS  Annex 3-6 Page 1 of 6 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Programme de formation JUSTIFICATION 1. Le developpement des ressources humaines doit etre compris dans son sens le plus large. II comprend le recrutement et la selection du personnel, la planification a long terme des besoins en personnel, les politiques de gestion des ressources humaines telles que les moyens d'incitation a la tache et les formations formelles comme informelles, leur suivi, les actions d'information. II concerne pratiquement tous les acteurs du secteur a tous les niveaux hierarchiques: d6cideurs, cadres ingenieurs et techniciens, agents de terrain, organisations villageoises. 2. La decentralisation du processus de prise de decision impose un changement radical des r6les et responsabilites traditionnellement joues par les structures d'appui aux communautes. Chacun doit apprendre a ecouter, motiver, organiser, former et soutenir les actions de ces communautes. Pour que ces communautes puissent prendre des decisions justes, les personnes directement chargees de les encadrer devront aller au dela de la simple sensibilisation a la necessite de cotiser de l'argent pour obtenir un point d'eau moderne. Le personnel de ces structures d'appui devra developper ses competences pour etre capable d'informer les populations sur les caracteristiques ainsi que les avantages et inconvenients de chaque type d'ouvrage. Les communautes par ailleurs, doivent developper leurs capacites de s'organiser pour elaborer et realiser des projets d'approvisionnement en eau et,1ou d'assainissement qui beneficient d'un soutien durable des villageois. 3. Les responsables des structures gouvemementales, non gouvernementales et des petites et moyennes entreprises doivent ameliorer leurs competences en matiere de definition de strategies et plans d'actions, de programmation, supervision et coordination d'activites, ainsi que de collaboration avec leurs partenaires. Les techniciens de ces PME, les puisatiers, magons, distributeurs de pieces d6tach6es, petits reparateurs d'equipement d'eau ou d'assainissement doivent apprendre des techniques nouvelles en matiere d'hydraulique ou d'assainissement comme de gestion de leur activite. Les services publics centraux et locaux doivent ameliorer leurs capacites a planifier, coordonner, controler les activites des autres acteurs du secteur. STRAT1GIE DU PROGRAMME DE FORMATION * Mise en place d'un systeme de selection du personnel performant. II sera necessaire de pouvoir disposer d'equipes pluridisciplinaires au niveau central comme au niveau r6gional. Ainsi, le cas echeant, les personnels de l'hydraulique rurale et de la sante appartiendront i une meme equipe pour assister les projets des communautes qui comporteront a la fois un volet eau et un volet assainissement. * Les competences techniques et comportementales du personnel seront regulierement appreciees afin de beneficier d'equipes solides. * Institution de pratiques permettant de motiver le personnel, particulierement pour les institutions gouvernementales: participation a des formations, a des rencontres nationales comme internationales, accas a des primes d'incitation, avancement.  Annex 3-6 Page 2 of 6 * Utilisation des techniques participatives * Renforcement institutionnel de toutes les organisations qui en ont besoin, afin que leur strategie d'intervention soit claire, qu'elles puissent acceder aux ressources humaines, financieres et materielles qui leur sont necessaires pour fonctionner et qu'elles sachent bien les gerer. * Developpement d'6changes interdisciplinaires a travers des activites d'equipes et de structures de coordination et de suivi regroupant des professionnels de diverses disciplines. Ceci se ferait a tous les niveaux et entre institutions, et serait appuye par des d6finitions claires des roles et responsabilites de chacun. * Information de facon la plus large possible de tous les acteurs du secteur sur les approches employees, ce qui motive leur choix, sur les resultats obtenus afin de consolider l'harmonisation des points de vue autour de la nouvelle strategie et des manieres de la mettre en oeuvre au niveau national. * Emploi des moyens qui favorisent 1'apprentissage en cours de projet: par I'analyse rdguli6re des problemes rencontres et la redefinition des objectifs, approches, moyens et methodes experimentees pour mettre en oeuvre la strategie nationale. * Preference donn6e a la formation en cours d'execution des activites des personnes formres et suivi suffisant sur le terrain. * Recours a une ONG internationale qui assurerait la formation de formnateurs et des actions de renforcement institutionnel de structures locales. Cette ONG internationale ne serait donc pas directement active sur le terrain. * D6veloppement des formations formelles qui manquent encore ou qui doivent etre amelior6es afin de satisfaire les besoins en formation de ce type. * Renforcement d'un reseau de communication entre les structures fournissant des formations et les demandeurs de formations. DESCREMTION DU PROGRAMME DE FORMATION Le programme de formation comporte quatre grands types d'action: - les formations theoriques, toujours doubl6es de formations pratiques, car directement adapt6es aux activites des personnes formees, dans pratiquement toutes les actions de formation, le suivi joue un r6le majeur. - l'infonnation sur la nouvelle approche qui est comptee comme une action de formation car ce sera l'occasion pour la DH et les SRH d'apprendre a batir une campagne d'information avec des specialistes: Une agence de publicite sera associ6e et ses termes de references comprendront un volet d'apprentissage de techniques de marketing - participatif (les idees A promouvoir etant identifides avec la participation des groupes cibles de l'operation de marketing).  Annex 3-6 Page 3 of 6 I'apprentissage pour documenter les experiences obtenues au fur et a mesure que le projet avance, ainsi que pour diffuser toutes informations relatives a ces experiences. les apprentissages pour auto-evaluer chaque trimestre les activit6s de la DH et des SRH, et plus tard l'ensemble du projet, par une evaluation externe oh l'occasion sera donnee aux specialistes locaux de parfaire leurs methodes. Les formations thboriques doublees de formations pratiques. 1. Tous groupes cibles Tous les groupes cibles recevront la visite d'une equipe de consultants provenant d'un bureau d'etudes et d'une ONG internationale. Cette 6quipe rencontrera des repr6sentants de ces groupes cibles afin d'identifier leurs besoins en formation. Les trois semaines prevues A cet effet permettront de degrossir les besoins A satisfaire. Puis, des equipes plus spcialisees afficheront les besoins en formation de chaque groupe A former: ainsi pourront etre choisi un bureau d'etude international, ayant de l'experience en matiere d'eau et d'assainissement, une ONG internationale ayant deja travaille en 6quipe pour aider une ONG A elaborer sa strategie d'intervention, ses priorites d'action... La DH pourra choisir de faire venir un cadre d'une administration africaine, qui assiste d'un consultant international effectuera un transfert de competences dans un domaine oh son minist6re est assez avance par rapport au ministere des Mines, de l'Hydraulique et de l'Energie. 2. Equipe pluridisciplinaire DH Un consultant international assistera lequipe dans l'elaboration d'un programme detaill6 d'activite et des termes de references precis de chaque membre de l'equipe. En anticipant sur les resultats de l'identification des besoins en formation il est propose a ces personnes un renforcement de leur capacit6 de travailler en equipe, A planifier et suivre leurs activites. C'est egalement A la meme periode que l'equipe pluridisciplinaire de la DH pourra mettre en place un mecanisme d'auto-evaluation de ses activites, avec un specialiste des methodes d'auto-evaluation. Puis, plus tard au moment oh la DH devra passer des marches de travaux ou de fournitures, il est prevu une formation sur l'elaboration des termes de ref6rences, dossiers d'appel d'offres, suivi et contr6le des travaux et services comrnandes. 3. Equipes pluridisciplinaires SRH Les deux equipes beneficieront de l'assistance du meme consultant international que la DH pour elaborer son programme detaill6 d'activites et des termes de references precis de chaque membre de l'6quipe. II est aussi prevu un renforcement de leurs capacit6s de travailler en equipe, comme de planifier et suivre leurs activites. Suivra ensuite mais dans la meme periode, la mise en place d'un mecanisme d'auto-evaluation de leurs activites, puis la formation liee aux passations de marches. A cela, s'ajoutera un appui particulier aux equipes des SRH. C'est celui d'une ONG internationale qui aura pour r6le de mettre en place un systeme informatis6 de collecte et de presentation de l'information disponible sur le projet, afin par exemple, d'informer  Annex 3-6 Page 4 of 6 les membres de deux comites de suivi du projet de decentralisation. Cette tache de la phase II sera suffisamment lourde pour etre la seule que l'on confierait A une ONG internationale qui a fait ses preuves dans l'emploi de methodes participatives permettant A divers acteurs du secteur de l'eau et de I'assainissement de mieux dialoguer. Cette ONG internationale apporterait ses experiences glanees dans d'autres pays de l'Afrique de l'Ouest od les principes de la strategie de decentralisation du secteur sont similaires. 4. Agents administratifs etfinanciers de la DH et des SRH Aux actions de formation identiques A celles de la DH et des SRH, s'ajoutent par anticipation une formation A la gestion administrative et financiere. 5. Responsables, formateurs et agents de terrain des ONG, relais de communication Pour ce public nous envisageons des formations qui doivent permettre de reellement decentraliser la prise de decision au niveau des populations rurales. Ce public constitue le dernier maillon d'une chaine qui relie de maniere informelle, I'administration A ses administres. L'espace de negociation qui s'y trouve autorise une grande liberte de choix. Malheureusement, il y regne encore un certain amateurisme qui ne conduit pas les energies investies avec bonne volonte A des resultats d'envergure. II est alors propose: - un module "animation de diagnostics participatifs" - un module "conception et test de materiels didactiques" - un module "6laboration de projets villageois d'AEPA" - un module "elaboration de projets d'assistance aux projets villageois" Pour les formateurs, agents de terrain des ONG et relais de communication, il sera indispensable qu'ils soient capables d'assister les communautes villageoises et autres usagers potentiels de systemes ameliores d'AEPA, dans le choix precis du systeme qui leur conviendrait le mieux. Ainsi le recours A des bureaux d'etudes ou des ingenieurs conseils ne se ferait que pour des cas necessitant un appareillage ou des techniques vraiment specialises, qui requierent plusieurs mois d'etudes. On formera donc le public cite ci-dessus de facon a ce qu'il puisse realiser le maximum possible avec le niveau de formation qu'il possede deja. C'est le r6le du module "options technologiques existantes et criteres de comparaison de ces options". 6. Responsables et cadres des bureaux d tudes et ONG locales (services lucratifs et non lucratifs), des PMEfournissant du materiel ou realisant des travaux Deux modules pourraient leur etre propose, "gestion administrative et financiere", gestion des ressources humaines". Les objectifs de ces formations seraient similaires, mais chaque public ayant ses specificites, chaque module sera con,u et teste et realise par des specialistes du domaine concerne: bureau d'etudes, consultant et ONG internationaux ou centre de formation local. 7. Formateurs de puisatiers et puisatiers Jusqu'A present, ce sont principalement des ONG internationales basees localement qui forment les puisatiers. II est souhaitable qu'une competence locale soit creee pour mettre  Annex 3-6 Page 5 of 6 des puisatiers a la disposition des populations, dans des delais raisonnables. Les besoins en puisatiers A l'echelle nationale sont encore insuffisamment connus. Mais ce type d'informations est indispensable A connaitre pour concevoir le module. II faudra donc identifier le nombre de puisatiers necessaires par departement, leur localisation ideale et les modes d'intervention qu'ils choisiraient (employ6s temporaires de PME ou non). II est envisage pour les puisatiers et leurs formateurs un module "techniques de creusage de puits, elaboration de metres et devis, methodes de recrutement d'artisans puisatiers, gestion de chantiers "qui ne pourra etre elabore que lorsque les besoins en puisatiers et leurs conditions futures de travail seront identifies. Les chantiers offerts par les SRH ou les PME, compteront parmi les terrains de formation des formateurs de puisatiers et puisatiers. II sera necessaire de determiner les personnes qui seront les plus A meme d'etre formatrices de puisatiers entre des centres professionnels qui developpent des activites hors centre et du personnel d'ONG specialisees. 8. Formateurs de maCons et maCons I1 est prevu pour eux un module intitule "techniques de construction de latrines, superstructures pour les pompes, travaux divers pour les mini reseaux, elaboration de metres et devis, methodes de recrutement de manoeuvres, gestion de chantiers". L'information sur Ia nouvelle approche. Une campagne d'information sera elaboree de maniere participative. L'acteur principal sera l'equipe pluridisciplinaire de la DH, mais les autres groupes cibles seront impliques dans l'identification des idees A promouvoir et des moyens pour les vehiculer. Cette campagne se fera en collaboration avec la DHA du ministere de la Sante Publique et utilisera tous les moyens juges efficaces pour informer sur la nouvelle strategie de developpement du secteur de l'eau et de l'assainissement. On privilegiera cependant les moyens peu couiteux, faciles A produire localement, afin de permettre la replicabilite de ces choix par la DH et la DHA. L'apprentissage pour documenter les experiences Ceci constitue un aspect essentiel du programme de formation. En effet, le projet d'assistance A la mise en oeuvre de la nouvelle strategie pour le secteur de l'hydraulique villageoise constitue un bon terrain d'experimentation d'une maniere d'etablir des normes, des principes de fonctionnement, de fixer des taux de participation de divers partenaires, de determiner des responsabilites,... Des plates formes de negociation et d'information seront mises en place afin que le choix des experimentations a accomplir soit base sur les propositions les plus durables possibles. Ainsi il sera necessaire d'impliquer les personnes concernees par un choix ou un autre dans un reseau d'information regulierement alimente. Pour cela la DH sera assistee par une structure specialisee dans la diffusion d'information relevant du domaine de l'Eau et de l'Assainissement. Le module de formation est intitule ici "programmation et contr6le des activites d'echanges et de documentation d'experiences". Ce module pourra viser des objectifs tels que:  Annex 3-6 Page 6 of 6 recueillir les attentes des divers intervenants du secteur en matiere d'information sur le secteur identifier et diffuser des informations disponibles grace au systeme de gestion informatise de l'information, aupres des comites de suivi et des bailleurs de fonds, elaborer des documents synthetiques sur divers aspects de la phase II du projet identifier et multiplier en plusieurs exemplaires les materiels pedagogiques qui pourraient interesser certains intervenants du secteur de l'Eau et de I 'Assainissement L'apprentissage pour auto&valuer Ceci concerne uniquement la DH et les SRH. Les efforts devront se porter sur la mise en place d'un mecanisme tres simple, qui ne demande pas trop de saisie d'information, mais qui permet d'effectuer un rep6rage rapide des moyens et methodes qui meritent une attention particuliere, parce qu'ils doivent etre supprimes ou modifies. Des ONG ou consultants internationaux ont fait leurs preuves en matiere d'animation d'autoevaluation. Ils sont bien indiques pour aider A etablir un mecanisme de ce type au sein de la DH. L'autoevaluation anim6e ou assistee permet non seulement de bien suivre une activite ou un projet donne, mais aussi de souder une equipe autour d'objectifs/motivations clairement formules et autour d'un "vocabulaire" commun. "Chacun sait mieux de quoi l'autre parle..."  Annex 3-7 Page 1 of 2 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Project Supervision Plan 1. IDA Supervision Inputs. Field supervision needs are described in the following table. In addition, regular supervision needs for the review of progress reports, procurement actions, etc. are estimated to require eight staff-weeks per year. 2. IDA supervision is to be assisted by RWSG-WA which will provide each year about five staff-months of a rural water supply specialist and of a community development specialist. The two staff from RWSG-WA would visit Benin every month during the first twelve months and every two months thereafter. 3. Borrower's Contribution to Supervision. Project's progress and performance will be evaluated internally through the Follow-up and Evaluation Commnittee set up by DH and DHA and externally through semi-annual operational audits. Key actions would be as follows: (a) Progress reports would be submitted quarterly to IDA. These reports would include a summnary of implementation under each component, financial statements on project expenditures, progress against agreed schedule of activities and key performance indicators and procurement information and cost estimates, updated as needed. DH will gather and consolidate information provided by the SRHs and DHA; (b) Joint Annual Reviews. Once a year, DH would organize a joint IDA/DANIDA/Government review of project implementation covering: (i) progress reports and annual work program and budgets; (ii) status of monitoring indicators listed in Annex 3-8; and (iii) the sectoral investment program. Other donors represented in Cotonou would be invited to facilitate the dissemination of lessons learned and experience accumulated during implementation; and (c) Mid-term Review. DH and DHA would carry out, not later than March 31, 1996 a mid-term review of the project to assess: (i) project management and coordination; (ii) timeliness in providing budgetary allocations and counterpart funding to DH; (iii) effectiveness of the WSCs and capacity of communities to plan and manage their water supply facilities; (iv) performance of NGOs and local consultants in assisting communities to plan their water systems and performance of contractors in constructing water and sanitation facilities; (v) impact of sanitation and hygiene education programs; and (vi) overall progress of project implementation with respect to key indicators. DH would prepare and transmit to IDA an evaluation report one month in advance of the mid-term review. 4. DH would be responsible for coordinating arrangements for IDA supervision missions, for providing information required by missions. Mission wrap-up meetings would be normally chaired by the Minister of Mines, Energy and Water.  Annex 3-7 Page 2 of 2 IDA SUPERVISION PLAN SKILL STAFF 'YEAR ACTIVITY REQUIREMENTS INPUT _________________ ;V (Staff-weeks) 1994 Project Launch Workshop (July) Commnunity development * 2 Water engineer * 2 Sanitation 2 Financial analyst 2 Procurement I Resident mission 1 First Annual Review (November) Community development * 2 Review achievements of Phase I (training and Water engineer * 2 information); review of work program, budget and Sanitation 2 procurement schedule. Economist 2 Resident mission 2 1995 Supervision mission (March) Community development *2 Review progress of community development; Financial analyst 2 assess accounting/disbursement/procurement Water engineer * 2 performance. Resident mission 2 Community development * 2 Second annual review (October) Sanitation 2 Review progress against work program and Financial analyst 2 indicators; review of operational and financial Resident mission 2 audits; assess community participation l 1996 MId-term review (March) Community development *2 Assessment of effectiveness of decentralized Water engineer * 2 approach and sectoral policies and of performance Sanitation 2 of private contractors and NGOs. Review of Financial analyst 2 generic implementation issues (contract Resident mission 2 management, counterpart funding). Project restructuring if necessary. Supervision mission (October) Water engineer * 2 Financial analyst 2 Resident mission 2 1997 Third annual review (March) Community development * 2 Sanitation 2 Water engineer * 2 Economist 2 Resident mission 2 Completion (July) Community development * 2 Water engineer * 2 Financial analyst 2 Resident mission 2 4 Staff of RWSG-WA  Annex 4-1 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT Monitoring Indicators The final list of indicators and targets was discussed and agreed upon at negotiations 0 Effectiveness and sustainability of the decentralized planning process: * Ability of SRHs and NGOs to use participatory methods * Effective use of self-evaluation procedures * Effectiveness in mobilizing communities * Number of rural systems constructed * Number of schools and health centers enrolled in sanitation program * Number of household latrines constructed * Share of operating expenditures financed by budget o Development of private sector capacity: * Number of qualified NGOs * Number and performance of local drilling contractors * Number and performance of trained masons and well-diggers * Unit costs of facilities (water supply and latrines) * Number and performance of pump mechanics * Availability of spare parts and after sales service o Ownership and community management of facilities: * Number of active WSCs * Women's involvement in key positions * Availability rate of water systems * Cost recovery and revenue collection O Use and impact of facilities: * Consumption of water dry/rainy season * Number of users dry/rainy season * Number of users of on-site sanitation facilities * Water quality * Upkeep of water point surrounds and sullage control * Water hygiene and excreta disposal practices   Annex 5-1 Page 1 of 3 REPUBLIC OF BENIN RURAL WATER SUPPLY AND SANITATION PROJECT ENVIRONMENTAL ANALYSIS Executive Summary ' Within the framework of the International Water and Sanitation Decade, the Beninese Government started implementing in 1981 an emergency water program which aimed at providing the population with 20 litres/pers/day of drinking water. In January 1992, a new rural water supply strategy was approved by the Government. This aims at reducing the construction and running costs of rural water points and above all, at decentralizing decision making and promoting financial contributions from the communities being served in order to ensure sustainability. The "Project to Support the Implementation of the New Rural Water Supply Strategy", presently being carried out in the Atlantic and Zou Departments, will test decentralization procedures for the water and sanitation sector in rural areas. Based on an analysis of the situation (physical and socio-economical) which existed before field operations were started and the expected impact of the project in different domains, the environmental study is a necessary step in promoting the sustainable delivery of drinking water and an improvement of people's living conditions. 1. The area under study is one of considerable hydrogeological and geographical variety. Besides the fact that the region covers two slightly different climatic zones, (Beninese climate with 4 distinct seasons and a humid Sudanian climate with two rainy seasons which tend to merge into one) and has an average of 1.200 mm of annual rainfall, it is also characterized by two extremely different geomorphological land units found side by side. These are the coastal sedimentary basin in the South, which has a highly varied, complicated and faulted hydrogeological structure and the granitic peneplane in the Northern part, with much lower discontinuous reserves of ground water found in the rock faults or in the weathered rock depressions. The whole of the coastal sedimentary basin is subject to heavy population pressure (200 pers/km2) with higher densities in some localities near to secondary urban centres and a scattered rural housing pattern, especially in the Southern part. The peneplane has a much lower population density (< 30/pers/km2), while the housing pattern is one of larger, usually well structured villages. In 1993, the overall water supply coverage was estimated at 50% for the country as a whole with strong contracts between the Southern and Northern regions *28.75% in the Atlantic and 58.76% in the Zou). Unsatisfied needs are still important in the Zou and above all in those areas of the Atlantic Department which have a scattered rural housing pattern. As far as possible, the location of water points has to respect the environmental situation in each particular case, and it is therefore necessary to examine the prevailing situation in the different landscape units in which the program will be operating. The environmental study was carried out by the Center for Environment and Development in Africa (Ceda, Cotonou, Benin) in January 1994. Field surveys were conducted in sixteen villages of the Zou and Atlantique departments.  Annex 5-1 Page 2 of 3 2. The five landscape units which make up the Atlantic and Zou Departments each provide different constraints for locating water points. The major constraints are summed up in the description of each of the five landscape units. In the Coastal and riverine-lakeside zone, ground water is extremely close to the surface and the difficulties in reaching many villages, the scattered housing pattern and the existence of a large number of traditional wells in areas with a high water table as well as the lack of family and comrnunity resources have not made it easy to provide water points and to make them run by the communities. and artesian wells can be a major factor in populating the area and in promoting regional development; they would also favor increased commnunity participation in different development activities. The Allada plateau is densely inhabited but the population is spread over wide areas of cultivated land. Setting up water points is therefore not subject to many environmental constraints, although it is necessary to obtain better control over rare resources and use them in a sustainable manner. The Lama depression is underpopulated and lacks traditional water points. Given its hydrogeological potentialities, boreholes and artesian wells can be a major factor in populating the area and in promoting regional development; they would also favor increased community participation in different development activities. The Abomey-Zagnanado plateau is characterized by a deep water table level (70m) and a low level of community achievements. (Rainwater catchment which are frequently built in this area are individual or family properties.) Technical problems which people manage individually do not necessarily make it easier for communities to assume the cost of providing drinking water. In the Granitic-gneissic peneplane, the low level of weathering of much of the rock base makes well digging difficult. Only the existence of faults and the presence of numerous quartz seams make it worthwhile to drill small diameter boreholes fitted with a handpump. The region being studied is subject to important environmental changes. The important climatic variations in the region do not necessarily mean that there will be a long-term dry period. The present abundance of groundwater will only be affected by climatic change if there is a worsening of the morphogenetic conditions (high erosion levels on the granitic base and more important seasonal flooding in the valleys and the coastal lagoons). Overall, the region studied shows a high level of water related illnesses (malaria, gastro-enteritis, dracunculosis, onchocercosis, etc...). For most of the families surveyed, ( > 90 %), excreta disposal is in the bush. The rapid and disorganized extension of larger rural centers and bourgs means that much new housing is being located near to dumped refuse, ponds and excreta deposits. 3. Some possible negative effects on the environment can occur but are not very important and can be reduced by simple measures which are already taken into account in the project: - groundwater recharge, even in dry years, is far more important than the quantities to be extracted by the water points to be realized, only the realization small pipe-borne systems on granitic gneissic peneplain needs specific hydrological studies related to this problem and will be realized by the project: proper siting and design of water points will ensure that there are no risks of groundwater pollution to and from the water point and of creation of a favorable habitat for water  Annex 5-1 Page 3 of 3 diseases; - a great involvement of community in the choice, design and running of equip.. ,s will ensure their sustainability and access to drinking water to all categories of population. 4. The positive effects on the environment are obvious, amongst which are: the improvement in health and living conditions; labor and energy saving for women who are the principal actors in drawing water; the improvement of rural production. 5. Both the field survey and the other information available, show that the positive effects of new water points are dominant. However, in an environmentally favorable context, all rural water supply programs should include reinforcement measures. They would have the following major thrusts: - improvement of health conditions; - improvement of living conditions; - labor saving for women; - increased production; - an entry point for village lands improvement and management. The project includes not only important actions for promoting on-site sanitation facilities and construction but also for education in hygiene. These objectives can only be achieved by setting up community development structures aimed at promoting grass roots development. An appropriate institutional structure is included in the project for decentralizing the decision making process. The decentralized structures of the Water Resources Division will be responsible, together with non governmental organizations (NGOs) for encouraging villagers to use drinking water and at the same time assisting them in choosing appropriate technical solutions. Extension work and training of villagers, who are generally quite capable of managing their own belongings, will be undertaken by the NGOs and the Local Development Associations which are in close relation with the village communities.