Microsoft Word - Cameroon- Yaounde sanitation project - Pady.docTABLE OF CONTENTS
Pages Currency Equivalents, Weights and Measures, List of Tables, List of Annexes, Project Information Sheet, List of Acronyms and Abbreviations, Basic Data and Project Matrix, Executive Summary i-x
1. PROJECT ORIGIN AND HISTORY………………………………………………………………………. 1 2. WATER AND SANITATION SECTOR……………………………………………….………... 2 2.1. Sector Characteristics…….………………..…………………………………...……………………….….. 2 2.2. Legal, Regulatory and Institutional Framework……………………………………………………….…………. 3 2.3. Constraints to Sector Development…..…………………………….……………………………..…….… 4 2.4. Government Policies and Strategies………………………..………………………………………….…… 5 2.5. Donor Intervention …………………………………….……………………….………………. 6 3. THE SANITATION SUB-SECTOR…………………………………………………..……….…….. 7 3.1. Rain Water and Waste Drainage………………………………………………….……..… 7 3.2. Solid Waste Disposal…………..………………………………………………………………...… 7 3.3. Sub-sector Institutions…………………………….…………………………………..…….…………….… 8 4. THE PROJECT……………………………………………………………………………………..………….……..13 4.1. Project Design and Rationale ………………………………………………………………..….…………. 13 4.2. Project Area and Beneficiaries …………………………………………………………..………………………. 14 4.3. Project Strategic Context……..……………………………………………………………………..……….. 15 4.4. Project Objectives …………………………………………………………………………………..……………. 16 4.5. Description of Project Outputs ……………………………………………………………………...……… 16 4.6. Detailed Description of Project Components …………………………………………………………...……. 16 4.7. Impact on the Environment ……………………………………………………………………………. 19 4.8. Project Costs ………………………………………………………………………………………..………..… 20 4.9. Sources of Financing and Expenditure Schedule …………………………………………….……….………. 21 5. PROJECT IMPLEMENTATION………………………………………………………………………..………… 23 5.1. Executing Agency …………………………………………………………………………………...……….…. 23 5.2. Institutional Arrangements ……………………………………………………………………….……………. 24 5.3. Procurement of Goods, Works and Services ……………………………………………. 25 5.4. Project Implementation Schedule……………………………………………………………...…………………. 27 5.5. Disbursement Arrangements …………………………………………………..…………………… 27 5.6. Project Monitoring and Evaluation ………………………………………………………………………….…… 28 5.7. Financial and Audit Reports …………………………………………………………………………………….. 29 5.8. Aid Coordination …………………………………………………………………………………………… 29 6. PROJECT SUSTAINABILITY AND RISKS………………………………………………………………….… 30 6.1. Recurrent Expenditure…………………………………………………………………………………………… 30 6.2. Project Sustainability…………………………………………………………………………………………… 30 6.3. Major Risks and Mitigative Measures ……………………………………………………..……………… 31 7. PROJECT BENEFITS ………………………………………………………………………………..……… 32 7.1. Analysis of Project Economic Benefits ………………………………………………………………...… 32 7.2. Project Social Impact Analysis …………………………………………………………………………... 33 8. CONCLUSIONS AND RECOMMENDATIONS……………………………………………………………… 34 8.1. Conclusions ………………………………………………………………………………………………………. 34 8.2. Recommendations ……………………………………………………………………………………………… 34 ___________________________________________________________________________________________________ This report was prepared by Messrs. El Azizi, Principal Water and Sanitation Engineer (Ext. 2302), Cisse, Architect (Ext. 3109), M. Bah, Public Utilities Economist (Ext. 2339) and L. Joottun, Environmentalist (Ext. 2256). Questions should be referred to Mr. A.T. Diallo, Division Manager, OCIN.1 (Ext. 2125) and Mr. G. Mbesherubusa, Director OCIN (Ext. 2034).
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Monetary Unit : CFAF UA 1 : CFAF 764.452
WEIGHTS AND MEASURES
LIST OF TABLES
3.1 : Overall Staffing of the CUY 3.2 : Main CUY Budget 3.3 : Road Network Maintenance Account 4.1 : Summary of Project Cost Estimate by Component 4.2 : Summary of Project Cost Estimate by Expenditure Category 4.3 : Financing Schedule by Source 4.4 : Financing Schedule by Component 4.5 : Expenditure Schedule by Component 4.6 : Expenditure Schedule by Expenditure Category 4.7 : Expenditure Schedule by Source of Financing 5.1 : Goods, Works and Services Procurement Arrangements 5.2 : Project Implementation Schedule 6.1 : Recurrent Cost Estimate
LIST OF ANNEXES Annex 1 : Administrative Map of the Project Impact Area Annex 2 : Organization Chart of the Yaoundé Urban Community (CUY) Annex 3 : Project Institutional Arrangements Annex 4 : Logic Chain of Project Results Annex 5 : Project Monitoring-Evaluation Framework Annex 6 : Summary of Project Environmental and Social Management Plan Annex 7 : List of Goods, Works and Services Annex 8 : Performance Contract of the Project Implementation Unit (PIU) Annex 9 : Detailed Project Implementation Schedule Annex 10 : Bank Group Operations Annex 11 : Technical Description of Main Project Structures Annex 12 : List of Documents Consulted
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ACRONYMS AND ABBREVIATIONS ABEDA : Arab Bank for Economic Development in Africa ADB : African Development Bank ADF : African Development Fund AFD : French Development Agency BEAC : Bank of Central African States C2D : Development Debt Relief Contract CA : District Commune CU : Urban Community CUY : Yaoundé Urban Community DWSS : Drinking Water Supply and Sanitation EU : European Union HIPC : Heavily-Indebted Poor Countries IBD : Islamic Development Bank ICB : International Competitive Bidding ILO : International Labor Organization LCB : Local Competitive Bidding LI : Labor Intensive MAETUR : Urban and Rural Land Development Mission MDG : Millennium Development Goals MINATD : Ministry of Territorial Administration and Decentralization MINDAF : Ministry of Land and Land Issues MINDUH : Ministry of Urban Development and Housing MINEE : Ministry of Water and Energy MINEP : Ministry of the Environment and Protection of Nature MINEPIA : Ministry of Livestock, Fisheries and Animal Industry MINSANTE : Ministry of Health NGO : Non-Governmental Organization PIU : Project Implementation Unit PNGE : National Environmental Management Plan PPF : Project Preparation Financing Mechanism PRSP : Poverty Reduction Strategy Paper RBCSP : Results-Based Country Strategy Paper RBM : Results-Based Management SIC : Cameroon Real Estate Company SME/ SMI : Small- and Medium-Scale Enterprises/Small-
and Medium-Scale Industries SNEC : Cameroon National Water Board SPE : Permanent Environment Secretariat UA : Unit of Account UNDP : United Nations Development Program
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Temporary Relocation Agency (TRA-TUNIS)
13 Avenue du Ghana, B.P. 323 Tunis 1002, Belvedere, TUNISIA Tel.: (216) 71 10 21 91 Fax: (216) 71 33 26 95
PROJECT INFORMATION SHEET
Date: April 2005
The information given hereunder is intended to provide some guidance to prospective suppliers, contractors, consultants and all persons interested in the procurement of goods and services for projects approved by the Boards of Directors of the Bank Group. More detailed information and guidance should be obtained from the Executing Agency of the Donee. 1. COUNTRY : Republic of Cameroon 2. PROJET NAME : Yaoundé Sanitation Project (PADY)
3. LOCATION : Yaoundé 4. DONEE : Government of Cameroon 5. EXECUTING AGENCY : Yaoundé Urban Community (CUY) 6. PROJECT DESCRIPTION The project comprises the following components:
A) - Development of Sanitation Infrastructure; B) - Capacity Building; C) - Project Management;
7. TOTAL PROJECT COST
Total Cost : UA 28.49 million
8. PROJECT SOURCES OF FINANCING AND AMOUNT ADF Grant : UA 25.6 million
Government : UA 2.89 million
9. DATE OF APPROVAL : November 2005 10. PROBABLE START-UP DATE : April 2006 11. DURATION : 4 years
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12. PROCUREMENT OF GOODS, WORKS AND SERVICES All goods, works and services financed by the Bank will be procured in accordance with Bank Rules of Procedure for the Procurement of Goods and Works or, as the case may be, the Rules of Procedure for the Use of Consultants as follows: Works: construction of the Mfoundi Canal and of the three mechanical rakes to protect the canal will be procured through international competitive bidding (ICB) with prequalification of firms. Works to clean the three main drains of Mfoundi, Ekozoa and Djoungolo and related works will be procured through local competitive bidding (LCB) Goods: (i) small equipment for pre-disposal of solid waste; (ii) office equipment (tables, chairs, etc.) and IT hardware (computers, printers, scanners, etc.) for the PIU will be procured through LCB. Services: services for: (i) landscaping; (ii) works inspection including the establishment of a project monitoring/evaluation system (definition of the system, installation of an IT system and specialized software); and (iii) auditing of project accounts will be procured on the basis of short lists. The consulting firm responsible for works inspection and project monitoring and evaluation will be selected on the basis of technical evaluation with price as a factor. The selection procedures for the other consultancy services will be based on the lowest price offers for comparable services. All services concerning training, organization and sensitization will be implemented by the International Labor Organization (ILO) through direct negotiation. 13. ENVIRONMENTAL CATEGORY : II
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ASSUMPTIONS/RISKS
SECTOR GOAL (PRSP Theme) Contribute to poverty reduction in the urban areas.
LONG-TERM RESULTS Drop in the proportion of the population living below the poverty line.
Population in
Cameroon’s Cities
Halving the poverty rate by 2015 (2001 basis) Sources: National surveys on income and living conditions of the populations. Reports of the Ministry of Health. Methods: Surveys and Studies.
1) The proportion of the population with less than 1 dollar a day estimated at 40.2% in 2001 brought down to 25.2% in 2015.
PROJECT OBJECTIVE 1). Contribute to rain water drainage in Yaoundé City. 2) Contribute to improving the living conditions of Yaoundé population. 3). Build the capacity of sector stakeholders in Yaoundé
MEDIUM-TERM RESULTS 1.1). Fewer floods in Yaoundé. 2.1). Decrease in the prevalence of waterborne diseases in the City (malaria, diarrhea, typhoid fever, etc.) 2.2). Decline of unemployment especially among youths and creation of long-term employment. 3.1). Promotion, active participation of grassroot communities in waste disposal.
Population in Yaoundé City
1). Mortality rate of the under-fives. 2). Maternal mortality rate. 3) Number of individuals/households flooded. 4). Incidence of waterborne diseases (malaria, diarrhea and typhoid). 5). Number of jobs created. 6). Number of neighborhoods with an operational predisposal system. Sources: Reports of MINDUH. Report of the CUY Urban Observatory. National statistics on unemployment and reports from the Ministry of Employment and Health. Methods: Surveys and Studies.
1). The mortality rate of the under-fives estimated at 102% in 2000, will fall to 73% in 2015. 2). The maternal mortality rate of 560% in 1991 will fall to 124% in 2015. 3.1) The number of people regularly flooded will fall from 53 000 in 2005 to 26 000 in 2007 and 10 000 in 2009. 3.2) The number of people occasionally flooded down from 243 000 in 2005 to 120 000 in 2007 and 48 000 in 2009. 4). The prevalence of waterborne diseases in Yaoundé City will drop (malaria: 16.4% to 6.5% in 2007 and 5% in 2009, diarrhea: 3.8% to 2% in 2007 and 1.9% in 2009 and typhoid: 5.4% to 2.7% in 2007 and 2.2% in 2009). 5). Creation of 675 direct jobs in 2007 and 1 350 in 2009 and 1 175 indirect jobs in 2007 and 2 350 in 2009. 6). In 2007, 7 neighborhoods and in 2009, 14 neighborhoods concerned by the project will have a working pre-disposal system.
Sustainability of the solid waste pre-disposal system. Continuation of the other poverty reduction programs.
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ACTIVITIES / INPUTS 1). Designs; 2).Construction of the rainwater drainage canal, related structures and landscaping; 3). Procurement of supplies; 4). Training of social actors, NGOs and SMEs to LI techniques and business management; 5). Training/education and sensitization of the populations (including women); 6). Signing of waste pre- disposal contracts. FINANCIAL RESOURCES: GVT : UA 2.89 million ADF Grant: UA 25.6 million TOTAL : UA 28.49 million
SHORT-TERM OUTPUTS 1). Landscaping for the area along the canal and project monitoring system introduced; 2.1). Mfoundi Canal built; 2.2). Rainwater collectors protected and cleaned. 2.3). Feeder roads and canal maintenance ramps built. 2.4) Various structures on the canal built. 2.5). Mfoundi Canal protected through the construction of waste disposal pick-up points along the canal. 2.6). Outskirts of the canal (footpaths paved, trees and flowers planted, public benches, lighting, parking areas and dwelling areas, etc.) planned. 4.1). Capacity of the (CA) and CUY, the MINEE and MINDUH built. 4.2). Social actors, SMEs and EBs trained in LI techniques and business management. 5.1). Populations, including women educated and sensitized to good hygiene. 6.1). Waste pre-disposal contracts signed.
Populations of the 14 neighborhoods of the City’s centre and areas in the vicinity of the Mfoundi Canal. (517 372 inhabitants)
SME, NGOs and community associations.
CA of Yaoundé, CUY, MINEE and MINDUH.
1). Number of landscaping operations carried out and project monitoring system introduced. 2). Length of rain drainage canal. 3). Number of underground collectors protected and cleaned. 4). Length of the maintenance paths built. 5). Number of structures (footpaths, rail bridge, road bridges, etc.), built. 6). Number of waste bins installed along the canal. 7). Development on the banks of the canal (km of paved footpaths, number of trees planted, public garden areas planned, number of public benches installed, number of parking areas, number of dwelling areas, etc.). 8). Number of professionals and technician of the CA, CUY, MINEE and MINDUH trained. 9). Number of Associations/NGOs/SMEs/BEs trained. 10) Number of people including women educated and sensitized to good hygiene. 11). Number of pre-disposal contracts signed. Sources: activity reports of the PIU, works delivery, activities of NGOs and Associations, ADF supervision, mid-term review, audit, training and training syllabus. Method: surveys, studies, reports.
1.1). Landscaping study carried out in 2006. 1.2) A project monitoring system introduced end 2006. 2.1). In 2009, 4.32 Km of the Mfoundi Canal built. 2.2). In 2007, 3 underground collectors of about 2.35 km long will be protected and cleaned. 2.3). In 2008, two canal maintenance roads and access ramps built. 2.4). In 2008, two footbridges, a rail bridge and road bridge built. 2.5). In 2009, 50 containers built and 50 waste bins installed along the canal. 2.6). In 2009, the canal approaches developed (4 km of paved footpaths, trees planted, public gardens developed, public benches installed, two parking areas of 400 m2 each and 2 shelters built). 4.1). In 2007, 12 professionals of the CA of Yaoundé, the CUY, MINEE and MINDUH are trained abroad to conduct sanitation works. 4.2). Late 2007, 20 professionals and 10 foremen of the CA of Yaoundé and the CUY are trained to conduct LI works, oversee and manage sanitation works. 4.3). End 2007, 14 associations/NGOs, 20 SMEs and 12 consulting firms trained in the LI techniques and business management. 5.1) Late 2009, 4 IEC campaigns organized. 6.1). 14 waste pre-disposal contracts (Association- NGO/Population/CUY) signed in 2006.
Slowness in the process of goods, works and services procurement.
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EXECUTIVE SUMMARY 1. Project Background 1.1. Since the early nineties, the population of Yaoundé, capital of Cameroon, has increased by 6% every year and today stands at nearly 1.5 million as a result of rural migration and the high birth rate. The Survey on the Living Environment of Yaoundé population (CAVIE), carried out in 2002, highlights the predominance of the so-called squatter areas which cover about 62.4% of Yaoundé City’s area. The main rainwater drainage systems are regularly blocked by all types of solid waste. As a result, during the rainy season floods (15 to 20 major floods per annum) totally disrupt the town’s socio-economic activities and especially those of the squatter areas. Indeed, about 53,000 people (or about 9,000 households are regularly flooded and 243,000 persons (or around 40,000 households) occasionally. Thus, quality of life is very adversely affected during the floods because dwellers sometimes move away temporarily or continue to live in the humid, filthy and unhygienic surroundings. 1.2. In addition to the discomfort caused by these floods, their effects on health, the environment and the economy are enormous. In terms of health, not only do floods cause latrines to overflow thus polluting drinking water wells, breeding sites for larvae form and waste carried by the rain water accumulates, thereby increasing the spread of waterborne diseases. Concerning the environment, floods cause the pollution of the water treatment station of Akomnyanda which supplies the town of Yaoundé with drinking water, soil erosion, land subsidence and slides. With regard to the economy, the floods cause the destruction of houses and businesses, loss of incomes for traders, etc. In short, the lack of rainwater drainage in a town like Yaoundé, where rainfall is considerable (nearly 2000 mm a year) has far-reaching impact on the population most of who already live in poverty. 1.3. In order to control flooding in the City of Yaoundé and address the difficulties inherent in its increasing filth, the Government prepared a Yaoundé City Sanitation Master Plan (PDA), which was financed by the Bank Group. This plan was completed in July 1996 and served as the basis for preparing a project to conduct works on the emergency phase of Yaoundé City Rainwater Drainage which mainly comprises the re-calibration of the Mfoundi and the cleaning of the collectors. An update of the project engineering designs was also financed by the Bank in 2002 out of the PPF funds. 2. Purpose of the Grant
The ADF grant of UA 25.6 million will be used to finance 90% of the project’s total cost. The Bank Group’s total contribution represents the entire foreign exchange cost and 80.23% of the local currency cost. 3. Project Objectives
The overriding objective of the project is to help reduce poverty in the urban areas. The specific objectives of the project are to: (i) contribute to rainwater drainage in Yaoundé City; (ii) contribute to improving the living conditions of the city’s population; and (iii) build the capacity of the sector’s stakeholders.
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4. Project Descriptions and Outputs 4.1. The project comprises the following components:
A) - Development of sanitation infrastructure; B) - Capacity building; and C) - Project management.
4.2. The project outputs are: (i) a study for landscaping along the Mfoundi Canal; (ii) the establishment of a project monitoring/evaluation system; (iii) construction of a canal 4.32 km long; (iv) protection, cleaning of 3 underground collectors, about 2.35 km long; (v) development of two maintenance roads on either side of the canal and the construction of access ramps; (vi) construction of two footbridges, a rail bridge and a road bridge; (vii) construction of 4 disposal structures at the level of the forks which empty into the canal; (viii) construction of 50 containers and installation of 50 garbage bins along the canal; (ix) development of the areas around the canal (4 km of paved footpaths, trees and gardens planted, 54 public benches installed, public lighting installed, construction of two parking areas of 400 m2 each and two shelters built); (x) short-term training abroad in the field of sanitation for 6 professionals of the Yaoundé District Communes, 2 professionals of the CUY Directorate of Technical Services, 2 professionals of the Yaoundé Urban Observatory, a professional of the MINDUH and one of the MINEE; (xi) local training of 20 professionals and 10 foremen of the District Communes (CA) and CUY, 14 Associations/NGOs from the project area, 20 SMEs and 12 consulting firms trained in LI techniques and in business management; (xii) organization of 4 sensitization and education campaigns for the population on good hygiene; (xiii) signing of 14 tripartite contracts (NGOs-Associations/Representatives of the population/CUY) for the pre-disposal of waste. 5. Project Cost The project’s total cost is estimated at UA 28.49 million, including UA 13.88 million (49%) in foreign exchange and UA 14.60 million in local currency. 6. Sources of Financing The project will be financed with the ADF grant (90%) and the Government (10%). The Government will finance 19.77% of the local currency cost. 7. Project Implementation The project will be implemented in 4 years starting January 2006, with start-up of activities linked to the procurement of goods, works and services. Its completion has been scheduled for December 2009.
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8. Conclusions and Recommendations 8.1 The overall objective of the Yaoundé Sanitation Project is to contribute to poverty reduction in the urban areas. Its specific goals are to help limit the effects of floods that disrupt the city’s socio-economic activities and more so of the poor squatter areas that cover about 62.4% of the area of Yaoundé City. In addition to adopting the LI works method to carry out drainage activities, the project plans to introduce related activities (landscaping and pre-disposal of solid waste) with a view to improving the living conditions of Yaoundé dwellers. The project will have a direct and immediate impact on poverty reduction by improving the health of the people, creating about 1350 direct jobs and 2350 indirect jobs during the 4-year implementation phase and reducing the unemployment rate especially among youths. The actions planned within the project context will also bring about increased empowerment of the most vulnerable population groups (women and youths), a better organization of urban communities as well as the promotion of small operators (jobbers, craftsmen, day laborers, SMEs and NGOs). 8.2. The project is in keeping with the Government’s poverty reduction strategy. It is also consistent with the Bank’s areas of intervention as set out in the 2005-2009 RBCSP. The operations planned were identified following consultations using the results-based management approach (RBM), with Cameroon’s development partners, administrative authorities, decentralized authorities, partners of civil society and the beneficiaries. The project is the result of the Yaoundé City Sanitation Master Plan (PDA) as well as detailed engineering designs, including bidding documents, financed with an advance from the Project Preparation Financing Mechanism (PPF). 8.3. In view of the foregoing, it is recommended that an ADF grant of UA 25.6 million be awarded to the Government of Cameroon for the purpose laid down in this report, subject to the conditions of the Grant Memorandum of Understanding.
1. PROJECT ORIGIN AND HISTORY 1.1. With a population of about 16 million inhabitants half of whom live in the urban centers, Cameroon is one of the most urbanized countries south of the Sahara. More than 40% of this population live below the poverty line which has worsened in the last two decades because of the combined effects of the economic crisis which the country experienced from 1985 to 1994 and population growth in towns. This situation led to the deterioration of socio-economic conditions in urban areas, with the attendant proliferation of uncontrolled housing, filth and unemployment especially among youths. 1.2. Since the early nineties, as a result of rural migration and a high birth rate in urban areas (4.1% on average), the population of Yaoundé, the capital, has increased by about 6% yearly and it now counts nearly 1.5 million inhabitants. The survey on the Living Conditions of Yaoundé Population (CAVIE), carried out in 2002 reveals a predominance of squatter districts which cover around 62.4% of Yaoundé City’s area. These districts lack an adequate sanitation system and the rainwater drainage systems are regularly clogged by all types of solid waste. As a result during the rainy season, floods disrupt totally the city’s socio- economic activities and especially those of the squatter districts. Thus, quality of life is rather declines sharply during the floods because dwellers sometimes move away temporarily or continue to live in the humid, filthy and unhygienic surroundings. 1.3 Accelerated urbanization resulting from population growth and the spread of squatter areas, as well as the deterioration of the road network and poor management of solid waste explain the problems arising from Yaoundé rainwater drainage. Indeed, Yaoundé has been experiencing more and more floods since the silting of the underground collectors and the low capacity of river Mfoundi which is the main channel of rainwater drainage. It is no longer a surprise to see floods of nearly one meter on Avenue Kennedy, the city’s main road, whereas such phenomena were rare in the nineties. 1.4 In addition to the discomfort caused by these floods, their impact on health, the environment and the economy is enormous. In terms of health, not only do floods cause latrines to overflow thus polluting drinking water wells, breeding sites for larvae form and waste carried by the rain water accumulates, thereby increasing the spread of waterborne diseases. With regard to the environment, floods cause the pollution of the Akomnyanda water treatment station (which supplies Yaoundé with drinking water), soil erosion, land subsidence and slides. Concerning the economy, the floods cause the destruction of houses and businesses, loss of incomes for traders, etc. In short, the lack of rainwater drainage in a city like Yaoundé, which receives considerable rainfall (nearly 2000 mm of water a year), has far-reaching impact on the population most of who already live in poverty. 1.5 Moreover, River Mfoundi is an affluent of the Mefou which empties downstream from the point of collection of raw waters from the Akomnyanda station which supplies Yaoundé with drinking water. The risk of contaminating the people who drink this water is obvious. Thus, at the current pace of pollution of Mfoundi’s waters, it will be increasingly costly to treat the raw water, hence the urgency to control pollution and better manage solid waste. 1.6 With a view to controlling flooding in the town of Yaoundé and addressing the difficulties inherent in its increasing filth, the Government prepared a Yaoundé City Sanitation Master Plan (PDA), which was financed by the Bank Group. This plan was completed in July
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1996 and served as the basis for the definition of a project to conduct works on the emergency phase of Yaoundé City Rainwater Drainage which mainly comprises the re-calibration of the Mfoundi and cleaning of the collectors. An update of the engineering designs of the project was also financed by the Bank in 2002 out of the PPF funds to the tune of UA 400 000. 1.7 This report was prepared following the Bank’s appraisal mission fielded in April 2005. In a concern to better take into account the requirements of stakeholders, priority was given to the results-based management approach (RBM) during project appraisal. This exercise made it possible through several meetings and participatory seminars, to define the project’s logical framework with the participation of the representatives of the population, the associations of the areas concerned by the project, the NGOs, the private sector, the technical ministries and donors present in Yaoundé. 2. WATER AND SANITATION SECTOR 2.1. Sector Characteristics
2.1.1. Cameroon covers an area of 475 445 km². It geographic location means a large climatic and plant variety as well as diverse human settlements. In 2002, its population was estimated at about 16 million inhabitants for an average density of 33.1 inhab./km². The urban population represents 52.8% of the total population and population growth in Cameroon’s urban area is rather high at around 6% in Yaoundé. 2.1.2 Cameroon is well-watered with uneven rainfall countrywide. From the coastal South to the North, rains vary from 500 to 5000 millimeters. The region of Debunsha on the Western slope of Mount Cameroon receives 10,000 to 12,000 millimeters a year. The drainage pattern is rather important and organized around 5 large catchment basins – the Lake Chad, the Niger, the Congo, the Sanaga and the coastal river basins. The country boasts major underground water resources distributed over the country’s main water bearing zones. In all, the country embodies at least 120 billion m3 of usable underground water resources unevenly distributed. The underground water resources are the main source of drinking water supply in the rural areas. 2.1.3 Cameroon’s population with access to safe water is estimated at 57.8%. The urban estimate is 77%. In the rural area, rural water supply projects have made it possible to reach a service rate of 42%. Most of the population has only difficult access to sanitation services, especially the poorest who live in areas with little infrastructure. Indeed, the population’s access rate to adequate waste water drainage systems is estimated at 17% in the urban area and 15% in the rural area. Where they do exist, such systems are made up mainly of natural canals (rivers mostly) or underground outlets also used to evacuate household garbage, solid waste and waste water which stagnate and end up clogging the systems and causing floods during the rainy season. Concerning the disposal of solid waste, only 6 towns (Douala, Yaoundé, Edea, Penja, Njombe, Soa and Mbalmayo) have a solid waste disposal system managed by the private sector (HYSACAM). Elsewhere in the country, the communes are responsible for household garbage. It is common to see riparian populations dumping waste of all sorts into marshlands and water courses.
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2.2 Legal, Regulatory and Institutional Framework
Legal and Regulatory Framework 2.2.1 The water sector is governed by decree n° 98/005 of 14 April 1998 that lays down rules for the water system and entered into force in May 2001. Several enabling decrees have been made public with a view to setting out and regulating: i) the responsibilities, organization and running of the National Water Commission; ii) the conditions of appointment of employees authorized to inspect and supervise water quality; iii) the protection area around the intake, treatment and storage points for drinking water; iv) the terms and conditions for abstracting surface and ground water for industrial and commercial purposes; and v) the conditions for protecting surface and ground water from pollution. 2.2.2 The sanitation sector is governed by: (i) Decree N°96/12 of 5 August 1996 aimed at the protection and rational management of environmental resources; (ii) Law 87/15 of 15 July 1987 which defines the respective missions of the urban communities and the district urban communes; (iii) Decrees N° 2004/017 of 22 July 2004 governing decentralization and N° 2004/018 of 22 July 2004 laying down the regulations applicable to the communes. The texts confer on the communes a major responsibility in sanitation. Indeed, structural infrastructure such as sanitation, refuse disposal, road system and good health and hygiene are the responsibility of the urban communities. To these texts must be added Decree N° 2004/320 of 8 December 2004 relative to the Government organization which assigns specific responsibilities to various ministries involved in the sector.
Institutional Framework 2.2.3 Several players are involved in the sector’s management. These include not only public and private structures but also civil society. The sector’s coordination is the onus of the Ministry of Water Resources and Energy (MINEE) which is in charge of designing, preparing, applying the national policy, coordinating and monitoring operations and projects concerning water and sanitation in the urban and rural areas. It is also responsible for planning projects and making an inventory of water resources and for helping to fix water and sanitation rates. MINEE’s Sub-Directorate for Water Management is responsible mainly for the inventory and protection of water resources, the control of water quality standards, the preparation of concession agreements and the supervision of licensees as well as for laying down pricing conditions. The Unit of Designs and Standardization is, for its part, responsible for preparing the legal framework governing the drinking water and sanitation sub-sector. In the sanitation sub-sector, MINNE’s responsibility is limited to the management of waste water and the control of classified establishments. These duties are carried out on the ground by the Sub-Directorate for Sanitation. The Ministry is also in charge of the technical supervision of Cameroon’s National Water Board (SNEC), a parastatal entrusted the duties of production, transportation and marketing of water in urban centers. 2.2.4 The Ministry of Urban Development and Housing (MINDUH) has been commissioned to implement the national urban development and housing policy. The Urban and Rural Land Development Mission (MAETUR), under the supervision of the Ministry of Land and Estate Issues (MINDAF), is responsible for putting in place water supply and sanitation systems in the low-cost housing estates. The Ministry of Territorial Administration and Decentralization is involved in the sanitation sub-sector through the Directorate of Local Public Authorities which is responsible, among other things, for monitoring all activities
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designed to improve the living environment and quality of life in both urban and rural areas. This Ministry is in charge of the administrative supervision of the district communes (CA) and the urban communities (CU), including that of Yaoundé (CUY). The Ministry of Public Health oversees the implementation of Government’s hygiene and sanitation policy. To that end, it is charged with promoting hygiene measures for the benefit of the urban authorities and the population. 2.2.5 Other Ministries with cross-cutting missions are involved in the preparation and implementation of the Government’s water and sanitation policy. This is the case in particular of the Ministry of the Economy and Finance in all matters pertaining to the preparation, monitoring and inspection of the sector’s budget implementation. The Ministry of Planning, Development and Territorial Planning in its capacity as the structure in charge of coordinating sectoral policies, takes part in the definition of public investment expenditure guidelines. The Ministry of Trade helps to fix water rates, and the Ministry of Livestock, Fisheries and Animal Industry gives the rural populations support by installing drinking water points for cattle. 2.2.6 The Urban Communities (CU) are responsible for managing sanitation services and the use of equipment. They are required to ensure technical compliance of sanitation installations and private enterprises charged with the collection and disposal of refuse and night soil. The CU’s areas of intervention are: (i) town planning and urban development; (ii) community utilities and infrastructure; (iii) drinking water supply and sanitation; and (iv) hygiene and health. They may carry out these same tasks or call on service providers by virtue of a contract. 2.3 Constraints to the Sector Development 2.3.1 The water and sanitation sub-sector is faced with institutional, technical and financial constraints. The main institutional constraint stems from the large number of sector players, leading sometimes to fragmentation and overlapping of responsibilities and poor coordination of their operations. In the area of water, the National Water Committee (CNE), established by decree to coordinate the water sub-sector activities, is not yet operational. Regarding urban sanitation, interventions of the following bodies are similar and uncoordinated: the urban communities, the Ministry of Public Works, the Ministry of Urban Development and Housing (MINDUH) and some NGOs involved in the construction of tertiary structures. However, rain drainage is the responsibility of the urban communities. 2.3.2 On the technical front, there are weaknesses in the management of sanitation infrastructure and services. The municipal technical departments, local contractors and consulting firms often lack the necessary skills to successfully conduct studies and works, especially the design and implementation of labor intensive works. Moreover, the CUY lacks up-to-date data to efficiently monitor/evaluate projects. The CUY has since 1998, been provided with an urban observatory (OU) established with funding from French Cooperation and which employs 5 engineers and two technicians. It has a Geographic Information System (GIS) to manage and monitor urban space occupancy. However, the Observatory does not have the required know-how and information technology for monitoring/evaluating projects implemented within the Yaoundé urban space. Poor institutional and human capacity at the levels of elected officials, officers and other sector players, together with lack of project monitoring/evaluation hinder the sector’s development.
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2.3.3 Lack of adequate funding for the sector is also a major obstacle to its development. In the context of decentralization, the transfer of skills in favor of the communities has not been accompanied by adequate allocation of financial resources to enable them assume the duties entrusted them. Indeed, the resources of Cameroon’s communes combined represented barely 2% of the 2002 budget. Nonetheless, the Government’s project to introduce a National Water and Sanitation Fund which expected to mobilize resources for the sector, will contribute in the long run to lifting the constraints facing the use and management of sanitation structures. Moreover, the introduction of enabling texts to concretize the decentralization option chosen by the Government will help to clarify responsibilities in the management of the DWSS service. 2.4 Government Policies and Strategies 2.4.1 In Cameroon’s Poverty Reduction Strategy Paper (PRSP 2003), the water and sanitation sector is listed under the thrusts of Pillar II, which aim to develop the infrastructure that contributes to economic growth and poverty reduction. The new national DWSS policy which is being prepared incorporates the guiding principles of the Millennium Development Goals. The main lines of this policy are hinged on the following axes: (i) promoting access to drinking water for all Cameroonians by 2025; (ii) promoting a demand- driven approach to the supply of DWSS services; (iii) decentralizing planning and management of drinking water supply and sanitation services; iv) building capacity; (v) redefining the role of various institutions involved in the water and sanitation services in view of greater population participation; (vi) supporting the private sector; and (vii) redeploying the private sector as facilitator. The preparation of this new policy and its translation into the 2005-2015 investment plan is ongoing, with financial assistance from the French Development Agency (AFD). 2.4.2 Furthermore, the Government has defined the public sector guidelines for the DWSS sub-sector with as the main thrust a redefinition of the role and responsibilities of the Government in the management of infrastructure and basic services, especially in the rural area. This will imply replacing the supply-based approach by the demand-based approach which takes into consideration the needs of the population especially the most underprivileged. In the short-term, the Government’s strategy will become operational through the partnership of the three lead urban development actors: the urban territorial authorities, the private sector and civil society, within the context of the “Urban Contract” concept. The urban contracts are an institutional mechanism which enables the Government and local authorities to jointly express their town development thrusts and to facilitate the effective introduction of crossed financing. It is the instrument whereby partners undertake to apply the credit allocated to urban development. The Government claimed ownership of this mechanism during a national workshop organized with the assistance of the World Bank and French Cooperation in June 2003. 2.4.3 In the context of this participatory management policy, the urban communities, in partnership with grassroot communities and the private sector, undertake to join the population in establishing and maintaining infrastructure. This new approach which has donor support (World Bank and French Development Agency), aims at creating jobs in order to limit urban poverty through the use of labor intensive techniques, the rapid implementation of infrastructure and ownership of the outputs by the beneficiaries to enable their sustainability.
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2.5 Donor Intervention 2.5.1 In addition to the Bank, several bilateral and multilateral donors are involved in the water and sanitation sector, especially: the Japanese Government, the French Development Agency (AFD), the Islamic Development Bank (IDB), Belgian Technical Cooperation, KFW, the European Union, German Cooperation (GTZ), the Canadian International Development Agency (CIDA), United Nations Agencies like the UNDP, UNICEF, NGOs and various associations. 2.5.2 The World Bank is involved in a similar project in Douala (Douala Infrastructure Project) which concerns roads, the road network and sanitation, and has granted USD 56.35 million for its implementation. The project is managed by the Douala Urban Community (CUD) in keeping with the Government’s decentralization policy and consistent with the Douala City Contract signed by the Government and CUD. AFD is involved in rural water supply projects and has also contributed funds for the rehabilitation of Yaoundé deteriorated road network. It is currently backing the update and establishment of the Government’s water and sanitation sector policy. 2.5.3 The IDB funds rural water supply projects. Belgium’s Technical Cooperation Department also finances rural water supply projects especially in the far North and projects to rehabilitate and extend water and rainwater drainage systems in Maroua. In addition to rural water supply, KFW has financed DWS in 4 secondary towns. The EU has just launched its “EU-ACP Water Facility”. CIDA is involved in a drinking water supply and community health project in Adamaoua. NGOs are active mainly in the supply of water to the rural area. UN- HABITAT will finance a drinking water and sanitation project in the cities of Douala, Yaoundé and Edea which is consistent with the implementation of its program “Water for African Cities, Phase II » (WAC II). 2.5.4 The Bank is also involved in the drinking water supply and sanitation sector as well as in other development activities (see Bank Group Operations, Annex 10). It has financed 5 operations (2 projects and 3 studies) in the DWSS sector for a total of UA 19 million. The last operation financed by the Bank in the sector concerns the use of UA 400 000 from the Project Preparation Financing Mechanism (PPF), for the preparation of a rural poverty reduction project of which this project is an offshoot. 2.5.5 The Bank conducted a portfolio review in Cameroon in November 2003 which had made it possible to identify general issues arising from: i) the delay in the signing and entry into force of loan agreements; ii) delay in meeting the conditions precedent to first disbursement; ii) inadequate management and slow progress of projects; iv) poor disbursement and financial management of projects; and v) difficulties encountered during the procurement process. To address them, the proposal was made to examine the possibility of organizing seminars to familiarize project implementation units and procurement commissions with Bank policies and procedures. To that end, the Bank organized a video- conference in June 2004 and two seminars in February/March 2005 on Bank procurement and disbursement procedures. Several measures had been proposed and been the subject of an action plan aimed in particular at accelerating the implementation of active projects through close monitoring, and facilitating the start-up of approved operations. These measures include; (i) the establishment of a focal point in each administration involved in the preparation of documents relative to loan effectiveness, soon after project approval; ii) systematic preparation of the procedures manual for project management; (iii) audit of
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project accounts and finance by an independent audit firm selected through competitive bidding; and (iv) computerization of project financial and accounting activities and assigning an accountant to the project teams. All these measures are covered by this project. Moreover, the opening of the National Program Office in March 2004 has made it possible to help improve the portfolio’s performance. Lastly, the decision taken by the Boards to open a field office in Cameroon, in 2006, the establishment agreement of which was signed in November 2004, should contribute to further improve implementation of Bank operations. 3. THE SANITATION SUB-SECTOR 3.1 Rainwater and Waste Water Drainage 3.1.1 The rainwater evacuation systems are rather limited in Cameroon. In the cities, the drainage systems are made up mostly of natural canals (rivers in particular) and existing structures are linked to road works. However, once built, drains and ditches are seldom maintained, and are used as solid waste and waste water dumps. The systems designed specifically for the disposal of waste water are limited to Cameroon’s cities as individual sanitation took priority over collective sanitation. 3.1.2 The quantities of rain water that fall yearly on Yaoundé City (about 2 000 mm/year) are drained by: (i) a “primary system” made up principally of a very dense hydrographic network dominated by the Mfoundi (main collector of Yaoundé run-off water); (ii) a secondary and tertiary system limited to a few sectors of the city; (iii) partial rain water drainage systems built in housing estates implemented by the Urban and Rural Land Development Mission (MAETUR) and the Real Estate Company of Cameroon (SIC). Rain water drainage structures comprise mainly open air canal and underground collectors (natural water courses: Mfoundi, Ekozoa and Dioungolo) and embedded pipes. The open canals, natural water course flows, sometimes used as refuse dumps (household garbage, industrial and domestic sewage, vehicle drainage oil) and collectors of waste water/human waste, also account annually for considerable amounts of sand and mud during the rainy season (10 000 to 20 000 m3 of mud and waste matter) which obstruct the normal flow of runoff water, causing floods and considerable damage. Maintenance of this sanitation system is the responsibility of the technical services of the Yaoundé Urban Community (CUY). Its weakness and poor state causes fifteen to twenty (15 to 20) major floods a year and the attendant heavy material and human loss.
3.1.3 Yaoundé City has a general household sewage water drainage system. Nonetheless, the Real Estate Company of Cameroon (SIC) has established collective sewage water drainage systems in some homes that it manages. Sewage is disposed of through various collective (collective system with or without treatment stations) and individual systems (simple latrines, septic tanks with cesspits) which function badly and contribute rather to polluting the environment and being a public health hazard. 3.2 Solid Waste Disposal Yaoundé accounts for 1.5 million inhabitants and about 1 300 tons of household solid waste per day. About 40% of this garbage is collected by a private firm Hygiène et Salubrité du Cameroon (HYSACAM) because it has only a few trucks and can access only a few roads. Except in rare cases, there is no organized system that makes it possible to introduce and ensure pre-disposal of solid waste in inaccessible neighborhoods. Owing to
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distance from the disposal routes, a good majority of the population dispose of their garbage in the city’s marshlands and water courses. To control such practices, a primary disposal system using intermediary means of transport such as wheel barrows, push carts, etc., could help open up isolated areas to operators such as NGOs and local associations at low costs. 3.3 Sub-sector Institutions The Yaoundé Urban Community (CUY)
3.3.1 The Yaoundé Urban Community was established by Decree 87/015 of 15 July 1987. It is endowed with a legal personality and financial autonomy. It manages local affairs under the supervision of the Government for the economic, social and cultural development of its population. The organs of the CUY are the Community Council (the deliberative body) and the Government’s Delegate and his Deputy Delegates (the Executive Organ). It is managed by a 36-member Community Council and comprises 6 district communes (CA). The CUY is in charge of ensuring the security and convenience of the streets, quays and communal public highways by cleaning, lighting, removing all cluttering objects from them and taking the necessary public health and hygiene measures, especially to control the disposal of solid waste, the installation and repairs of standpipes, pipes, sewers, latrines, etc. To that end, the CUY is required to maintain the Yaoundé City road and sanitation system. CUY’s organization chart is given as Annex N°2. It shows three main directorates: financial and economic affairs, administrative and legal affairs and technical services. The Government’s Delegate is assisted by a Secretary-General and support services: financial control, municipal revenue, stock accounting, management control, public relations, etc. 3.3.2 At end 2004, CUY was 2 028 strong including 7% professional staff, 29% supervisory staff and 65% line staff. Women represent about 25% of all staff, including 28 professionals. The supervisory ratio is as follows: one (1) professional for four (4) supervisory staff; one (1) professional for ten (10) line staff; and one (1) employee for (2) line staff. These ratios indicate significant quality in the rate of staff supervision in the Community. Table 3.1 below shows CUY’s staff composition as at 31 January 2005.
Table 3.1 CUY’s Overall Staffing
Category Female Male Total Professionals 28 104 132 Supervisory Staff
219 361 580
Line Staff 270 1046 1316 Total 517 1511 2028 % 25 75 100
CUY’s Accounts
3.3.3 The Community’s budget is a function whereby its revenue and expenditure are projected and authorized. The Community’s revenue comprises: i) fiscal revenue; ii) proceeds from the use of the land and communal services; iii) refunds, taxes and fines by the Government; and iv) sundry and accidental revenue. The CUY’s expenditure concerns compulsory expenses that are budgeted because imposed by law or required for the running of a public service of the
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Community, and optional expenses that can be temporarily or permanently stopped when the Commune’s funds are low. The CUY’s expenses comprise: i) staff expenses; ii) services to the population (consumption of water and electricity and disposal of solid waste); iii) allocations to the CAs; and iv) the CUY’s road maintenance account. CUY’s accounts are audited by an external auditor every financial year. Table 3.2 below shows the projections for CUY’s main 2005-2010 budget.
Table 3.2 CUY’s Main Budget (CFAF million)
Item/Year 2005 2006 2007 2008 2009 2010 Current Revenue 6 131 6 314 6 504 6 699 6900 7107 Additional Tax 3 996 4 058 4 115 4 613 4751 4894 Direct Taxation 1 006 1 100 1 203 1 317 1357 1397 Indirect Communal Taxation
929 957 985 1 015 1045 1077
Other 200 200 200 200 206 212 Management Expenditure 4037 3253 3327 3404 4701 4843 Staff 773 797 821 846 871 898 Services to the Population 850 855 861 866 892 919 Subsidies and Contributions
723 723 723 723 745 767
Road maintenance account 855 1 090 1 124 1 160 1195 1231 Other Expenses 836 878 922 969 998 1028 Surplus 2094 3061 3177 3295 2199 2264
3.3.4 Table 3.2 reveals that CUY’s consolidated revenue for the 2005-2010 period tend to increase because of the very rapid growth of the revenue generated from additional tax and direct taxation (48% and 52%, respectively, during the period), as well as under the combined effects of better recovery and resumption of economic activities. These projections are based on:
i. A standardized payment of additional tax (VAT, corporate tax, income tax,
etc.); ii. An increase in direct taxation (business licenses, transfer taxes, direct
communal taxes and property taxes); iii. An increase in indirect local taxes (proceeds from markets and bus stations,
bus station and parking leases, driver’s licenses, etc.). 3.3.5 However, although these management expenditures increase by 35% during the period under review, CUY staff expenses increase only by 20%, or by an annual average of 3%. The other sources of management expenditure growth are those for the supply of services to the population (consumption of water/electricity and allocation to HYSACAM for solid waste disposal), subsidies to six (6) CAs and the road maintenance account which registers a rise of 71% during the period under review. To conclude, it must be pointed out that CUY’s main budget is positive and remains stable throughout the period in question. The CUY is in a position to make investments scheduled for the 2005-2010 period.
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3.3.6 Furthermore, Table 3.2 above reveals a surplus of the CUY’s main budget throughout the period under review owing to the Government’s late payments of amounts owed to the Community. Indeed, communal taxation is in addition to State taxation. Moreover, the State is responsible for recovering and forwarding to the Municipal Authorities the amounts owed. Such payments are made sometimes at the end of the year, when it is certain that funds are available for the expenditures to be committed in compliance with the Contract Code. As a result of the caution surrounding CUY’s commitments, late payments of fiscal revenue means they remain unspent, hence the budget surpluses seen in the table. These surpluses are paid into the subsequent budget in the form of a budget supplement or special expenditure authorizations. Thus, the surplus of financial year N-1 is brought over to the budget of the current financial year.
City Contract 3.3.7 In the context of funding the Yaoundé Highway Rehabilitation Project by the French Development Agency (AFD), a contract of agreed objectives was signed in 1999 between the State and CUY. In a more global context, a city contract is about to be signed by both parties for the 2006-2010 period. A similar contract was signed by the Government and the Douala Urban Community. Proof of the signature of this contract is a grant condition. The Yaoundé City Contract is in keeping with the integrated urban development strategy as defined in the PRSP, that is to say: i) strengthening the economic role of the towns by extending, rehabilitating and maintaining urban infrastructure; and ii) improving the living conditions of the urban population most of whom live in precarious conditions. The objectives of the contract are:
i) Fix the strategic thrusts of urban development by programming the overhaul of the city’s infrastructure and the priority actions that will enable better living conditions in the neighborhoods;
ii) Continue efforts by the CUY and the Government to improve their financial relations (managing additional communal tax, reducing cross debts, financing projects, etc.);
iii) Strengthen the maintenance programming and financing launched in 1999 through CUY’s road maintenance account.
Road Maintenance Account (CEV)
3.3.8 The Road Maintenance Account (CEV) is a mechanism put in place since the first City Contract in December 1999 with the purpose of securing at the best financial conditions, the necessary funds for implementing CUY’s annual road maintenance program. This account is operated under the double signature of the Government’s Delegate at the CUY and the Municipal Collector. The funds allocated to the CEV are exclusively for paying expenses relating to routine and periodic maintenance of priority highways, sanitation structures (cleaning of drains and collectors), etc. The CEV’s financial sources are:
i) CUY’s Capital Base: the equivalent of a minimum of 15% of the current
revenue recovered during financial year N-2 (the corresponding projected amounts are indicated in table 3.3 below);
ii) Government Allocation: a Government allocation absorbs in part CUY’s
claims on the Government in accordance with the agreement for the treatment of crossed debts, with the objective of restructuring CUY’s finances and
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repayment of Government debts owed to the CUY. These debts are made up primarily of: i) recovery from business taxes, licenses, direct community taxes, etc.; ii) replenishment of transfer taxes on sale and lease of buildings, supplementary surcharge and property tax; iii) replenishment of the base deduction for additional tax against recovery on VAT, income tax etc.; and iv) the balance from the implementation of the Objective Contract. At the time of the signature of the agreement (1 June 2004), the balance of the Government’s outstanding debt to the CUY after compensation stood at about CFAF 11 billion, including CFAF 5.826 billion to be paid into the CUY’s Road maintenance accounts to the tune of CFAF 160 million a month for 3 years.
iii) Fee for Road Surface Damage: this is a fee paid to CUY for the damage of the road surface during electrification and water supply works, etc. The proceeds of this fee are paid into the CEV and allocated to the related expenses according to the prescribed procedure.
iv) Other Resources: the CEV can receive all other resources meant for the
financing of highway or drainage operations whether paid by the CUY, the Government or other external partners.
3.3.9 Table 3.3 below makes projections for the CEV. It shows that as of 2008, the road maintenance budget will be replenished mainly by payment from the CUY’s main budget or about 15% of the revenue for year N-2. Indeed, processing of CUY’s claim on the Government in accordance with the agreement on the processing of crossed debts, with the prospect of restructuring the CUY’s finances and repayment of the Government’s debt to the CUY, will be completed (see 3.3.6 ii). However, the projections of the table below show an increase in the amount earmarked for the CEV which will cover the maintenance charges of the project infrastructure estimated at CFAF 55 million a year, whereas the commune currently spends about CFAF 106 million for activities relating to rainwater drainage. In addition, it should be pointed out that CUY’s main budget remained positive during the period under review and additional resources could be allocated to sanitation work in Yaoundé City if necessary.
Table 3.3
Road Maintenance Account (CFAF million) Item/Year 2005 2006 2007 2008 2009 2010 Revenue 2203 2518 2507 1160 1195 1231 Govt. Payment 1 323 1 323 1 323 --- ---- ---- % HIPC (C2D1 - France) 25 105 60 Main Budget Payment 855 1 090 1 124 1 160 1195 1231 Expenditure 2 203 2 518 2 507 1 160 1195 1231 - Road Works 1 762 2 014 2 006 928 956 985 Highway Equipment 110 126 125 58 60 60 Works on Force Account 330 378 376 174 179 185
3.3.10 CEV’s modus operandi is governed by Decree Nº 90/57 of 19 December 1990 which authorizes the communes to open bank accounts to manage the funds intended for financing specific projects and keep separate accounts to run the projects concerned. Procedures for 1 C2D = Debt Settlement and Development Contract. French bilateral cooperation under the Heavily Indebted Poor Country (HIPC) Initiative
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monitoring operations, organizing accounts, and controlling expenditures are governed by general public management regulations. Implementation of the city contract is evaluated through a CEV technical and financial audit and based on compliance with the commitments of the contracting parties involved annually. It is in that context that an independent audit firm was selected through competitive bidding to audit CEV’s previous financial years. In the conduct of his mission, the auditor details revenue and expenditure movements registered in the road maintenance account. He controls the conditions of its replenishment against the terms laid down in the contract. He also checks consistency and compliance of the procedures adopted for the running the CEV, the efficiency of the works, the launch of operations and completion of works launched. 3.3.11 Upon analysis of the documents received and the technical survey not only of the players but also of the structures built in the last three years, the auditor concluded that in compliance with the Contract of Agreed Objectives, the CUY has put in place technical and financial mechanisms that allow for the maintenance of road and sanitation infrastructure of Yaoundé City. By and large, AFD has finished its contribution as provided for in the Contract of Agreed Objectives. CUY’S contribution has always been satisfactory except that the monthly payment period was not complied with, although that did not disrupt the implementation of the maintenance program. The Government has paid the entire contribution expected; again the monthly payment period was not complied, but the amount paid each time corresponded to the required monthly allocation. The works announced were carried out and all were subject to control reports signed by the Director of Technical Services, the Manager concerned and the Chief Operator of Stock Accounting. Field visits revealed the efficacy of the works which have considerably improved the living conditions of the population. Efforts are made for preventive road maintenance by cleaning drains, building rainwater drainage structures, etc. According to the auditor, both the Government and the CUY fulfilled their commitments concerning the replenishment of the CEV. 3.3.12 Nonetheless, the auditor identified some weaknesses in the routine management of the CEV. Thus, to improve the CUY’s performance in the management of the CEV, the auditor is recommending building the capacity of the staff to monitor and adequately file dossiers, comply with the procurement procedure in force so as to avoid contract splitting, more dynamism in the monitoring and recovery of road surface degradation charges as well as transparency in the payment in cash of certain services. This method of payment should be an exception, the rule being payment by check or bank transfer. 3.3.13 The above recommendations will be taken into account during implementation of this project through the application of Bank procurement and disbursement procedures. Furthermore, an accountant will be assigned to the project implementation unit and will be responsible, alongside the CUY’s Directorate of Financial and Economic Affairs, for the project’s financial management. A quarterly project progress report will be submitted to the Bank which should enable identification and monitoring of expenses by component, expenditure category and financing source. A financial audit of project accounts will be carried out at the end of every financial year to ensure the proper conduct of the project’s financial activities. Other Stakeholders 3.3.14 The other stakeholders involved in sanitation are: HYSACAM, NGOs and district associations. The Société Hygiène et Salubrité du Cameroun (Hygiene and Health Company of Cameroon, HYSACAM), is a private company specialized in the disposal of solid
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waste. It started its activities in the town of Douala in 1969. It currently handles solid waste disposal in the towns of Douala, Yaoundé, Edea, Penja, Njombe, Soa and Mbalmayo. It accounts for a little over 1 100 employees, 112 vehicles and engines (specialized trucks, 4 street cleaning machines, 2 garbage compactors, etc.). It collects about 1500 tons of garbage a day with a 24H non-stop service. In Yaoundé, HYSACAM collects and transports about 800 tons of garbage a day, processes household refuse, sweeps streets, public places and the city’s markets. The company has in recent years teamed up with Associations and NGOs for the pre-disposal of household refuse. 3.3.15 Indeed, in Yaoundé associational life has gained impetus. Numerous NGOs and development associations are already active in the pre-disposal of solid waste in the city’s neighborhoods. Other local SMEs are involved in the maintenance of rainwater drainage systems (scouring and cleaning) and public gardens by virtue of maintenance contracts with the CUY. These grassroot organizations have put in place pre-disposal systems whereby refuse is collected from door to door with the help of carts, then deposited in intermediary dumps or large refuse bins in order to facilitate removal by HYSACAM. In some cases, part of the refuse is recycled into manure and sold on the market. However, the system’s sustainability is hindered by: (i) low contributions from the population most of whom are poor; (ii) non-remuneration by the CUY as it does not consider this service as part of the city’s general refuse disposal system; (iii) only some of the city’s neighborhoods are covered; (iv) lack of coordination and standardization of the initiatives by the NGOs and associations responsible for pre-disposal. 4. THE PROJECT 4.1 Project Design and Rationale 4.1.1 The absence of a consistent and well-maintained rainwater drainage system leads to floods in Yaoundé City during the rainy season, with the attendant death toll, economic and urban property loss. The Mfoundi Canal (the city’s main drainage system) has with time become a real container for household refuse, industrial waste, domestic and industrial sewage and excreta from the uncontrolled housing areas. This waste accumulates at the top end of the underground canals of the Mfoundi and its affluents, obstructing the normal flow of runoff water. 4.1.2 During heavy rains, the water flow of some sections of river Mfoundi - Yaoundé City’s main drainage system - can rise from 11 m3 to 226.5 m3/second. This significant increase in the water flow and the clogging of the drainage systems by rubbish are the reasons behind the regular floods in the city. Therefore, the recalibration of the Mfoundi River profile seems a prerequisite to any other development concerning rainwater drainage in Yaoundé City. It has been decided that the bottom of the canal will be concrete and the upper part in rubble laid manually. 4.1.3 This project was designed mainly to ensure adequate rainwater drainage in Yaoundé City. In 1996, the Bank Group assisted the Government with the Yaoundé City Sanitation Master Plan (PDA) which shows the need to implement the emergency phase of Yaoundé rainwater drainage. Subsequently, an advance for the project preparation financing (PPF) was granted the Government in 2002 to: (i) update the detailed engineering designs as well as the bidding documents of the first priority tranche for the city’s rainwater drainage defined by the PDA for Yaoundé; (ii) define the methodology and action plan for the use of
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labor intensive works; (iii) study the environmental impact of the emergency rainwater drainage measures; and (iv) sensitize and inform various stakeholders (authorities, communities, NGOs, individuals, etc.), likely to be involved in the project’s implementation. It will be recalled that in the context of decentralization, AFD and the World Bank are already involved in the same context in Douala. 4.1.4 The results-based management approach (RBM) reigned throughout project preparation, in all actions and at all levels of consultation with the project’s stakeholders namely, the technical services (Ministries and CUY), NGOs, district associations, the private sector and beneficiary population. A participatory seminar (46 participants) based on the RBM approach was organized during the project appraisal mission. The objective of this seminar was to define activities, outputs and achievements expected of the project as well as identify and manage risks. These consultations made it possible to outline the framework for strategic outcomes (project logical framework), the institutional mechanism, (Annex 3), the logical chain of project outcomes (Annex N°4) and the project’s monitoring/evaluation framework (Annex 5 and paragraph 5.6). In addition, within the framework of the participatory approach during the project’s implementation, a system will be introduced to monitor and evaluate project achievements, with a view to providing maximum assurance for the viability and sustainability of the outputs. All project stakeholders (populations, CUY, NGOs, district associations, private sector) will be organized into a monitoring and consultative committee (CSC) to follow-up project outputs and consider the establishment and operation of mechanisms that would ensure the sustainability of project achievements. 4.1.5 The project concept also takes into account accommodating measures to help reduce poverty and enhance the living conditions of the population by: (i) improving the areas around the canal (paved footpaths, planting trees, public gardens, installing public lighting, etc.) in order prevent the throwing of refuse into the canal; (ii) implementing works using labor intensive methods; and (iii) developing income-generating activities, involving local groups in the project area in the pre-disposal of waste and by executing micro-projects along the canal (developing parking areas and shelters). 4.1.6. Furthermore, the main lessons learnt from various interventions of the sector’s donors were taken into account in the design of this project. These lessons can be summarized as follows; i) the implementation of infrastructure projects within the framework of the ongoing decentralization in the country; ii) capacity building of local stakeholders (grassroot and urban communities [CU]) so that they can fully play their new project management role; iii) human resources capacity building at central administration level; iv) follow-up of procurement of goods, works and services at the level of the ministerial procurement committees to prevent delays in the procurement process. All these measures are reflected in this project. 4.2. Project Area and Beneficiaries 4.2.1 Located for the most part in the Mfoundi catchment basin, the project area covers the entire city of Yaoundé. Mfoundi’s hydrographic network which defines the backbone of the sanitation system is particularly dense and accounts for most of the city’s rainwater drainage. The total population of Yaoundé City (the country’s political capital) is estimated at about 1.5 million inhabitants, including 749 454 women (49.96%). Several of the country’s socio-economic activities are concentrated in Yaoundé (2687 industries, 9000 stores, 395 health facilities including health centers and hospitals, laboratories and
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pharmacies, 503 educational institutions, etc.). It must be pointed out that activity in the health centers and hospitals has increased greatly because of the high demand for health care from the low-income earners living in the popular and unregulated areas where 60% of the total population live. The industrial sector is undeveloped. Indeed, only 20% of the companies registered in Yaoundé are considered as large industries whereas the rest fall under the small-scale industry and informal sector. 4.2.2 The area to be directly affected by the project’s positive impact comprises nine (9) neighborhoods within the city centre and five (5) neighborhoods in the vicinity of the Mfoundi Canal totaling a population of 517 372 people. The city centre district stretches over an area of nearly 9 Km2 and consists of the following neighborhoods: Briqueterie, NlongKak, Etoa-Meki, Messa, Elig-Essono, le Lac, Mvog-Ada, Nkolo-Ewone and the Administrative Centre. The following five other neighborhoods are highly urbanized: Mvog- Mbi, Mvog-Atangana-Mbala, Ndamvout, Dakar and Nsam. 4.2.3 Apart from the city centre where most of the organized trading activities are located, the floodable areas are situated for the most part in the marshlands of the valleys inhabited mostly by poor families. According to the Survey on the Living Environment of Yaoundé Population, around 53 000 people (or about 9 000 households) are regularly flooded and 243 000 (or about 40 000 households) are occasionally flooded in the project impact area every year. Most of the areas located along the canal do not only lack basic infrastructure but are isolated and cannot be reached by the refuse disposal trucks. Consequently, apart from a few households which use the solid waste pre-disposal services of associations and NGOs, a good many households dispose of their refuse in the wilds (vacant land, ditches, roads and into river Mfoundi). This unhealthy environment causes: (i) the proliferation of mosquitoes and therefore the spread of waterborne diseases; (ii) serious pollution of the Mfoundi which waters the city, with repercussions on the quality of raw water at the intake facility supplying Yaoundé City with drinking water; and (iii) very serious consequences economically and socially (destruction of houses and property, erosion, subsidence, landslides, loss of lives, traffic disruptions, etc.). 4.2.4 The main project beneficiaries are: (i) the people of the project impact area who will learn more about good hygiene, enjoy healthier surroundings and more jobs during the construction, operation and maintenance works on the project structures; (ii) a better environment through less pollution of River Mfoundi and its affluents ; (iii) the district communes (CA) and the Yaoundé Urban Community (CUY), whose main rainwater drainage system will be rehabilitated and improved; (iv) the capacity of small- and medium-scale local enterprises (SME) and consulting firms (BE) to engineer and implement works will improve through training and participation in works execution; (v) local NGOs and associations that will be trained and given impetus to carry out solid waste pre-disposal operations and implement certain tasks in the context of the LI approach, as well as maintain the landscaping implemented under the project; and (vi) national and international firms that will be awarded contracts for the provision of goods, works and services for implementation of the project’s various components. 4.3. Project’s Strategic Context 4.3.1 The project is in line with Cameroon strategy framework as set out in the Poverty Reduction Strategy Paper (PRSP) approved in July 2003 and hinged on the following main axes: (i) giving impetus to the private sector as engine of growth and partner in the supply of
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social services; (ii) development of basic infrastructure, natural resources and environmental protection; and (iii) strengthening of human resources and the social sector, and integration of the underprivileged groups into the economic fabric. In fact, the project will help to vitalize the private sector through maintenance works and construction of infrastructure, as well as the promotion and capacity building of SMEs involved in the sector. It is consistent with Government’s urban poverty reduction objectives through priority emergency actions in the sanitation sub-sector designed to address the health-damaging problems attendant on accelerated and uncontrolled urbanization of Cameroon’s cities. 4.3.2 The project is in keeping with Pillar II of the Bank’s strategy in Cameroon as laid down in the Results-Based Country Strategy (RBCSP). Indeed, Pillar II of the Bank’s strategy in Cameroon for the 2005-2009 period focuses on the development of infrastructure with a view to sustaining economic growth and promoting access to social services. In accordance with this Pillar, the project will help to make the living conditions of the people better by improving Yaoundé City’s rainwater drainage. 4.4. Project Objectives The project’s overriding objective is to contribute to poverty reduction in the urban area. Its specific objectives are to: (i) contribute to Yaoundé City rainwater drainage; (ii) improve the living conditions of the city’s population; and (iii) build the capacity of the sector’s stakeholders. 4.5 Description of Project Outputs The outcomes expected of project are: (i) a solution to the problem of flooding in Yaoundé, except in cases of exceptionally heavy rainfalls every decade; (ii) a better living environment for the city’s dwellers through the introduction of an operational solid waste pre-disposal system and development of green spaces; (iii) a drop in the current prevalence rate of diseases related to Yaoundé City’s sanitation; and (iv) training and organization of several district associations, local SMES and consulting firms. 4.6 Detailed Description of Project Components 4.6.1 The project comprises the following three components:
A. Sanitation infrastructure development; B. Capacity building; and C. Project management.
Component A: Sanitation Infrastructure Development 4.6.2 This component aims at solving the serious rainwater drainage problems facing Yaoundé City. In addition to rainwater drainage works, plans have been made for related infrastructure to improve the living environment of the city’s population and to prevent solid waste from being dumped into the canal.
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4.6.3 Services: the project will finance the services of a consulting firm to prepare the designs for the landscape along the Mfoundi Canal, including detailed engineering designs and bidding documents (paved footpaths, planting of trees and flowers, installation of public benches, lighting, shelters, and parking areas, etc.) 4.6.4 Works the sanitation works planned are: (i) construction of a trapezoidal (in parts rectangular) canal, 10.5 to 14 meters wide, 3.30 m high and 4.32 km long; (ii) construction of mechanical rakes at the top end of the canal at the level of the Mfoundi, Djoungolo and Ekozoa collectors, to prevent them from being clogged by solid waste in the future; (iii) cleaning and scouring of the three underground collectors (2.35 km) whose waters empty into the canal (Mfoundi, Njoungolo and Ekozoa); (iv) implementation of maintenance passages on either side of the canal; (v) construction of access ramps to enable inspection and maintenance of the structures; (vi) construction of 4 disposal structures at the level of the confluences which empty into the canal ; (vii) construction of two access gangways to enable people to cross the canal; (viii) construction of a rail bridge, a bridge for light vehicles, support structures and pipeline crossing. 4.6.5 The project will also contribute to financing related works designed to prevent solid waste from being dumped into the canal and improve the living conditions of Yaoundé City dwellers, namely: (i) landscaping the approaches of the canal (2 km of paved footpaths on either side of the canal or a total of 4 km, planting of trees and flowers, installation of 54 public benches, installation of public lighting, etc.); (ii) construction of two (2) parking areas of 400 m2; (iii) construction of two (2) shelters; and (i