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~-~: COUNTRY REPORT:CAMEROON

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SflvntnAda%NstI - - December,1998 -

824 CMY8

PAN’ AFRiCAN INSTiTUTE FORDEVELOPMENT - WEST AFRICA(PAID-WA)

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PAN AFRICAN INSTITUTE FOR DEVELOPMENT - WEST AFRICA(PAID-WA)

COUNTRY REPORTCAMEROON

LIBRARY IRC~oBox 93190, 2509 AD THE HAGUE

Tel : +31 7030689 80Fax: +31 70 35 89964

BARCODE: ~LO• ~

MAP OF C1AMEROOt~.J

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OTHER P~OVIi~JCES

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4L~AIV~4IAJA

TABLE OF CONTENT

PageList of Tables iiiList of Figures ivList of Acronyms V

Acknowledgement Vi

EXECUTIVE SUMMARY 1

CHAPTER ONE1.0 BRIEF DESCRIPTION OF COUNTRY 3

CHAPTER TWO2.0 METHODOLOGY 5

2• 1 ResearchDesign 52.2 Durationof the Study 52.3 DataCollectionMethods,InstrumentsandTeams 52.4 Sampling 62.5 DataCollectionProcedure 72.6 DataAnalysis 82.7 StrengthsandLimitationsof the Methodology 8

CHAPTER THREE3.0 FINDINGS 10

3.1 Introduction 103.2 Sustainability 103.2.1 Functionalityof systems 103.2.2 Effective communityfinancingof operationsandmaintenance 133.2.3 Effectivemanagementandparticipation 143.3 Impact 163.3.1 Effectiveuseof improvedservices:behaviourchange 163.3.2 Level of satisfaction 173.3.3 Perceptionson fulfilment of expectations - 183.4 Nationalpolicy support 203.5 Institutionalpolicy support 21

CHAPTER FOUR4.0 CONCLUSION 25

4.1 Conclusionsfrom the national policy 254.2 Conclusionsfrom institutionalpolicy/approaches 25 -

4.3 Conclusionsfrom field realities 264.4 Conclusionson assessmentfactors 26

PAID-WAWIDP/WB~tAM

4.4.1 Gender 264.4.2 Poverty 264.4.3 Participation 274.4.4 Demand-responsiveness 274.4.5 Sustainability 274.4.6 Impact 27

CHAPTER FIVE5.0 RECOMMENDATIONS 28

REFERENCES 29

AssessmentTeamandParticipatingInstitutionsDetailsof ParticipatingInstitutionsCommunityMaps:TransectWalk

ANNEXES:c.1C.2-C.3

30313236

‘I

PAID-WA UNDP/WBICAM

LIST OFTABLES

Table 1: Coverageofwatersupply

Table 2: Distributionof findingsin relationto availability andreliability of waterfromProjectimprovedsources

Table 3: Quality of waterfrom improvedsources

Table 4: Distributionof incomeandexpenditureof communitiesover the last3 full years(1995-1997) -

Table 5: Distributionof proportionsof non-payingandlate-payingcommunitymembersoverthe last 3 full years(1995-1997)

Table 6: Statusof Committees

Table 7: Sexdistributionof satisfactionwith the waterproject

Table 8: Sexandsocio-economicclassdistributionofpriority scoresfor anticipatedandachievedbenefitsfrom projectwater

Table 9: Participationagreementtexts

Table 10: Sectoralcollaborationon water

111

PAID-W&LJNDWWBICAM

Figure 1: Coverage

LIST OF F16URES

Figure 2: DistributionofCommunitiesAccordingto Levelsof SatisfactionwiththeWaterProject

iv

PAID-WAUNDPIWWCAM

LIST OF ACRONYMS

DCI:

DC2:

DC3:

DC4:

DCD:

DED:

ESAs:

GNP:

HCI~

HC2:

HC3:

HC4:

M + W:

MMPWR:

MP:

OandM:

PLA:

PRA:

R+P

UNDP-WB:

W&S:

WDR:

SongAbeam

Limai

Mbazoo

Nkenglikok

Departmentof CommunityDevelopment

GermanDevelopmentService

ExternalSupportAgencies

GrossNationalProduct

Mbeso-Nsii -

Njinibi

Bolifamba

Bonadikombo

Men andWomen -

Ministry of Mines,PowerandWaterResources

Ministry ofPlan

OperationsandMaintenance

ParticipatoryLearningandAction

ParticipatoryRapidAppraisal

Rich andPoor

UnitedNationsDevelopmentProgramme- World Bank

WaterandSanitation

World DevelopmentReport

V

PAID-WA LJNDP/WBICAM

ACKNOWLEDGMENT

The Camerooncomponentof this WestAfrican assessmenthasbeenfacilitatedby a numberoforganisations,communitiesandpeoplewhosecontributionsneedto be acknowledged.The effortsof UNDP-WB in ensuringthe continuousdevelopmentof rural communitiesthrough neededprogrammessuchas this is appreciated.So also is the contribu.tionsof its collaboratorson thisproject, particularlythe IRC which hasbeenPAID’s long-standingpartnerin the sector.

The participating institutions, HelvetasSwiss Associationand DED German DevelopmentService,havebeenquitecooperativeandsupportiveparticqlarlyin releasingtheir staffto serveonthe assessment.We thank them for this contribution. The efforts of the assessmentteammembers: 1-lanneloreKnott, CharlotteTchapmi, Harald Zauter, Rose EwuneElive, AshuStephen and Ntche Peter, in data collection and other local logistical support have beencommendable

The communitiesassesseddeservespecialcommendationfor the time andsupportgiven to theassessmentteam for the in-depthdata collection. Thesecommunitiesare: Mbesoh-Nsei,Njinibi,Bolifamba,Bonadikombo,Lekie, SongObama,Nkenglikok,Limai/Nyong etKelle.

For secretarialsupportthecoordinatingteamacknowledgesthe effortsof JohnAkat who workedsometimestill very late,to put all thereportsanddocumentstogether.

The coordinatingteam, RosettaBola Thompsonand Andrew Tayong(PAID-WA), as well asJenniferFrancisof IRC deservesomecomplimentfor working within avery tight scheduleto seethe programmethroughsuccessfully.Dr. SylvesterAdehNsohalsomadeuseful contributionsto-the final outcome.

vi

PAID.WMJNDP/WWCAM

EXECUTIVE SUMMARY

This is acountryreport for Cameroonwithin the WestAfrican componentof the UNDP-WBAssessmentProject on participation,genderanddemandresponsiveness-making the linkswith impactandsustainabilityof waterandsanitationinvestments.Cameroonwas selectedalongwith Ghanafor the studyin the WestAfrican region.Two sectorinstitutionsnamely,HelvetasSwiss Associationand DED GermanDevelopmentService, participatedin thecountry assessmentwith four communitiesfrom eachproject. Total country coveragewasthreeprovincesout of ten namely:North-West,South-West,and the Centre Province.

Participatory learning and Action (PLA) methods and tools were used comprising ofParticipatoryRapidAppraisal (PRA) andSARARtechniques.

Main findings from the studyareas follows:

Thereis no existingnationalsectorpolicy on waterandsanitation.

Key sectoractorsarethe governmentthroughthe Ministry of Mines, PowerandWaterResources,andExternalSupportAgencies(ESAs).

__ Approachesand strategiesfor rural watersupplyareguidedby governmentdeclarationsandtexts, but operationallytendtowardsESAs’ policy in the watersector.

With regard to the assessmentfactors demand-responsivenessis mandatory andpractised;community participation in project designand initiation is lacking; gendersensitivity in projectis partial; andpovertysensitivity is really non-existent.

Functionalityof systemin termsof coverageof watersupply,availabilityandreliabilityof serviceoperationsandquality of wateris aboutaverage.

~ Communityfinancingof operationsandmaintenanceis poor,asthereis still relianceonprojecttechniciansto supportin thisregard.

Project managementand sustenanceat community level is sharedbetweenthe watercommitteeandthe generalityof thecommunitymembers.

Genderdifferencesin rolesandcontributionsare identifiable,but decisionsareusuallymadeby structureswhicharemale-dominated.

~ Impact of the water project vary with provincesas the important aspectof accesstowater is not sharedin the samedegree. The water project has more impact on thecommunitiesof the westernprovinceswhereregularity of water and accessis higher.The centreprovince records lower satisfactionwith the systemand lower overallimpact.

Thereis no apparentfocuson sanitationalongsidewaterin theprojectsassessed.

PAID-WkUNDP/WWCAM

Conclusionsarethat:

~ Eventhough sector agenciesbelieve in gender sensitive project operations, staffcapacityto effectivelyhandlethis socialaspectis lacking.

Involvementof all: men, women, rich, poor add to the possibility of sustainingthesystem.

~ Poverty sensitivity is lacking and would require a kind of strategyandknow-howtointegratethisaspectin theproject.

Technologychoice is determinedby sector agencies,but this is also influenced byclimatic conditionand geographicallocationas thesedeterminesourcewatertype andavailability.

~ Demand-responsivenessis practisedandmay have a bearingon eventual feeling ofownershipby the community.

~ Community participation level in the water project is rather low but their activeinvolvement in the O&M could generateownershipfeeling and willingness to sustainthe system.

The link of assessedfactors with sustainability is obvious, but impact has otherimportantdeterminantsuchas accessto water.

Recommendationscoverthefollowing areas:

A Necessityof asectorpolicy to effectively guideW&S operationsin Cameroon

A Capacitybuilding programmesfor agencystaffon genderandpovertysensitivity;andforcommunitywatercommitteememberson budgetary/accountingskills in particular

A Needfor further improvementon deepwell technologybeing usedin somepartsof thecountryto ensureregularityof waterflow from sources

A Communityparticipationshouldbe encouragedright from the initial stagesof theproject.

2 PAID-WAUNDFIWBJCAM

CHAPTER ONE

1.0 BRIEFDESCRIPTION OF COUNTRY

1.1 Introduction

Cameroonis oneof thecountriesselectedfor the WestAfrican assessmentunderthe IJNDP-WB projecton Participation,GenderandDemand-Responsiveness:Making the Links withImpactandSustainabilityof WaterandSanitation.The following is a briefdescriptionof thecountry.

1.2 GeographicandClimatic Conditions

The country lies north-eastof the Gulf of Guineabetweenlongitudes8°and16°eastof theGreenwichMeridian and latitudes2°and13°north of the equator,giving it a varietyof hotclimates.It sharesfrontierswith Nigeriato the west; Chadandthe Central-AfricanRepublicto the east;andCongoBrazzaville,GabonandRioMuni to the south.

Cameroonhasa triangularshapecoveringa surfaceareaof 474,926km2 with the furthestdistancefrom north to south and eastto west being 1200km and 800km respectively.Thetypical climatic condition is dry andwet season,whose intensityvaries within the country.The closer to the coastalandmountainareasthe more the frequencyandintensityof rain.The latitudinal locationgives it morevarietyof hot climatesvarying from 82°Fto over 88°Fasonemovesnorthwards.

An outstandingfeatureof Cameroonis its chainof mountains,particularly in the southandnorth west,which is its main watershedas mostrivers taketheir waterfrom this sourceandflow into differentdirections,while othersarefrom the southernlow plateau.Othersourcesof water in the country are the rainfall which vary in volume and frequencybetweenlocations;lakeswhich aremorecommonin mountainregions;springsandstreams,giving itmoreof surfacewatervarietyparticularlyin the tropical areas.

With its equatorialandtropicalclimates,therearevariationsin the vegetationandsoil. Thevegetation is made up of two main types namely, equatorial forests and the tropicalgrasslands;while soilsareamix of ironbearinglateriteandpurely lateritic types.

1.3 Population - -

Cameroon,has apopulationof 13.9million (WPD SheetandStatistics),50.5%of which arefemale.The annualgrowth rate as at 1995 was 3.02% with adrop to 2.88% projectedfor2000.Thepopulationprojectionfor 2000 is 15548.

It is a bilingual country madeup of tenprovinces- two Englishandeight Frenchspeaking;but in the rural communities,local languages(dialects)aremore in use.Pidgin English isalsowidely spokenbothin urbanandrural communities.Thereare230 ethnicgroups,in sixbroadgroupingsmadeup of Sudanese,Hamites, Semites,Nilottes,Bantusandrelated,andthe Pygmies.

3 PAID-WAWID~WBdCAM

The earlier trend in populationmovementwas from rural to urban with reasonsattributedtosearchfor betterincome, infrastructuresand opportunities.However, eventhoughthe 1994record showedan urban population of 44%, there seemsto be a gradual increase inproportionsof rural inhabitantsdueto increasedurban-ruralmovement, perhapspromptedby economicrealities.Thereis thereforemorepressurebeing placedon rural infrastructureswhich includewaterandsanitation.

The mainreligionsin the countryarechristianity, islamandtraditional types,with variety ofdenominationswithin eachcategory.

As at 1995, adult illiteracy rates were 48% female and 25% male with the rural areasrecording higher levelsof illiteracy.

1.4 EconomicSituation

Cameroonhas, in yearspast,enjoyedthe categonsationof middle-incomeeconomy,but ispresentlyone of the low-incomecountriesof the world with GNP per capitaof US$680=(1994) and an annualgrowth rateof minus6.9% (WDR: FromPlanto Market, 1996). Thecountry’seconomyis moreagrarianin naturewith its main exportcropsbeingcocoa,coffee,bananaandto alesserdegree,rubber.Foodcropsaremore for local consumption.It is anoil-producingandexportingcountryfrom which it derivesmuchof its revenue.The levelofindustrialisationis low. Most businessesareof the medium,smallandmicro categories,andare involved in awide rangeof tradingactivities. Economicactivities in the rural areasaremore agrarian than the urban regions, andother businessesare usually micro and pettytrading in nature.

1.5 WaterandSanitationSector

Practicesandapproachesin the sectorare directedby the Ministry of Mines, Power andWater Resources in collaboration with the Ministry of Agriculture’s DepartmentofCommunityDevelopment,and External SupportAgencies(ESAs). Dependingon specificarrangements,theMinistry of Planis oftencoopted.

The countryhasa low rateof provisioningof drinking water,particularly in the rural areas,with an overall of 35%coverageas at 1992. Sanitationis not implementedalongsidewaterin the assessedprojects.It seemsthisis presentlybeinghandledby localcouncils.

Chaptertwo presentsthe methodologyof the study while Chapters3 and4 show moreclearly the situationwith regardsto waterandsanitationin Caineroon,usingthe parametersdefinedfor the assessment.

4 PAID-W&UNPf~~WB,CAM

CHAPTER TWO

2.0 METHODOLOGY

2.1 RESEARCH DESIGN

This was a non-intervention single-round cross-sectionalstudy on selectedcommunity water supply and sanitation investments.The study focused on theinitiation and implementationof the projectsand specifically soughtto investigatethe level of awarenessandpracticeof community participation,differential genderneedsand demand-responsiveness.The investigationwas also to identify the linkbetweenthesevariablesandthe impactandsustainabilityof thewaterprojects.

2.2 DURATION OF THE STUDY

The WestAfrican studywasconductedover aperiodof 4 monthsandwas intwo phases:- village level assessmentwhichtook 1 weekper selectedvillage

community- institutional andsectorassessmentphasefor eachparticipatingproject

2.3 DATA COLLECTION METHODS,INSTRUMENTSAND TEAMS

ParticipatoryLearningandActionmethodsandtools wereusedthroughoutthe study.The methodscomprisedacombinationof ParticipatoryRapidAppraisal (PRA) andSARAR techniques.Specificallythe following techniqueswereused:

- communitydatacollection: to obtaingeneralinformationon participatingcommunitiesandallowthe identificationofotherfactorsthanparticipation,genderanddemandresponsivenessthatmayexplainthevariationinservicesustenance

- focusgroupdiscussions: meansof collecting in-depthinformationon theviewsof groupmemberson issuesnot predefmed

- wealth ranking: for identifying the socio-economic classes in thecommunity.

- community mapping: map drawn by community membersto showthelocationin the communityof all waterpointsconstructedduringthe project;thesepointswereto bevisited duringthetransectwalk.

- transectwalk: this is undertakenby researchersandcommunitymembersto cross-checkinformationon themap,and determineto whatextentawell-sustainedwatersupplyand/orsanitationis presentin thecommunity

- pocket voting: for identifying changesin behaviourof peopleaccordingtotheuseof servicesbefore/during/afterprojectinitiation.

- laddersI: for assessingthe extentto whichthe servicemeetsthedemand/needsof usersandthe benefitstheyderivefrom the service

- laddersII: for assessingthe impactof the serviceon women’stimeandworkloadin relationto thatof men

- card sorting: thisis to determinethe natureof contributionsmadeto theprojectby menandwomen,rich andpoor.

5 PAID.WAiJNDf~WBlCAM

HundredSeedstool wasnot usedbecauseof the culturalconflict it could generateinthe communities.

The wealth ranking conductedin the communitiesbrought out comrhunityspecificdescriptionsof the threesocio-economicclassesof rich, in-between,and poor. Thebroaddescriptionsfor eachfrom communitiesassessedin the two countriesare asfollow:

Rich: Ownerof a car, big houseand/or farm, looking healthy,owns a television,havingchildrenabroad,ownerof arice farm and/orcementblockhouse.

In-between:Office worker, owner of a motor cycle/farm/house;ownerof a smallsundrybrick house/farmproducingabout two bags/donkey;civil servant,owner ofhouse/television;ownerof smallhouseand/orfarm/bicycle.

Poor: Owner of a bicycle/old woodenhouse/smallfarmltatchedgrassroof houseand/or not able to meetchildren’s fees; owner of small falling house/smallfarm

and/or not ableto paytaxes;unableto contributeto communityprojects.

Community-level data were collected by trained assessmentteams~composedofsocialandtechnicalstaffof theparticipatingprojects.

Institutional-andsector-leveldatafrom eachprojectwerecollectedby ateamof twomembersof the coreresearchers.

2.4 SAMPLING

The study used a multi-stage quasi-random sampling approach which led -

successfullyto the selectionof countryprojects,communitiesandrespondents

2.4.1 SELECTION OF IN-COUNTRY PROJECTS

Two projects(HelvetasandDED) were selectedfrom Cameroon.The selectionwasguidedby thefollowing criteria:

* Existingfor atleast5 years;* - Has well definedpolicy or methodology;* Hascommunitywatersupplyand/orsanitationprojectshavingat least3

yearsduration; -

* Communityprojectsbeingdemand-drivenandparticipatory;

* Readinessof organisationto participatefinancially (30% contribution);* Willingnessandreadinessto releasestaff to participatein the

assessment

2.4.2 SELECTIONOF THE COMMUNITIES

Using the lotterysimple randommethod,four communitieswereselectedfrom eachof the 2 study projects for a total of 8 communities.To be listed for selection,communitiesshouldmeetthefollowing criteria:

6 pAm-wkL,nD~’,wwcAM

• Projectinitiated by communitymembers• Systemstill functional• The systemshouldhavehadat least3 yearsduration• Thereis someform of managementin place• The communitywilling to participatein the assessment• The villageis accessibleby a motorableroad

2.4.3 SELECTIONOF RESPONDENTS

* At institutional level, respondentswere: 1 technicalandsocial staffwhowerepart of the community projectsat inception or actively working with theselectedcommunitiesnow; contractorsand privatesectortechnicianson theprojects(whereapplicable);as well as communityleaders.

* Forthe communityassessment,respondentscomprisedof:

- Focusgroup: In eachcommunity,lists of householdswere establishedforthe first two dominantsocio-economicstrata(i.e. first two amongstrich, in-betweenandpoor). Using the lottery~methods(cut out andfolded piecesofpapersbearinga numberallocatedto ahousehold),20-30%of householdswere selectedfrom eachstratum.After the selection,adult femalesandlormales in householdswhich accepted to participate in the study wererecruited as focus group participants for each community. However,measuresweretakento ensurethat no householdcontributedbothhusbandandwife into the study.

- Communitymembersselectedthroughstratified randomsamplingbasedon sexandsocio-economicclass

- Watercommitteemembers

2.5 DATA COLLECTION PROCEDURE

Thestudy was precededby ademonstrationphasein onecommunitynot includedinthe study. At bothphases,data collection beganwith community level assessment.The datacollectioninvolved severalstages,usingdifferenttools for interactionwiththe communitymembers.

At the initial meeting with the community, project objectivesandstudy coveragewereexplainedbeforecompletingthe datasheetfor thatcommunity.This is followedby wealthranking for socio-economicclassification;community mappingwhich isdonewith the contributionsof all memberspresent,andatransectwalk to confirmalllocationson themap.Thereafter,the assessmentteamworkedwith the selectedfocusgroupto collectotherdatausingtheothertools earlierlisted.Furtherinformationwascollectedthroughaninterviewwith membersof the watercommittee. -.

Community level assessmentwas followed in turns by institutional assessmentandpolicy level assessment.Thesewere donemainly throughcard sorting, and pocketvoting.

7 PAID.WA~UNDF/WBdCAM

2.6 DATA ANALYSIS

Dataanalysisprogressedfrom project to country-level.At eachlevel, the datawasappropriatelyregroupedandanalysedunder6 headings:functioningsystem,effectivefmancing, effective management,demand-responsivewater services, division ofburdeiisandbenefits,demandresponsive,and gender/povertysensitiveparticipationin services.

Both quantitativeandqualitativeanalyseswere done,leadingto projectandcountrylevelconclusions.

2.7 STRENGTHSAND LIMITATIONS OF THE METHODOLOGY

2.7.1 STRENGTH

• The methodologyreliedon the principle of multiples,with particularfocuson multiple levels of assessmentwhich facilitatescross-validationof dataacrosslevels. Assessmentteamfound it quite useful.

• Monitonngof community assessmentprocedureby the coordinatingteamprovided opportunity for guiding assessment teams in correctimplementationof tools.

• Methodology is a meansof collecting large amount of data within arelativelyshorttime.

• The participatory nature makes respondentsactive rather than passiveparticipantsin the datacollectionprocess.

• Moredetailedandbroadlyconfirmedinformationcouldbegathered.

2.7.2 LIMITATION

• The useof project staff for community data collection might bring insomequestioningbiasas happened,but correctedin onecommunity;andit could equally introduce a responsebias as respondentsmay tend toprovidedesirableanswersto wardoff sanctions;

• Mental andon-the-spottranslationof questionsinto local languagesbyfield assessorsratherthan standardisingthe translationscould introducesomebias;

• Pocketvoting on wateruseafter introductionof the project was foundtohave a shortcoming of not being able to equally reveal reasonsforcontinuoususeof unimprovedsources,wherethiswas the case;

• Group scoringmay cloud the views of less affluent respondents,andthreaten representativenessof the responsesparticularly where theproportionof suchlessaffluentindividualsin the groupis high;

8 PAID-WkLJNDWWWCAM

• The quasi-randomnature of the sampling limits generalisationof theresultsnationwide;

• The field researchteam found sometools - mapping,transectwalk andhistory of participation - to be unavoidably long. This could affectcollectedda~ta.

9 PAID.WA UNDP!WBICAM

CHAPTER THREE

3.0 FINDINGS

3.1 Introduction

Thissectionpresentsthekey findingsof the study.In the sectionandelsewhere,HCIrefers to Mbeso-Nsai,HC2 to Njinibi, HC3 to Bolifamba HC4 to Bonadikombo,DC! to SongAbeam,DC2 to Limai, DC3to Ivfbazoaand DC4 to Nkenglikok,whicharetheeight communitiesstudies.

Datacollectedduring the assessmentwereto provideinsight into the stateof selectedindicatorsof sustainabilityof the projects.The specific link of participation,genderandpoverty sensitivity,anddemandresponsivenessto sustainabilityof the projectswasto be determined,as-well as the impacton the differentsocio-economicandsexgroups. - -

It should be noted that there is no particular sector focus on sanitation.What ispresentedheretherefore•is on watersystem.

3.2 Sustainability

To establish the state of sustainability,the following indicators were assessed:functionality of systems,effectivefinancing,effectivemanagement,andeffectiveuseof water.

3.2.1. Functionality of systems -

Indicatorsto investigatethe functioning of systemsinclude coverageof the watersupply,serviceoperations(availabilityandreliability), andqualityof water.

Coverage

Coveragewas studiedin termsof averagenumberof persons/householdsto a singlewalerpoint. Table 1 comparesthe coverageof thetwo projectsectors.

10 PAID-WA UNDP/WBICAM

Table 1: Coverageofwater supply

ProjectSectors

No.ofConimunities

~~

TotalPopulation-

~:

TotalNO. ofHouseholds:

~

ToLalNo.ImprovedWaterPo~

AverageCoverageofPersonslhousebolds

‘

~

DED 3 1864 251 6 310 persons41 households

Helvetas 4 3498 377 11 318 Persons!34 Households

Source Datafromthestudy

Figure1: Coverage

Onaverage,althoughDED seemsto havebetterpersonscoveragewhile Helvetashasbetterhousehold coverage, the differences do not seem to be substantial The result(population/waterpoint) shows that access to water in Cameroonneeds considerableimprovement.

However, generally,water is meant for every community memberirrespectiveof sex andsocio-economicclass

Timelinessin Repairs

Delaysin instituting repairsvary from 2 daysto 1 month. Only onecommunityeffectsrepairswithin 2 weeks.Wherethereis no alternativeprojectsourceduring the breakdownperiod,thecommunityresortsto non-projectsources.

Source: Datafrom thestudy

11 PA~-WA.13i~!W~CAM

SystemsOperations: Availability and Reliability ofImproved Water Sources

Variablesusedto assessthe availability andreliability of the projectsourcesincludenatureof the improvedsources,continuity in wateravailability andlocationof waterpoints. Table2 showsthefindings.

Table 2: Distribution of Findings in Relation toAvailability andReliabiityofWaler from Project WalerSources

VARIABLE DED HELVETASNature of improvedsources

. ProtectednaturalwatersourcesDugwells

Gravity network

Continuity of wateravailability

Dry sources in the dryseason

Continuous availabilityof water except in onecommunity

Locationof waterpoints Generallyin areaswith apotential to reach menandwomen(M+W) richandpoor(R+P)

Generally in areas withpotential to reach menand women, rich andpoor

Sources Data from the study

Table 2 shows that, constancyof water flow from improved sourcesin the country varybetweenthe projects possibly due to climatic differencesinfluenced by geographicallocation. Reliability of thesesourcesthereforediffer betweenlocations. In areaswheredryspellsare sometimesexperienced,shallownessof the wells and/or othertechnologicalfaultcould bethe cause.

Quality of water

Table 3: Qualityof Waterfrom Project WaterSourcesorPoints

V.~R1ABLES~•• ‘H~LVEThSWater quality as judged Good Goodby communitymembersWatertesting No scientific testing No scientific testingSource: Data from the study

The table showsthat, in both projectscommunity membersperceivethe water quality asgood. This is basedon social factors:taste,odour and turgidity. However, the data alsoshowsthat no scientific testingof wateris carriedout in both projects.This castsdoubtsontheactualqualityof the water.

12 PAW-WkUNDPIWB~tAM

3.2.2 Effective Community Financing of Operations and Maintenance

Cost Recovery

Table 4: Distribution of Income and Expenditure of Communitiesover the last 3 fullyears(1995-97)

Variable

.

Comxmmrt

.:.

HC1

l~ome FCFA Expenditurein FCFA”‘995Not

i~Not Not 360,000

~9%360,000 360,000

Helvetasreported reported reported

HC2 externalof7.5 m

externalof 3 7 m

external of489,700

69,000 327,825 368,500

HC3 notreported

notreported

Notreported

Notreported

Notreported

Notreported

HC4 notreported

notreported

Notreported

565,500 568,000 854,200

DEDDC! - 7,000 7,000 37,000 7,000 7,000 37,000

DC2- Not :reported

Notreported

Not -

reported3,500 - Not

reportedNotreported-

DC3 Notreported

Notreported,

Notreported

Notreported

Notreported

Notreported

DC4 Notreported

Notreported

Notreported

Notreported

Notreported

Notreported

Table4 showsthat, cost-recoveryschemesareusuallynot well managedasmajority of thecommunitiesdo not reporttheir incomeand/orexpenditures.Only onecommunityseemstoberecoveringcost,but then,this communitydoesfund raisingonly on adhocbasis.

Timelinessof payments -

In general,not all communitymemberspayon time or pay at all for waterservicesand/ormaintenance.The proportionis as statedin thetablebelow.

Table 5: Distribution ofproportionsofnon-payingandlate-payingcommunitymembersoverthe last3fullyears(1995-97)

•COi~lfl~Ufljtie5..+,

. !W1~1,~ , :• DED..Nnpaylng .:-.

.•~c~ing~Notpaying Latepaying1 10-20% 10~20% 15% Not reported2 85-90% 85-90% 100% Notreported3 99% Not reported Not reported Notreported4 65-70% 65-70% Not reported Not reported

Table 5 showsthatinformationon timelinessof paymentwasnot at all availablefor two ofthe 4 communitiesin the DED sector.For the remaining2, only partial information wasavailable.Excludingcommunitieswithoutreport~dproportions,it canbe observedfrom theTable that theproportionof defaultersis generallyhighwith 15% in onecommunity,andashighas100%in another.

13 PAID.WA.UNDWWB/CAM

In the Helvetassector,theproportionsof communitymembersnot payingin time/notpayingatall vary from as low as 10-20 % in onecommunitythrough65-70%in anotherto as highas 85-95% andeven 99% in the othercommunities.Reasonsfor delays include ill-health,lackof understandingandlackof funds.

In both projects,thosenot payinghaveno formal exemption.Also, chargesaresameacrosssocio-economicclass(rich, in-betweenandpoor). However, in somecommunities,womenaremadeto pay less,becauseof theperceptionthattheyearnconsiderablylessthanmen.

3.2.3 Effective Managementand Participation

• Water Committee Level

The watercommitteeis the main managementbody of the system,representingthecommunity.Variablesusedin assessingeffectivemanagementatthe committeelevelinclude statutesandassignedtasks,functions including decision-making,types ofskills receivedandpractised(capacitybuilding) andperformedtasks (paid versusunpaid). - -

- Statutesand assignedtasks

Committeesseemto haveno texts which can inform on principlesregulatingtheirestablishment,statutesandassignedtasks.Someinformationon committeesstatuteswashowevergatheredthroughinterviewswith committeemembers.

Table 6 Statusof Committees

NeofSttutes:• ~He1vvtas DED ProportionNo legal status x xxxx 62.5%Derived from formaladministrative body underwhichit falls

xxx - 37.5%

Autonomouslegal status - - 0%Source Data from Study

Table 6 shows that majority (62.5%) of the committeeshave no legal status,particularly from oneproject area.On the otherhand, fmdings from relatedissuesshowin addition thatmostof the committeesequallyhaveno managementstatutes.Evenmore,the few with managementstatuteshavelimited powersas theyhavenocontrol over training of processes,quality of designand the mandatorycontributionto project.

The usual committeepositionsfor assignedtasksare: presidentandvice, secretaryandvice, treasurer,financial secretary,caretaker,andmembers.

‘4 PAH%W&UNDPIWB/CAM

- Composition and decisionmaking

Committeesgenerallyhave ahigh proportionof menwhen comparedto women.Also few women are found in strategicposts of responsibilitywithin committees.Strategicdecisionsarethereforemostlymadebymen.

- Sharing functions and Ilinctioning of committees

Generally,skilled work including checkinglines,chairing meetings,taking minutes,doing accounts,maintenanceandtechnicalrequirementsarein the handsof men. Inaddition,committeework is usually unpaidbut the few paidjobs are handledbymen.Unskilledwork, includingcateringandthe collection of feesis mostly donebywomen.

- Typesofskills receivedand practised: Capacity building

In terms of training of committeemembers,the most commonly receivedare onbudgetting,organisingandconductingmeetings,andmonitoring andcontrol.Acrosscommittees,training wasdifferentially given in theseareas.For water managementand managementof committee affairs, for example, usually male membersaretrained.

Only 75% of the committeescould put into practicetheir acquiredknowledgeandskills. Interestingly,onecommitteewhich did not havetraining in managementandcontrol hadcommitteemembers(male andfemale)who could demonstrateskills andindicatewhereandwhenpractised.

• Community Level

Variablesusedto assesseffectivenessof managementat the entire community levelinclude community contributions in cash, kind, labour and project materials.Community contributionsin decisionmaking,anddemandcultureof communities.Participationofthecommunityin thewaterprojectis throughthesemeans,as well asthroughtheirappointedcommunityleaders.

- Community contributions in cash,kind and project materials

All the eight communitiesstudiedmake contributions in form of cash,kind andproject materials.However,contributionsareoften differentially madeby menandwomen.

In the Helvetassector,cashcontributionis madeby menandwomen,rich andpoorexceptin acommunitywherethis is particularly madeby rich men.No partial cashcontributionis practised.In the DED sector,men(rich andpoor),dominateas to fullcashpaymentwhile women(rich andpoor), usually makepartial and instalmentpayments.

15 PA1D.W&U}~WBstAM

Contributions in form of project materials and in kind are madeby men and/orwomendependingon the acceptablenorm in the communityandperceivedeconomicstrength.Forexample,while mostlypoor menin one Helvetascommunitycontributeproject materials,women are more associatedwith kind contributionsin the DEDsector.

Communitymembersmostly provide unskilled work including cleaning of waterpoints.

- Communitycontributionin decision making

Community membersare not involved in decisionsleading to establishmentofprojects.They generallygetinto decisionmaking only during0 & M. Unfortunately,decisionsduring 0&M are bound by structureswhich are male dominatedsuch aswatermanagementcommittees,fon/chiefs; the village council andheadsof families.

- Demand culture versuscoverage

Demandculture appearslow within the studiedcommunitiesgiven that projectwatercoverageis not sogood.However,the low coveragemayalsobe dueto the fact thatcommunitiesdo not want to askbecauseof afelt inability to meettheir own quotaofconstructioncost. The high percentageof peoplenot paying their contributionsontime, andthosenot payingat all is indicativeof thepoor willingness of usersto payfor the facility.

3.3 Impact

3.3.1 Effective useofimproved services:behaviour change.

Changein behaviourin wateruseis influencedby distanceto water source/pointandaccess.This is apparentin the outcomeof this studyas communitiesin the westernprovinceswhohaveeasieraccessto improved watersourcesrecordsomechangeof behaviourin choiceofwater sourceas against the low recording of communitiesin the Centreprovincewhereaccessto water is poor.

In termsof sex/socio-economicclass,behaviouralchangeis alsonot similar. The degreeofbehaviourchangeis higher for rich menandwomenthan for poor men and women.Thisclassdiscrepancyin behaviourchangeis possiblydueto accessto private‘~~iatersources.

16 PAD-WA.UNDWWB.’CAM

3.3.2. LevelofSatisfaction

Table7: SexDistributionof Satisfactionwith thewaterproject

- Helvetas(~)ropórtion-satisfaction - ofcommunities -

Men Women

DED~(propoition~of~cómmirnitjes’Men Women

0% 0% 25% 25%below

50% 50% 75% 50%satisfied 25% 50% 0% 25%

above25% 0% 0% 0%0% 0% 0% 0%

Source Datafrom theStudy

Figure2: Distribution ofcommunities accordingto levelsof satisfactionwith thewater project

Male Level ol Sati~action

B/Avg. = BelowaverageAvg. = AverageA/Avg. = Satisfiedjust aboveaverageV =Very

• I-~lv~

•

Fem~eLevel of SatIsfa~Ion

urce: Datafrom Study

11 PAD-WA.UI~1WI~AM

Generally,satisfactionfrom wateris variablebut, acrossprojects,no distinctpatternemergesbetweensexes,exceptthat no community is very satisfiedwith the waterproject.

Table 7 andFig. 2 showthat, the level of satisfactionof both menandwomen ishigherin thewestprovinces(Helvetascoverage)thantheir centrecompatriots(DEDarea)for reasonswhich are relatedto the earlier identified issuesof accessto andreliability of water. A furthergenderbreakdownwithin projectareasshows that inthe Helvetassector,menhave ahigher level of satisfactionthanwomen,with atleast25% of them havingaboveaveragelevel of satisfaction.In the DED area,agreaterproportionof menandwomenarenot satisfiedwith their waterproject, butthe womenhavea slightly higher ratingwith 25%ofthem beingaveragelysatisfied,which is still quite low.

For the Helvetas sector, satisfaction is in relation to fairness of fees paid incomparisonto servicesreceived.Dissatisfactionmostlyconcernsaccessto services,regularity andpredictabilityof services.No cleaipicture emergesas to sufficiencyof water, adequacyof operationsandmaintenance,andaccountabilityof servicedelivery,but the centralcommunitymembersarehappywith the 0&M servicesandthe predictabilityof servicesdespitethe frequentdry spells.

3.3.3 Perceptionson Cost-Benefits(Fulfilment of Expectations)

Table 8 below shows that, anticipatedand achievedbenefits that cut acrossthecommunitiesare: better health, nearnessto water, more time for women andaversionof paymentfor water. Giventhat the highestaveragescorea projectcouldachieve is 5, one can conclude that, amongstthe common expectations,thecommunitieshadwere betterhealth,moretime, andaversionof paymentfor water.However,moretime andaversionof paymentfor waterwas raisedin fewer than4of the 8 communities.Betterhealthseemsthusto be the greatestexpectedbenefitfrom waterservices.

All socio-economicandsex categories,especiallythe poor women,hadhigh betterhealthexpectationsandgaveahighpriority scoreto thisas anachievedbenefitfromtheimprovedwatersystem.

Surprisingly, cleanerdrinking waterwasnot an expectedor anticipatedbenefit inthe Helvetassectoreventhoughthis was raisedby 75%of the communitiesin theDED sector. It is possiblethat before the water project, the Helvetassectorwashavingwaterperceivedto becleanenoughfor drinking.

18 PA1D.WAUNDP~WBdCAM

Table 8: Sexandsocio-economicclassdistributionof priority scoresforanticipatedandachievedbenefitsfrom water(highestaveragepriority score= 5)

VARIABLES No. ofCommunities

Hel DEl)

Se~x& S.E.~

Av MiticipatedBenefitvalue

Av. AchievedBenefitValue

Helvetas DED Helveras flED

-.

Nearnessto water 2•

2RmPmRwPw

1.51.51.51.5

3.5355

2222

5455

Development 2RmPmRwPw

113I

-

-

-

4455

-

-

-

BetterhealthRm

PmRwPw

33 23.23.5

4.24 24747

3.53 53.537

4445

Education 3RmPmRwPw

32 72.727

-

-

-

273 33.34.3

-

-

-

Forestregeneration IRrnPmRwPw

32I4

-

-

-

32I4

-

-

-

Increasedpopulation 3 - RmPmRmPw

4.74.34.74.7

-

-

-

-

4.7554.7

-

-

-

-

Moretime (forwomen)

1 1 Rm

PmRwPw

4 .

455

342

4555

345

Reducedaccounts1 -

RmPmRwPw

3223

-

-

-

-

3223

-

-

-

-

Aversionof

paymentfor.

water/moneyservmg1 2 Pm

RwPw

555

54.55

555

555

Changesdrinkingwaterandsource

- 3 RmPmRwPw

-

-

-

-

53.343.3

- —

-

-

-

53.355

In the Helvetassector,the issueof moretime for womenseemsto havebeenhighon the priority list of women,both rich andpoor. On the contrary, it wasmoretheconcernof rich men and to a lesserextent, rich women in the DED sector.This

19 PAID.WAUNDf’~WBICAM

expectationwas thoughtto be well met by the two communitieswhich raiseditparticularly by women,both rich andpoor.Eventhoughthe issueof moretime forwomenwas low on the priority list of expectationsof poor womenof the DEDsector,it roseto~avery highpositionas an achievedbenefit.

Increasedpopulation was raised both as anticipated and achieved benefit in 3communitiesin the Helvetassector. The relatively more constantavailability ofportable water in this sector might have enhancedin-migration andlor humansurvival.

Overall,the benefitsderivedfrom projectwatersystemsappearto havebeenhigherthan the expectationswhich is an indication of its positive impact on thebeneficiaries.

3.3 National policy support

Cameroonis yet to have a nationalpolicy on water andsanitation.What guidesoperationsaredeclarationsandagreementtexts,andas directedby the Ministry ofMines, andWaterResources.Declarationsindicatethatgovernment’sintention is tosupply portablewater to all. A record bill of March, 1998 lays down regulationsgoverningwateroperationsbut howevercontainsno specifiedstrategies,approachandlorfocus.Accordingly: -

• thereis no cohesivesetof sectorplayers,particularlyfrom the governmentside;MMPWR and DCD are howevercommon sectorplayers; othersare coopteddependingon thefmancialarrangementsbetweengovernmentandESAs.

• the influenceof ESAs who are the funding agenciesis very strong in sectorpoliciesandapproachesandco-ordinationstrategiesused.

Although the declaration and agreements are clear on demand-responserequirement,theyarenot clearon gendersensitivity. In addition:• agencyandgovernmentparticipationis definedonly in termsof cash,kind etc,

but not in decision-making• povertyis not at all considered. -

Table 9 showsthe contentof availableagreementtextsin relationto participationanddemandresponse.

Table 9: Participation AgreementTexts

VAPJABLE -:PE1~ ~. HEI~V~TA~:Objective Portablewaterfor all Portablewaterfor allParticipation - Communities have to

give cash, labour andproject materials forestablishment of thewaterproject

Community has toprovide 30% of therequirements forestablishment of theirwaterscheme

Demand-ResponsivenessPractised PractisedSource DED andHelvetasprojectdocuments

20 PAW.WA.UNDP/WBICAM

The data shows that approachesto participationare varied in the two projects;suggestingthat participationarrangementsmay beproject specific,andsocould beinfluencedby the external supportagencies(ESAs). However, thereseemsto becommonalityon demand-responsiveness.

There is no indication that participationarrangementsareeitherpoverty or gendersensitivewhich shows that they were not factors for considerationin thç projectestablishment.Project staff have no specific training in the use of poverty andgendersensitiveapproaches.Such training could enhancethe effectivenessof theapproachat institutional, policy andcommunityimplementationlevels.

3.4 Institutional Policy Support

Variables designed to inform on institutional policy support include serviceobjectives and implementation strategies, field team composition and teamwork/approach,expertise of agency, staff performanceand capacity building,managerialsupport,natureof national sectorpoliciesfor water and sanitation,andstrategiesin relationto demandresponse,participation,povertyandgender.

3.4.1 ServiceObjectivesand Implementation Strategies

While both DED andHelvetaspoliciesfocusedon achieving waterand sanitationconstructiontargetsand agencydeterminedtechnology,service level and projectcommunities, DED additionally focused on continuing adequate water andsanitation services for all, which safeguards environmental managementforcontinuingquantityandavailability. Furthermore,in theDED project,communitiesanduserscould choosebetweenseveraltechnologyserviceoptionswithout specialprovisionfor affordabilityto poor.

Both projectsdiffer as to who owns andmanagesservices,as well as on genderconcern.In the Helvetasproject,the communityownedandmanagedservicesaftercompletionbut hadno specialpowers.Women,genderandaccessto the poor werenot mentionedin agencysectorpolicy objectivesandstrategies.In the DED project,communitiesweredelegatedspecialmanagementpowers.Objectives,strategiesandperformancecriteria aimedat balanceddivision of burdensandbenefitsbetweenwomenandmen, both rich and poor, in connectionwith project implementation,operationsandmaintenance,useanddevelopmenteffects.

3.4.2 Expertise ofAgency,Field Team Composition and Team Work

In both projects,there it was reportedthat no genderandpoverty aspectswerepresent in planning and monitoring systemsof the project and that, social.agency/departmentwas not one of the project agencies.Other collected datahowever, indicated that DCD which providesthe social expertisewas all alonginvolved in the projects.Expertiseon genderandpoverty analysiswas also low.Sectoragenciesgenerallyusedspecialisedpersonnelto designandconductcapacitybuilding interventionsandtools.

Field teamsincluded socialstaffbut while thesocialandtechnicalstaff ofthe DEDprojectco-ordinatedtheir activities andplans,suchco-ordinationwasnot apparent

21 PAID.WAIJND~WB/CAM

in the Helvetassector.Technicalandsocial staff in the Helvetasproject workedinparallel.

3.4.3 Staffperformance and Capacity Building

Generally,technicalstaffwereperceivedcompetentin the field but social staffhadinadequatecapacity in their role as animators.However,both categoriesof stafflackedexpertisein genderand povertysensitivity althoughthis is improving in theHelvetasproject.

It seemsinstitutionalpolicy wasnot well understoodasit was not sowell translatedinto practiceby bothprojectstaff.

The DED projectseemedto havean edgein capacitybuilding. In this project,sectoragenciesgenerally used specialisedpersonnelto design and conduct capacitybuilding interventionsand tools. Capacity building events were part of regulartraining and orientation for all staff, and were-funded in balancewith technicaltraining. Therewas useof participatorytraining methodsand tools that were thenapplied in the field and included poverty andlor gendersensitivity and equityaspects.In contrast,in the Helvetasproject, capacity building in social aspectsexisted,andwaspart of regulartraining andorientationof staff. Suchtraining wasfunded in balancewith technicaltraining andusedsomeparticipatorymethodsandtools that wereappliedin the field.

3.4.5 Managerial Support

Managerialsupportseemedto be betterin the DED sector.Generally,managementsaw new roles for women as a means to increase the effectiveness ofprojects/programmes.The needfor broaderuser choicewasrecognisedbut withoutdifferentiation for sex and class. As regards staff motivation, managementandsuperiorsformally acknowledgedand appreciatedattitudes and approachesthatenhanceparticipation,genderand poverty balancein processand results. Staffperformancecriteria includeperformanceof schemesandcommunityorganisations,genderandpovertysensitivity, andequity in activities,outputsandresults.

Comparatively,in the Helvetasproject, managementdefmedroles of women aspassivebeneficiariesor target groupsfor healtheducationand programmeswithwomenasadd-on.Demandresponsewasdefmedasacceptanceor non-acceptanceof agencychoices,with atmostmarginaladjustments.Concerningstaffmotivation,individualscouldpractise participatorygenderandpovertyconsciousapproach,butmanagementand superiors did not recogniseor appreciatethese attitudesandactions.Staffperformanceindicatorswerestrictly quantitative:numberof facilitiesbuilt, percentageof fundsdisbursed,numberof trainingprogrammesheld,numberof peopletrainedetc.

3.4.6 NatureofSectorPolicy

Both projects have similar (75% appropriate)coverageand use arrangementsbutdiffer whenit comesto sustainabilityarrangements.Coverageandusearrangements

22 PAU~-WAiJNDPFWB/C_AM

aimed at use, by all, of safeandsufficient amountsof water and safe sanitation;achievementof targetswas monitoredandprogrammesadjustedif necessary.Interms of sustainability,the Helvetasproject was 50% appropriate:sectorpoliciesaim at establishmentof servicesand facilities that continueto be functional but nocriteria for functional were included. In contrast,the DED project was only 25%appropriate.Its sectorpolicy aimedat contraction;sustainedservicesandusewerenot mentioned.

3.4.7 Strategiesin Relationto Demand-Response,Participation Poverty andGender

The projectsdifferedon strategiesfor cost-sharingandmanagement,participationindecisions,financing strategyfor the poor. Project strategieswere similar when itcomesto presenceanddefinition of gender.

As regardscostsharingandmanagement,the Helvetasstrategyseemsto be better(75% as against 50% for DED). In both project strategies,communitieswereexpectedto carry out routinemaintenanceandcovercostsof minorrepairs,butwhile in the Helvetasstrategycommunitiesanduserswere expectedto managecontributions during constructionas well as carry out minor repairs,in the DEDstrategycommunitiesanduserswereonly expectedto contributeto construction.

In termsof participationin decisionmaking,the Helvetasprojectagainscoredbetter(100% against 75% for DED). This project aimed at providing a range oftechnologicalmanagementandfinancing optionswhich would be openedto localadjustments.Users had to be informed in order to enablethem make informedchoices. The DED strategy was to consult the community using participatorytechniques. Training was to be provided for local maintenance,repairs andmanagement;and localmanagerswereexpectedto accountfor servicemanagementto their customers.

Concerningfmancingstrategyfor the poor, the DED project hada betterstrategyscoring75% as against50% for Helvetas.In the DED strategy,userswereexpectedto jointly cover operationsandmaintenance,investmentcost; allowing the poor topay lessandhaveoptionsin local arrangementsto match the differentialsituation.Users in the Helvetassectorhadto payflat chargesfor O&M; the resultinghireincomewasear-markedto maintainservicesandexpandcoverage.

Both the HelvetasandDED strategieseachscored25% on presenceanddefinitionof gender;women, genderandaccessto the poor were not mentionedin agencysectorpolicy, objectivesandstrategies.However,DED is currentlypayingattentionto the componentof genderin its strategy.

23 PA1D.WAA1NDf~WB~CAM

3.4.8.SectorCollaboration on Water

Table 10: Sectoral Collaboration on Water Projects

VARIABLES DED MEL WETASActors DED with Ministry of Mines,

Power, and Water Resources(MMPWR); Department ofcommunity development(DCD),and Mmistiy ofPlan(MP)

Helvetas with DCD whoseoperationalarmis called BOTA

RolesandResponsibilities

• DED providesgovernmentaloan+ technicalassistance

• MMPWRprovidestechnicians• DCD providesanimatorsfor

execution

• Helvetas provides funds andtechnicalassistanceaswell asbuild capacity

• BOTA and DCD provide directtechnicalandsocial services

Waterimprovementapproach

Natural source protection andprovisionof handpumps

-

Provisionof standposts

•

Table 10 suggeststhat the numberandtypeof sectoractorsvary acrossprojects,-but MMPWR andDCD are the dominant governmentrepresentativesconstantlycollaboratingwith ESAs.

The table also showsthat technologiesusedvary acrossprojects.This differentialuseof technologyis linked to surfacewateravailability. The DED sectorin contrastto the Helvetassector, is poor as regardsovert surfacewater. Wells with longpumps reaching down well enough would thus be an appropriate low costtechnologyfor the DED sector.Onthe contrary,the Helvetassector,as is the case,wouldneedto useagravity watersupplysystem,if appropriatenessis sought.

24 PAD.*A~UNDWWWCAM

CHAPTER FOUR

4.0 CONCLUSION

4.1 Conclusionsfrom the National Policy

* Cameroonis yet to developa nationalpolicy on water and sanitation.National-level water arrangementsare presently driven by sectorarrangementsemanating from the Ministry of Mines and WaterResources;

* ESAsseemto determinethe exigencefor watersupply throughtheir ownpolicy and approaches,probably dueto the absenceof anationalpolicy.This may also be the reasonbehindthe unclearcoordinationof the keyplayers: Ministry of Mines, Power and Water Resources,Ministry ofAgriculture through its Departmentof Community Development,andExternalSupportAgencies(ESAs);

* Dependingon the financial arrangementsbetweenthe governmentandthe ESA, otherplayersmay be addedas is the casewith the DED sectorwheretheMinistry of PlanandRegionalDevelopmenthasbeenco-opted;

* Working agreementsbetween agencies and the government defmeparticipationonly in terms of cash and kind contributions,but not indecision-making;

* Demandresponsivenessas amandatoryfirst stepis clearto key players;communitieshaveto ask. Gendersensitivity seemsto exist in theory buttranslationinto practiceis not filly developed.Povertyas an issue is notatall defmedor takeninto consideration.

4.2 Conclusions from institutional policy/approaches

If the experienceswith DED andHelvetascanbetakenas the modelfor Cameroon,thenit couldbe affirmedthat:

* Agencyapproachesto participationanddemand-responsivenessaresimilar

* Fundingarrangementsbetweenthe governmentandESAfor water

investmentsareagencyspecific.The samegoesfor fundingarrangement for the implementationof watersupplyprojectsatthe communitylevel.

25 PAID.WAtJNDf’IWB/CAM

4.3 Conclusionsfrom field realities

* Coverageby theESAs’ communitywaterprojectsis still

inadequate

* Thequality of suppliedwater is perceivedgoodby community

members,but the non-practiceof scientific testingafterconstructionleavesdoubtsas to the scientific quality of the water

* Thechoiceof technologyseemsto be appropriatein bothproject

sectorsdueto environmentalspecificity in eachgeographicallocation.However,the implementationof the technologyin the centresector,intermsof constructionto guaranteeconstantwaterflow, appearinsufficient.

* Behaviourchangein relationto useof improvedsource,is relatively

more in the Helvetassectorthanin the DED sector,probablybecauseof the limited accessto waterin the latterdueto poor availabilityandreliability of water,andinsufficient awareness.

* Communitymembersassertsomesubstantialbenefitsfrom the water

projectsbut paymentfor waterremainsageneralproblem.This poorwillingnessto payfor watercanbe attitudinalgiventhat mostcommunitiesarenot usedto payingfor wateror feel that waterissupposedto be afreecommodity.

4.4 Conclusionson AssessmentFactors

4.4.1 GenderSectorapproachdid not specifically define the issue of genderwithin theproject. The institutional staff on the project have not had formal gendertraining exposurewhich could limit the effective handlingof the gendersensitiveapproach.However, somegendercomplementarityandprejudicialdifferencesin male/femaleparticipationarevisible at the community level.Men and women have equal overall contributions.However, when thecontributionsaredisaggregated,womentendto havelower cashlevies thanmen regardlessof the ability to pay. The lower cash levies is nonethelesscounterbalancedby greater labour and time inputs. Notwithstandingthis,women are yet to be in strategic decision making positions in themanagementof the water systemor benefit from training. They seldomreceivetralningandif theydo, this is mostlyon hygieneissues.

4.4.2 Poverty

Even though communitiesare at different levels of poverty, the sectoralapproachdoesnot take poverty into considerationin the project design.Thus,povertyis not afactorwhenfixing theamountto becontributedby thecommunitytowardsconstructionof thewaterscheme.In the samevain,

26 PAID.WAJJNDf’~WBICAM

communitiesdo not also consider the specific issue of ability to pay ofcommunity memberswhenfixing operationsandmaintenance(O&M) cost-recoverycharges.

4.4.3 Participation

Communitiesareexcludedfrom almost all major decisionsbearingon theestablishmentof waterschemes.Ownershipof watersupply schemeis onlyshifted to communitiesafter completionfor O&M. Unfortunately,duringthis phasealso, community decisionsare mostly madeby male-dominatedstructures.Such structuresinclude water committeeswhich seemto havebeen created by the communities following external pressures. Thecommitteeshaveno real internal structureto determinecrucialO&M issues,amongstothers.They areequally inadequatelycapacitated.

-4.4.4 Demand-Responsiveness

Demand-responsivenessis the national se&or strategy and practice~Communitieshave to ask before the supply sectoracts. Unfortunately,nosafety netsseemto be in place tQ supportcommunitieswith low demandculture. For example,the level of awarenessas to the existenceof projectwaterfacilitiesin communitiesis low.

4.4.5 Sustainabiity

The perceivedlevel of sustainabilityof the assessedwater projectsmaybescoredbelowaverageif it is assumedthatthe measuredvariablespromoteorimpede sustainabilitydependingon their level. Community participationmainly through cashand kind contributions but limited decision-makingparticularly at- the initiation stage, non-involvementof communities indecision-making,poor internal structuresof watercommittees,insufficientgenderandpovertysensitivity andhigh proportionsof non-payingandlate-payingcommunitymembers,andthe low demandfurtherdo not sufficientlyenhance sustainability management of O&M components by thecommunitiesis howeverencouraging:-

4.4.6 Impact

Projectshavestrongperceivedimpact asanticipatedbenefitshaveall beenderived. However, the lack of data on the trend of water-relateddiseaseslimits judgmentas the actual impactof projects.This maybe low aswaterusebehavourhasnot substantiallychanged.

27 PAID-WAUNDP/WBdCAM

CHAPTER FWE

5.0 RECOMMENDATIONS

• A rational policy on water and sanitation need to be developedforCameroon.Suchapolicy mayhelp in determiningthe exigencefor watersupplywhichpresentlyseemsto beagency-mandated,andstandardisetheoperationalapproachnationally.

• Measures be taken to eradicate or minimise the seasonality andirregularity of waterflow from the sourcesThis may require the useoflongerpumpsanddeeperwells in situationssuchas in the DED sector.

• The capacityof staff,particularlythoseinvolved with socialwork, shouldbereinforced.Socialstaffneedtraining in genderandpovertysensitivity.

• Policiesand practicesin the water sectorhaveto be mademore genderand poverty sensitive. More women should be involved in strategicmanagementparticularlyas regardsparticipationin decisionmaking andstrategicmeetings.

• Appropriate managementstrategiesneed to be developed to enablecommunitiesrecovercost andkeep necessaryrecords. Such strategiesmayincludeprovidingcommitteeswith basicaccounting,budgettingand

‘7 communitymobilisationskills.

• Thereis a needto begincommunityownershipof waterschemesfrom theconstructionphase.Communitiesshouldbe provided informationon therangeof technologies along with their advantagesanddisadvantagessothattheycanmakeachoice.

• The demand-responsivenessapproachpractisedby projectsmayenhanceownershipbut safetynetsarenecessary,suchascreatingmoreawarenesswithin communitiesin orderto generatedemand.

28 PAID-WkUNDPJWBJCAM

REFERENCES

1. World Bank, World DevelopmentReport 1996: “From Plan to Market”,Oxford University Presspp. 184 - 208

2. J. A. Ngwa; “An OutlineGeographyof the FederalRepublicof Cameroon”,Longmans1969

3. Mathew Gwanfogbeand Ambroise Melingui: “Geographyof Cameroon”,MacmillanPublishers1985

4. Eduard Bos, Vu, MassiahandBulatao: “ World Population Projections”,1994-95Edition, A World Bank Book, The JohnsHopkins University Press,1994.

5 MartinBalepa,MedardFotso,BernardBarrere:“EnqueteDemographiqueetde SanteCameroun1991: MacroInternationalInc., 1992.

6. UNDP World BankProject,Field AssessmentReports,1998.

7. “HelvetasCameroon”.HelvetasCameroonSwissAssociationforInternationalCooperation,Cameroon.1997.

8. UNDP-WorldBank GenderAssessmentProjectFieldStudy, 1998

29 PAID.W&U1~DP~WB~CAM

ANNEXES

30 PAID-W&LJNDP/WB/CAM

Annex Cl

ASSESSMENTTEAM AND PARTICIPATING INSTITUTIONS

Project Managementfor WestAfrica: IRCInternational WaterandSanitation Centre

JenniferFrancis Representative

• WestAfrican Coordinating Institution: PanAfrican Institutefor Development- WestAfrica -

Team: RosettaBolaThompsonAndrewTayong

CoordinatorMember

HelvetasSwissAssociation(for North andSouthWestProvinces)

DED GermanDevelopmentService(forCentralProvince)

RoseElive }StephenAshu } HelvetasPeterNtche }

• Participating Institutions:

• Field Assessors:

HanneloreKnottCharlotteTchapmiHaraldZauter

}}DED}

31 PA1D-WAIJNDp/W~)CAM

Annex C2

UNDP-WORLD BANK ASSESSMENTPROJECT

COUNTRY REPORT: CAMEROON

DETAILS OF PARtICIPATING INSTITUTIONS

C. 2.1 Pan African Institute for Development- WestAfrica (PAID-WA)

The Pan African Institute for Development (PAID) is a non-governmentalorganizationestablishedin 1964, with activities covering 48 countriesof Sub—SaharanAfrica. It has recognizedinternationalstatus with governmentand non-governmentalorganizationsall overthe world; andcollaborateswith local, nationalandinternationalorganisationswhich supportAfrican development.

PAID operatesthrough four regional instituteslocated in Cameroon,ZambiaandBurkina Fasousingboth English and Frenchas official languages.Oneof theseisthe PanAfrican Institute for Development,WestAfrica basedin Buea,Cameroon.

PAID-WestAfrica,, like its parentbody, is adevelopment-orientedinstitution whosemain objective is to carry out activitieswhich promoteandreinforcethe capacitiesof African communitiesto initiate and effectively managetheir own development.Its strategy for achieving this purposeis through training, field researchandadvisory services. It is thus involved in a numberof programmesand projectscoveringthe broadthemesof~

• Developmentmanagementandfinancing;• Agricultureandrural development;• Genderanddevelopment; -

• Developmentof smallandmedium-sizedenterprises;• Trainingpoliciesandsystems;• Environment,healthandcommunitydevelopment.

PAID-West Africa has, since 1992, beencontributingto the developmentof thewaterandsanitationsectorin its regionmainly in the areasof capacitybuilding andsupport servicesat both community andagency levels, with a plan to extend topolicy level in duecourse.

At agencylevel, it has,in collaborationwith IRC InternationalCenterfor WaterandSanitation, ran training coursesfor seniormanagersin the water and sanitationsectoron Managementfor Sustainabilityin Rural WaterSupplyandSanitation.l’hiscoursestarted in 1993 and has graduatedover 85 senior staff from seventeenanglophoneAfrican countries.Since1994,the Institutehasalsobeeninvolved in aparticipatoryaction researchon an internationalproject on Managementof RuralWaterSuppliesin DevelopingCountries,with Cameroonas its studyarea.Withinthe four yearperiod, the communitiesinvolved have beenable to acquirenew

PAID.W&UNDWWB/CAM32

managementcapacity and methods, which will ensure sustainability of theirsystems.The project is at the disseminationphase to share the findings andexperienceswith organisations,projects, government departmentsand policymakerswithin and outsideCameroon.This involvespublicationsandpresentationsat variousforums,andthe productionof avideo for training andadvocacy.

The current LTNDP-WB assessmentproject Participation,Genderand Demand-Responsiveness:making the Links With Impact and Sustainabilityof WaterandSanitation Investment-isanother international sector programmein which theInstitute is making significant contribution within its region. PAID-WA iscoordinatingthisprojectin the WestAfrican region.

C. 2.2 HelvetasSwissAssociation

Helvetas is the worldwide name for the Swiss Association for InternationalCooperation.Foundedin 1955, it was the first privatedevelopmentorganizationinSwitzerland. Its main purposeis to actively contributeto the improvementof theliving conditionsof economicallyandsocially disadvantagedpeoplein Asia,AfricaandLatin America. Both within Switzerlandand abroad,Helvetasworkstowardsthe elimination of the causesof such disadvantagesand promotesinternationalsolidarity amongthe Swisspopulation.

Since its foundation,It hascontributedto developmentin many countriesandhason-going developmentprograms, in partnership with governmentsand non-governmentalorganizations,worldwide, including Cameroon.

In 1964, the first cooperationagreementwas drawn up betweenHelvetasandCameroon.At that time, until 1989,Helvetaswas knownin Cameroonby the nameSATA (Swiss Associationfor Technical Assistance).The agreementplaced theactivities of SATA within the Developmentof CommunityDevelopment (DCD).Togetherwith theTechnicalSectionof CDD, the SATA expertsconcentratedtheirefforts on the constructionof village water supplies,roadsand bridges. In 1967,SATA openedthe Building TrainingCenter(BTC) in Kumba,SouthWestProvince,whereover 1000 Camerooniansweretrainedin theoreticalandpracticalcoursesasmasons,foremen,plumbers,carpenters,road constructionworkers,caretakersandtechnicians.In addition,it sponsoredthe studiesof 26 civil engineers.By 1987,theBTC washandedoverto the governmentwhichcarriedon the training centerwith achangedconcept and under the new name REDSTS (Rural Equipment andDevelopmentSpecializationTrainingSchool).From 1969 on, SATA ran the CDDmechanical workshop in Kumba and later the one in Bamenda, North WestProvince.

The activitiesof SATA wereextendedfrom theanglophonepart of Cameroonto theWestandCentralProvinces,but by 1988,the decisionwasmadeto finish the SATAactivities after about 25 years of presencein Cameroon. During this period,approximately300 village waterprojects,quite afew roadsand bridgesas well assome health centers and community halls were constructedand financed, incooperationwith CDD andwith theparticipationof the concernedcommunities.

33 PAID-WAJJND~iWB~AM

However, in view of the difficult economic,political andsocial situation,Helvetascame,in 1989,to the conclusionto continueits work in Cameroonwith a modifiedconcept.A new agreementbetweenHelvetasandtheGovernmentof theRepublicofCameroonwassignedin December1989.This agreement,which is the basisof itscurrent activities, gives Helvetas, an independentNGO, the possibility tocollaboratewith governmentandnon-governmentalpartners.

Since1990 theHead Office of HelvetasCameroonhasbeenin Bamenda.Thus, itworks in close cooperation with local counterparts,government and non-governmental.It promotescapacity building amongits Cameroonianpartnerstoenablethem graduallyassumeresponsibilityfor the differentaspectsof the project.Planning,implementationandfmancingof developmentmeasuresis donein aclosecooperativepartnershipwith indigenouscounterparts,be they state institutions ornon-governmentalorganizations. Within the framework of such a cooperativeagreement,Helvetasin principle only assumesthosetasks which are beyondthelocal partner’sown ability. In Cameroon,its main governmentcollaboratorsin thesectorarethe Bamendaoffice for TechnicalAssistance(BOTA), aspecialunit of

- Departmentof CommunityDevelopment (DCD), the DCD itself, andthe Ministryof Mines, PowerandWaterResources.Its financial assistanceto projectsis m formof foreignaid.

The overall goal of HelvetasCarneroonis to contributeto the improvementof theliving conditionsof the rural population in the North West, SouthWest and WestProvinces.This goal is pursuedin four areas:rural infrastructure,-naturalresourcemanagement,womenpromotionandhumanrightsandcivic education.

C. 2.3 DED German DevelopmentService

DED participationin this programmeis throughthe projectnamedProvillage.Thisis a joint programmeof water supply between the Camerooniangovernmentrepresentedby three ministerial departments MTA Ministry of TerritorialAdministration, MMOWR M1NAGRI) and the Federal Republic of Germany

representedby DED (GermanDevelopmentService).It is financedby a grant toCamerooniangovernmentby theGermanBank for reconstruction(KFW).

The global objectiveof the project “Provillage II” is to supply rural communitieswith drinking water in terms of quality and quantity and to consolidate thesustainabilityof theacquiredwater.

34 PAID-W&UNDf~WThVAM

Its specificobjectivesas well as the expectedresultsas mentionedin its planningdocumentareshownin thefollowing table:

SPECIFIC OBJECTIVES EXPECTEDRESULTSTo give local partnersasenseofresponsibility

Managementtransfer:• Masteryof resources’management

Masteryof theprogrammeTo reinforceself-promotionoftherural communities

Watercommitteesandmaintenancecashboxareeffectiveandoperational

To train andsustaintechniciansandlocal craftsmen

TransferoftechnologyMasteryofthe constructiontechniquesof the watersystemsCraftsmenaretrainedandarecapableof workingindependently

To implicatemedicalinstitutions Improvementof the communitiesstateofhealth• Healtheducation• Sanitatioiicampaign• Globalknowledgeofthe population’sstateof

healthTo train andgive animatorsa senseofresponsibility

• Masteryof animationtechniquesin:• Waterproject• Otherproject

To implicatethe statestructures Efficiency of thestatesupervision• Programmemonitoringby the State• Control waterquality• Statisticaldatabankandotherinformation

To achievetheseobjectives,aplanof action wassetup which determinedfor eachobjective acertain numberof activities to be led. It also collaborateswith localpartnersfrom centre,southandlittoral provincesofthecountry.

Coordinationof theprojectis by a technicalassistantfrom DED.

Provillage’spolicy on genderis to involve womenin theprojectat stafflevel andinwatercommittees.It usesademandapproachfor its communityservices.

35 PAJD.WAUNDP~W8/CAM

Annex C 3

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