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AFRICAN DEVELOPMENT BANK AFRICAN DEVELOPMENT FUND
ADB/BD/WP/2012/06/Approved ADF/BD/WP/2012/04/Approved
13 February 2012
Prepared by: OWAS/GECL
Original: English
BOARD APPROVAL
Lapse-of-Time Procedure
FOR INFORMATION
MEMORANDUM
TO : THE BOARDS OF DIRECTORS
FROM : Cecilia AKINTOMIDE
Secretary General
SUBJECT : THE GAMBIA : PROPOSAL FOR AN ADF GRANT OF UA 1.11
MILLION AND A RWSSI TRUST FUND GRANT OF UA 3.58
MILLION TO FINANCE THE RURAL WATER SUPPLY AND
SANITATION PROJECT*
The Appraisal Report on the above-mentioned project, the Outcome of
Negotiations, the Technical Annexes, as well as the relevant Draft Resolutions
were submitted to you for consideration on a lapse-of-time basis on 13
February 2012.
Since no objection was recorded by 6.00 p.m, on the stipulated date, the
document is considered as approved, and the Resolutions adopted.
Attch.: Outcome of Negotiations + Technical Annexes + Draft Resolutions
Cc.: The President
* Questions on this document should be referred to:
Mr. S. JALLOW Director OWAS Ext. 2191
Mr. F. PERRAULT Regional Director ORWB Ext. 2036
Mr. K. GADIO General Counsel GECL Ext. 2032
Mrs H. N’GARNIM-GANGA Division Manager GECL.1 Ext. 2101
Mr. R. MWASAMBILI Water and Sanitation Engineer OWAS.1 Ext. 3584
Mr. A. ATTOUT Financial Analyst OWAS.1 Ext. 2297
Ms. K.P. NTOAMPE Principal Environmentalist ONEC.3 Ext. 2707
Mr. M. N’DIAYE Water and Sanitation Engineer OWAS.1 Ext. 2695
Mr. G. OSUBOR Social Development Specialist NGFO Ext. 6653
Mr. M. DIALLO Procurement Expert SNFO Ext. 6578 SCCD:C.H.
Language: English
Original: English
PROJECT: Rural Water Supply and Sanitation Project
COUNTRY: The Gambia
PROJECT APPRAISAL REPORT
Date: August 2011
Appraisal Team
Team Leader: Rees Mwasambili, Sr. Water and Sanitation Engineer – OWAS.1
Team Members: Ahmed Attout, Sr. Financial Analyst, OWAS.1
Kelello P. Ntoempe, Pr. Environmentalist, ONEC.3
Mahecor Ndiaye, Water and Sanitation Engineer, OWAS.1/SNFO
Gregory Osubor, Social Development Specialist, OSHD/NGFO
Mustapha Diallo, Procurement Expert, ORPF.1/SNFO
Sector Director: Sering Jallow
Peer Reviewers
Issakaku Budali, - Social Protection Specialist, OSHD/KEFO
Christopher Mutasa – Financial Analyst – OWAS.2
Ashraf H. Ayad – Procurement Specialist, ORPF.1
Eskendir Alemesged – Water and Sanitation Engineer, OWS.2
Tom. R. Mugoya – Water and Sanitation Engineer, OWAS.1
TABLE OF CONTENTS
I – STRATEGIC THRUST & RATIONALE ............................................................................ 1
1.1 Project linkages with country strategy and objectives .................................................... 1
1.2 Rationale for Bank’s involvement .................................................................................. 2
1.3 Donors coordination........................................................................................................ 3
II – PROJECT DESCRIPTION ................................................................................................. 3
2.1 Project components ......................................................................................................... 3
2.2 Technical solution retained and other alternatives explored ........................................... 4
2.3 Project type ..................................................................................................................... 5
2.4 Project cost and financing arrangements ........................................................................ 5
2.5 Project’s target area and population ................................................................................ 7
2.6 Participatory process for project identification, design and implementation ................. 7
2.7 Bank Group experience, lessons reflected in project design .......................................... 8
2.8 Key performance indicators ............................................................................................ 9
III – PROJECT FEASIBILITY ............................................................................................... 10
3.1 Economic and financial performance ........................................................................... 10
3.2 Environmental and Social impacts ................................................................................ 10
IV – IMPLEMENTATION ...................................................................................................... 12
4.1 Implementation arrangements ....................................................................................... 12
4.2 Monitoring .................................................................................................................... 12
4.3 Governance ................................................................................................................... 14
4.4 Sustainability................................................................................................................. 14
4.5 Risk management .......................................................................................................... 15
4.6 Knowledge building ...................................................................................................... 16
V – LEGAL INSTRUMENTS AND AUTHORITY............................................................... 16
5.1 Legal instrument ........................................................................................................... 16
5.2 Conditions associated with Bank’s intervention ........................................................... 16
5.3 Compliance with Bank Policies .................................................................................... 17
VI – RECOMMENDATION ................................................................................................... 17
Appendix I. Country’s comparative socio-economic indicators
Appendix II. Table of ADB’s portfolio in the country
I – STRATEGIC THRUST & RATIONALE ............................................................................ 1
1.1 Project linkages with country strategy and objectives .................................................... 1
1.2 Rationale for Bank’s involvement .................................................................................. 2
1.3 Donors coordination........................................................................................................ 3
II – PROJECT DESCRIPTION ................................................................................................. 3
2.1 Project components ......................................................................................................... 3
2.2 Technical solution retained and other alternatives explored ........................................... 4
2.3 Project type ..................................................................................................................... 5
2.4 Project cost and financing arrangements ........................................................................ 5
2.5 Project’s target area and population ................................................................................ 7
2.6 Participatory process for project identification, design and implementation ................. 7
2.7 Bank Group experience, lessons reflected in project design .......................................... 8
2.8 Key performance indicators ............................................................................................ 9
III – PROJECT FEASIBILITY ............................................................................................... 10
3.1 Economic and financial performance ........................................................................... 10
3.2 Environmental and Social impacts ................................................................................ 10
IV – IMPLEMENTATION ...................................................................................................... 12
4.1 Implementation arrangements ....................................................................................... 12
4.2 Monitoring .................................................................................................................... 12
4.3 Governance ................................................................................................................... 14
4.4 Sustainability................................................................................................................. 14
4.5 Risk management .......................................................................................................... 15
4.6 Knowledge building ...................................................................................................... 16
V – LEGAL INSTRUMENTS AND AUTHORITY............................................................... 16
5.1 Legal instrument ........................................................................................................... 16
5.2 Conditions associated with Bank’s intervention ........................................................... 16
5.3 Compliance with Bank Policies .................................................................................... 17
VI – RECOMMENDATION ................................................................................................... 17
Appendix I. Country’s comparative socio-economic indicators
Appendix II. Table of ADB’s portfolio in the country
Appendix III. Key related projects financed by the Bank and other development partners in
the Country
Appendix IV. Map of the Project Are3a
i
Currency Equivalents August t 2011
1 UA = Gambian Dalasi (GMD) 46.91
1 USD = GMD 29.34
1 UA = USD 1.60
1 UA = EURO 1.12
1 Euro = GMD 41.84
Fiscal Year
[January - December]
Weights and Measures
1metric tonne = 2204 Pounds (lbs)
1 kilogramme (kg) = 2.200 lbs
1 metre (m) = 3.28 feet (ft)
1 millimetre (mm) = 0.03937 inch (“)
1 kilometre (km) = 0.62 mile
1 hectare (ha) = 2.471 acres
ii
Acronyms and Abbreviations ADF African Development Fund
AfDB African Development Bank Group
AWF African Water Facility
CLTS Community Led Total Sanitation
CSP Country Strategy Paper
CSI Core Sector Indictors
DCD Department of Community Development
DIFD Department for International development, United Kingdom
DP Development Partner
DWR Department of Water Resources
EA Executive Agency
EC European Commission
EDF European Development Fund
EIRR Economic Internal Rate of Return
ESMP Environmental and Social Management Plan
EU European Union
GBS General Budget Support
GoTG Government of The Gambia
GPPA Gambia Public Procurement Authority
ICB International Competitive Bidding
IDB Islamic Development Bank
IFRS International Financial Reporting Standards
ISAs International Standards on Auditing
IWRM Integrated Water Resources Management
JAS Joint Assistance Strategy
JICA Japan International Cooperation Agency
JSR Joint Sector Review
MDGs Millennium Development Goals
MICR Multi-Indicator Cluster Report
MoFEA Ministry of Finance and Economic Affairs
MoFWRNAM Ministry of Fisheries, Water Resources and National Assembly Matters
M&E Monitoring and Evaluation
MoLGL Ministry Local Government and Lands
MTS Mid-Term Strategy
NAWEC National Water and Electricity Company
NCB National Competitive Bidding
NGO Non-Governmental Organization
NPV Net Present Value
NSC National Steering Committee
NWP National Water Policy
OWAS Operations, Water and Sanitation Department
PAGE Program for Accelerated Growth and Employment
PMU Project Management Unit
PRSP Poverty Reduction Strategy Paper
RWSSP Rural Water Supply and Sanitation Project
RWSSI Rural Water Supply and Sanitation Initiative
SDF Saudi Development Fund
TAC Technical Advisory Committee
TANGO The Association of Non-Governmental Organisations
UA Unit of Account
U-5 Under-5
UNDESA United Nations Department of Economic and Social Affairs
US$ United States Dollars
VDC Village Development Committee
VIP Ventilated Improvement Pit Latrine
VWC Village Water Committee
WATSAN Water and Sanitation
WB World Bank
WRIS Water Resources Information System
iii
Grant Information
Client’s information
RECIPIENT : Republic of The Gambia
EXECUTING AGENCY: Ministry of Fisheries, Water Resources
and National Assembly Matters
Financing plan
Source Amount (UA m) Instrument
ADF
1.11
Grant
RWSSI Trust Fund 3.58 Grant
GoTG 0.15 Counterpart
Beneficiary Communities 0.11 Contributions
TOTAL COST 4.95
ADB’s key financing information
Grant currency
(currency)
Interest type* NA
Interest rate spread* NA
Commitment fee* NA
Other fees* NA
Tenor (months)
Grace period (months)
EIRR (base case) 21%
NPV US$ 2.34
*if applicable
Timeframe - Main Milestones (expected)
Concept Note approval
July, 2011
Project approval January 2012
Effectiveness June, 2012
Last Disbursement December, 2015
Completion December, 2015
Last repayment NA
iv
Project Summary
1. Project Overview: The Rural Water Supply and Sanitation Initiative Project for The
Gambia (RWSSP) covers the five rural regions of the country. The aim of the Project is to
improve access to safe drinking water supply sanitation in the rural areas from the current level of
about 70% to 72% for water supply and from 40% to 44% for sanitation by 2015. The Project’s
main outputs include; (i) new multi-village solar powered water supply systems, (ii) rehabilitation
and up-grade of simple water systems into multi-village solar powered systems; (iii) improved
sanitation facilities for schools, rural health centers and public places(iv) institutional
strengthening for government departments on the project (iv) community education in sanitation
and personal hygiene. The RWSSP will be implemented over a four-year period, from 2012-2015, and will contribute to
serving an additional 65,000 people in rural Gambia. The total Project cost is UA 4.95 million,
sourced from the following; ADF Grant of UA 1.11 million (22%), Rural Water Supply and
Sanitation Initiative (RWSSI) Trust Fund of Euro 4 million (equivalent of UA 3.58 million)
(73%), Government contribution of UA 0.15 million (3%) and beneficiary community
contributions of UA 0.11million (2%). 2. Needs Assessment: According to The Gambia’s Poverty Reduction Strategy Paper
(PRSP) II, the key water sector challenge is to provide for sustainable development and
management of water resources to meet higher demands for domestic water supply and
sanitation, and other uses, in the face of increasing abstractions, climate change and variability,
and high urbanization. To address this challenge, amongst the key priorities of the sector are; (i)
implementation of the National Water Policy; (ii) strengthening of the human and infrastructure
capacities of sector institutions to perform their mandates; and (iii) to empower communities to
participate effectively in water management. Poor water and sanitation related-deaths account for 20% of under-five (U-5) deaths in the
Gambia. U-5 mortality rates in rural areas are estimated to be 36% higher than those in urban
areas. About 265,000 people in rural areas have no access to safe drinking water, and close to
twice that number do not use improved sanitation facilities. In addition, due to general poor
hygiene practices, there is a high level of water contamination (estimated at 79%) during handling
and storage which undermines the objective of having an improved water source.
The Bank’s involvement at this time seeks to assist The Gambia to develop the capacity to
provide safe drinking water on a sustainable basis, and specifically to address the unhygienic
handling of drinking water, and poor personal hygiene and sanitation practices. 3. Bank’s Added Value: The Bank has vast experience in supporting similar RWSSI
operations in other regional countries. Therefore the Bank’s added value would be in bringing and
applying best practices and the lessons from these projects to The Gambia. Financing the
proposed Project will consolidate the Bank’s continued involvement and support for the social
sector in the Gambia. 4. Knowledge Management: Knowledge generated during implementation of this Project
will be well documented from the various Project reports including quarterly progress, technical
and financial audit, midterm review and completion reports. As part of this Project support, the
Bank will support the revival of the Water and Sanitation Working Group (WSWG) and
introduction of annual Joint Water Sector Reviews which will be another platform of knowledge
generation and management. The knowledge gained will enrich Bank’s continued learning
process, and its support to the regional member countries.
v
Country and project name: The Gambia :Rural Water Supply and Sanitation Project
Project Purpose : To increase access to safe drinking water and improved sanitation and hygiene practices in the rural areas of The Gambia
RESULTS CHAIN PERFORMANCE INDICATORS MEANS OF
VERIFICATION
RISKS/MITIGATION
MEASURES Indicator (including CSI) Baseline Target
IMP
AC
T
Impact: effective and sustainable management of water
resources and improved climate risk management to support
socio-economic development and environmental sustainability in The Gambia”.
Percentage of people with access to
improved water supply (%).
Percentage of people with access to improved sanitation (%)
70% (2009)
40% (2009)
100% (2020)
90% (2020)
Multi -Indicator Cluster
(MICS) Report
Risk: Failure to implement WSS reforms
Mitigation: Continuous dialogue between
government and donors to encourage reforms
OU
TC
OM
ES
Outcome 1: Increase in number of people with access to
water supply and sanitation
Access to safe drinking water supply
(CSI);
Access to improved sanitation (% pop.)
(CSI)
70% (2009)
40% (2009)
72 % (2015)
44% (2015)
Water Resource
Information System
(WRIS)
MIC Report
Risk 1 : Water and sanitation sector remains
uncoordinated and fragmented
Mitigation 1: Technical support to re-activation
of Water and Sanitation Working Group and
introduce Joint Sector Reviews
Risk 2: Failure of current O& M systems due to
lack of strategy/plan
Mitigation 2 :Technical support to development
of O & M strategy/plan
Outcome 2: Increased number of people practising improved
hygiene behaviours.
% reduction in diarrhoeal diseases
20% (2006)
10% by 2015
OU
TP
UT
S
Component 1: Water Supply and Sanitation Infrastructure
Output 1.1: New water points
Output 1.2: water points upgraded/rehabilitated
Output 1.3: institutional and household latrines
1.1: No. new water points installed
1.2: No. water points
upgraded/rehabilitated
1.3: additional people provided with
improved latrines
1.1 :18 New multi-village
water systems (2015)
1.2 : 4 systems rehabilitated
and upgraded to solar; (2014)
1.3 : 20,000 (2015)
1. WRIS
2. Annual and quarterly
Project Progress
Reports
Component 2: Institutional Strengthening, and Capacity
Building/Training
Output 2.1: Revived WSS working Group
Output 2.2; Joint Sector Reviews
Output 2.3: Harmonised national O&M strat./fin.plan Output 2.4: VDCs and VWCs formed
2.1 Effective working Group in place
2.2: Joint Sector Review mechanisms
established
2.3 O & M strategy/ fin. plan in place
2.4: No. of new VWC formed and trained (% female) CSI
2.1: First WSWG meeting by
Dec.2012.
2.2 First JSR in 2013
2.3: National O&M plan in
place (2014) 2.4 60 (2014/15) (50% fem)
Quarterly and Annual
Progress Reports
JSR Report
Annual audits
Component 3: Hygiene Promotion & Education
Output 3.1 Training workshops on hygiene Output 3.2 latrines and hand washing facilities
Output 3.3 Produce IEC for Hygiene and sanitation
Output 3.4 Promote CLTS
Output 3.5 Update Sanitation baseline survey
3.1 No. of people trained (% female)
3.2 No of demonstration facilities installed
3.3 IEC materials reviewed and selected.
3.4 No. communities with CLTS
3.5. sanitation baseline survey updated
3.1 : 2,000 (50% female)
(2012-13) 3.2 :22 (2014)
3.3 : IEC Matls re-produced
(2013/2014)
3.4 : 30 (2015)
3.5 : 1 (2014)
SH-IMS
Quarterly and Annual
Progress Reports
Risk: Delayed community response/change to
hygiene messages Mitigation: Deliver hygiene promotion services
(good hand washing, proper use of improved
latrines etc). Promote continuous education to
be funded by the government after the project.
Component 4: Project Management
Output 4.1: Detailed multi-annual Work Plans
Output 4.2 Annual financial and technical audits
Output 4.3: quarterly progress reports
4.1 work & proc plan
4.2 No. of timely annual audits
4.3 No. of progress reports/yr
4.1 : 4 (2015)
4.2 : 4 (2015)
4.3 : 16 (2015)
Annual Technical and
Financial Audits
Project Progress Reports
Risk :Weak institutional capacity within EA to
implement the Project
Mitigation :Use of PMU in implementation
Risk: Proc. and Mismanagement of project
resources
Mitigation: Training in Bank rules, adherence to procurement plan
KE
Y
AC
TIV
ITIE
S COMPONENTS INPUTS
Component 1 : Rural Water Supply and Sanitation Infrastructure
Component 2 : Support to Institutional Strengthening and reform, and Capacity Building/Training Component 3 : Hygiene Promotion and Education
Component 4 : Project Management
Component 1 : UA 3.15m
Component 2 : UA 0.67m Component 3 : UA 0.48m
Component 4 : UA 0.65m
vi
THE GAMBIA RURAL WATER SUPPLY AND SANITATION PROJECT IMPLEMENTATION SCHEDULE 2012 - 2012
REPORT AND RECOMMENDATION OF THE MANAGEMENT OF THE ADB GROUP TO
THE BOARD OF DIRECTORS ON A PROPOSED GRANT TO THE GAMBIA FOR THE
RURAL WATER SUPPLY AND SANITATION PROJECT
Management hereby submits the following Report and Recommendation for a proposed ADF
grant for UA 1.11million and RWSSI-TF grant for UA 3.58 on ADF terms to the Government of
the Gambia to finance the Rural Water Supply and Sanitation Initiative Project (RWSSI). The
proposed Bank group financing to the RWSSI is the Bank’s response to a formal request by the
GoTG dated 30 March 2011, to support its efforts aimed at achieving sustainable provision of
safe water and hygienic sanitation facilities to the rural population of The Gambia. This project is
a continuation of Bank’s support to the country, and was prepared in March 2011 and appraised
in August 2011.
I – STRATEGIC THRUST & RATIONALE
1.1. Project linkages with country strategy and objectives
1.1.1 The Second Poverty Reduction Strategy Paper (PRSP II) (2007–2011), is Gambia’s
framework for reducing poverty and promoting economic growth. PRSP II covers five broad
thematic areas (pillars), with Pillar (iii) aiming at improving basic services (health, education,
water and sanitation) as one of the key priority areas for poverty reduction. The Government is
currently preparing a successor program, “Program for Accelerated Growth and Employment
(PAGE)”, for the period 2012-2015, as the successor to the PRSP II. PAGE is expected to be
approved by the Cabinet toward the end of 2011, and will build on the main thrust of PSPP II, with
the main focus on governance but will also include greater focus on infrastructure investments,
including water and sanitation.
1.1.2 The Bank’s support to PRSP II is based on the Joint African Development Bank /World
Bank Assistance Strategy (JAS/2008-11). Under Pillar (iii) of the JAS, Public service delivery in
education, health, water and sanitation, and rural electrification, the Bank programmed support to
urban water and sanitation for the Greater Banjul area under ADF 11/12. The amount of funds
for the Project was to be determined later. In 2010, the Government of The Gambia wrote to the
Bank indicating its preference to finance a Rural Water Supply and Sanitation Project instead of
the Greater Banjul Project. This was confirmed by a letter dated March 2011. This Project is
therefore based on this request. The current JAS ends in December 2011 and a joint AfDB/World
Bank mission will visit the country in the fourth quarter of 2011for consultations for the second
JAS.
1.1.3 The RWSSI Project supports Pillar III of PRSP II and Pillar I of JAS (focus (ii) which
aims at improving coverage of the basic social services (including Water and Sanitation) and
social protection needs of the poor and vulnerable. The Project will contribute to achieving the
objectives of this Pillar and will lead to an increase in the number of people in the rural areas
with access to safe drinking water and sanitation services to meet essential human need of the
population, and reduce poverty. Therefore the Project is in line with the JAS
2
1.2. Rationale for Bank’s involvement
1.2.1 Over 60%1 of Gambian population lives in poverty, of which 63% are women who carry
a disproportionate burden of poverty. Poor water and sanitation related-deaths account for 20%
of under-five (U-5) deaths. U-5 mortality rates in rural areas are estimated to be 36% higher than
those in urban areas. People in the project target areas rely mostly on unimproved shallow wells
and streams, which are often contaminated. Water in some areas is high in iron and manganese.
In addition, due to poor hygiene practices there is a high level of water contamination (estimated
at 79%) during handling and storage which undermines the objective of having an improved
water source.
1.2.2 The key water sector constraints include provision of sustainable development and
management of water resources to meet higher demands for domestic water supply and
sanitation, and other uses, in the face of increasing abstractions, climate change and variability,
and high urbanization. To address this challenge, amongst the key priorities of the sector are; (i)
implementation of the National Water Policy; (ii) strengthening of the human and infrastructure
capacities of sector institutions to perform their mandates; and (iii) to empower communities to
participate effectively in water management. These priorities make up the current water sector
reforms of The Gambia, and the Bank’s involvement at this time seeks to assist the government
to address these problems..
1.2.3 Further, the Bank’s intervention in the Rural Water and Sanitation Sector (RWSS) in the
Gambia is grounded in the extensive experience that it has acquired in supporting similar
projects in the region through RWSS Initiative. The Bank is among the largest financiers of
RWSS in Africa, and the proposed Project will further strengthen and consolidate gains achieved
from similar previous and on-going supports in the region.
1.2.4 The proposed project’s objectives are in line with the following relevant Bank strategies:
the Medium Term Strategy (MTS) (infrastructure and governance focus), the Joint Assistant
Strategy for The Gambia (2008-2011), and the Integrated Water Resources Management
(IWRM) Policy. Finally, it is in line with the RWSS initiative and contributes to the Bank’s
commitment to assisting member states achieve the MDG targets for water supply and sanitation.
The Project is also specified in the JAS as one of the operations identified for financing within
the current lending cycle (ADF 12).
1 MIC Report (2006)
3
1.3. Donors coordination
Sector or subsector* Size
GDP Exports Labor Force
Water and Sanitation N/A N/A NA
Players - Public Annual Expenditure (2002-2012)**
Government Donors
UAm 1.5 32.2
% 4% 96%
Level of Donor Coordination
Existence of Thematic Working Groups No
Existence of SWAPs or Integrated Sector Approaches No
ADB's Involvement in donors coordination*** none
* as most appropriate ** Years [yy1 to yy2] *** for this sector or sub-sector
**** L: leader, M: member but not leader, none: no involvement
Comments on Donor coordination:
1.3.1 The listed donors have supported The Gambia during the last ten years. There are
currently no formal donor coordination mechanisms in the water sector, and both the donors and
the government rely on informal coordination which tends to be ad-hoc and therefore weak.
UNICEF had in the past assisted the DWR to constitute a Water and Sanitation Working Group
(WSWG), which acted as a platform for sharing information and coordination. The Working
Group ceased operating a few years ago. Although it was not constituted within the framework
of the country’s aid coordination policy, the WSWG played an important role in managing sector
coordination. The MoFEA has now established an aid coordination unit which will assist sector
ministries, including the water sector, to set up donor coordination mechanisms. This Project will
support the reactivation of WSS working group and introduction of Joint Sector Reviews to serve
as first steps towards formal sector coordination. The Department of Water Resources will be
responsible for coordinating the sector, and will undertake the task with the support of
development partners in the Gambia. The project will assist in strengthening the department’s
capacity to perform the function.
II – PROJECT DESCRIPTION
2.1. Project components
The overall Water Sector Development Goal is “effective and sustainable management of
water resources and improved climate risk management to support socio-economic development
and environmental sustainability in The Gambia”. The objective of the Project is to increase
access to safe drinking water and improved sanitation in the rural areas of The Gambia from the
current level of about 70% to 72% for water supply and from 40% to 44% for sanitation by 2015.
JICA 37%
IDB 11%
AfDB 9%
EC 23%
Saudi Fund 16%
UNDESA 3%
Others 1%
4
It will provide safe drinking water and improved sanitation to an additional 65,000 people in
rural Gambia.
Table 2.1: Project components
nr. Component name Est.cost
(UA m)
Component description
1. Water Supply and
Sanitation
Infrastructure
3.15
Water Supply
Infrastructure -
works
18 new drilled boreholes (6-8-inch diameter), supplying piped
water to multi-villages/rural communities by means of stand –
alone solar powered pumping units, elevated water tanks,
simple distribution networks and public stand-taps;
Rehabilitation and upgrade 4 water supply facilities to solar
powered pumping units with elevated tanks, distribution
networks and public stand-taps.
Sanitation Infrastructure -
Works
50 Sanitation facilities in schools, rural health centers, markets;
Community Led Total Sanitation (CLTS) driven- latrines in
communities. A total of 1,000 latrines are planned.
2. Institutional
Strengthening and Cap
Building/ Training.
0.67
Services Reactivation and strengthening of WSS coordination and
introduction of Joint Sector Reviews. This will set the stage for
development of a national water sector programme,
Development of operation and maintenance Plans
Capacity development and training (DWR, DCD, regions,
communities), mobilisation
Goods Provision of logistical support and equipment.
3. Hygiene Promotion and
Education
0.48
Services Public health/sanitation awareness and hygiene promotion
School hygiene education awareness and promotion;
CLTS promotion
Undertake rural sanitation inventory
Equipment
Goods Re-production of sanitation and hygiene education materials;
4 Project Management 0.65
Operational costs PMU personnel, operational, and logistical costs
M&E
Audits
2.2. Technical solution retained and other alternatives explored
2.2.1 The project considered a few options, taking into account the available water resources,
various technologies, investment and operation and maintenance costs, availability of spare parts,
as well as staffing requirements. The bulk of the work of the proposed project shall mainly
involve drinking water sources and sanitation. The selected technical solutions are therefore
aimed at achieving as much as possible the original design study outputs undertaken by the
GoTG. The technology solution was also driven by the country’s experiences in those solutions,
user acceptability and affordability, and finally by the cost of the solution and operation and
maintenance practices.
5
2.2.2 For water supply, the technical solutions retained are based on tested options that are
functional for drinking water supply sources comprising solar powered multi-village schemes,
boreholes, and storage and distribution network, widely used in the Gambia. These are the drilled
boreholes (6-8-inch diameter), supplying piped water to larger communities (pop. 1,000 – 5,000)
or more than one-village (multi-) systems. The other option explored was to provide simple
hand-pump fitted boreholes and wells, which was abandoned for two reasons: (i) it is not
economically feasible in many parts of the country because of the depth of the ground water
level (deep), and the large water level fluctuations, and (ii) in areas where this was possible, an
Islamic Development Bank funded Project was providing water sources with this technology.
2.2.3 The sanitation component will focus on Community-Led Total Sanitation (CLTS),
sanitation social marketing, promotion of hand washing in schools and communities and Impact
Evaluation. The CLTS is a community-based approach which will aim at stopping open
defecation through use of social/peer pressure and education; collective community action to
assist vulnerable people and support public facilities. VIP latrines will be promoted in schools
and public places for their safety and hygiene.
Table 2.2: Project alternative considered and reason for rejection
Alternative name Brief Description Reasons for Rejection Oil powered pumping
systems.
Drilled boreholes with diesel-
powered pumping systems.
Very expensive option and also has negative
effect on the environment. Not sustainable in
rural communities.
Hand pumps. Drilled or hand dug wells fitted
with hand pumps.
Not suitable for large communities that are a
target of this project. Low rate of recharge and
water quality concerns. Long distances from
beneficiaries.
2.3. Project type
This proposed RWSSI support to the Gambia is a stand-alone operation designed to assist
the government of the Gambia meet its sector objectives. In future, the GoTG intends to adopt a
Program approach for development of water supply and sanitation services in all urban and rural
areas of the country. This is expected to come at the end of the currently on-going water sector
reforms which are being supported by the Bank through the African Water Facility (AWF).
2.4. Project cost and financing arrangements
2.4.1 The total cost of the Project is estimated UA 4.95 million, net of taxes and duties, of
which UA 3.55 million (72%) is in foreign currency and UA 1.40 million (28 %) in local costs.
Table 2.3 below provides a summary of the project costs by component. The cost estimates are
derived from the updated Basic Design Study undertaken by the government, while unit rates are
derived from suppliers and contractors, as well as from recent experience with similar on-going
operations in the country and in the region. The estimates include a physical contingency of 5%
and a price contingency of 2 % per annum.
6
Table 2.3: Project cost estimates by component [amounts in UA equivalents]
Components UA
S/N Foreign Local Total
Costs
% Foreign % Base
1 Water supply and Sanitation
Infrastructure 2,310,000 577,500 2,887,500 80% 58%
2 Institutional Strengthening and
Capacity building/training 484,890 121,222 606,113 80% 12%
3 Hygiene Promotion and
Education 322,500 80,625 403,125 80% 8%
4 Project Management 82,255 486,709 568,964 14% 11%
Total base cost 3,199,645 1,266,056 4,465,701
Physical contingency (5%) 177,332.10 70,167 247,500 72% 5%
Price Contingency (2%) 169,665 67,134 236,799 72% 5%
Total project cost 3,546,642 1,403,358 4,950,000 72% 100% Note: Exchange rates are provided in the introduction of this report (page (i))
2.4.2 The Bank will finance the capital costs of the Project, while the government and
communities will contribute towards administrative, and operation and maintenance costs of the
facilities. The indicative breakdown of the funds contributed to the Project is presented in Table
2.4 below.
Table 2.4: Project Financing Plan [amounts in 000 UA equivalents]
UA'000 %Total
Source Foreign Local Currency Total 1. ADF 820 290 1,110 22.43 2. RWSSTF 2,725 855 3,580 72.32 3. GoTG - 150 150 3.03
4. Communities - 110 110 2.22
Total 3,545 1,405 4, 950 100
The cost of the project by category of expenditure is presented on Table 2.5 below
Table 2.5: Project cost by category of expenditure [‘000 UA equivalents]
Categories of expenditure UA ‘000
Foreign Local Total Costs % foreign
A. Works 1,528 359 1,887 81 B. Goods 838 114 952 88 C. Services 471 575 1,046 45 D. Miscellaneous 134 447 581 23
Total base cost 2,971 1,495 4,466
Physical contingency 177 70 247 72
Price Contingency 170 67 237 72
Total project cost 3,318 1,632 4,950 67
7
The expenditure schedule by component is presented in Table 2.6 below.
Table 2.6: Expenditure schedule by component [UA equivalents]
UA
Components 2012 2013 2014 2015 Total
1 Water supply and Sanitation
Infrastructure 57,750 1,155,000 1,010,625 664,125 2,887,500
2 Institutional Strengthening and
Capacity building/training 181,834 212,139 121,223 90,917 606,113
3 Hygiene Promotion and Education 60,469 141,094 120,938 80,625 403,125
4 Project Management Framework 113,793 170,689 170,689 113,793 568,964
Total base cost 413,845 1,678,922 1,423,474 949,460 4,465,701
Physical contingency (5%) 22,936 93,050 78,892 52,621 247,500
Price Contingency (2%) 89,314 81,037 47,459 18,989 236,799
Total Project Cost 526,096 1,853,009 1,549,825 1,021,070 4,950,000
2.5. Project target area and population
The proposed Project will be located in all the rural regions of the Gambia: the North
Bank, Central River, West-Coast, Upper River and Lower River Regions, and will serve an
estimated population of 65,000 people in 22 villages, which are currently poorly served.
Effective supervision of implementation will be ensured through technical assistance to be
financed through the Project, working closely with DWR. The list of the villages that will benefit
from the project has been provided by the Department of Water Resources. Government agencies
at central and regional levels, the private sector and the civil society who will participate in
implementation are indirect beneficiaries of the Project. Staff from government departments will
receive training in relevant project management skills; the private sector will be involved in
construction and supply of project goods and services, while the civil society/NGOs will provide
services that include training and mobilisation. The Project will contribute to the government’s
aim of reaching the related MDG targets for rural water supply and sanitation, with significant
reduction in water-borne diseases; improvements in school attendance and retention (particularly
the girl child) and increased productive time for the target population (especially women)
resulting from time savings in water collection. List of selected villages is provided in Technical
Annex C.
2.6. Participatory process for project identification, design and implementation
The Bank’s Identification/Preparation and Appraisal Missions consulted widely with the
stakeholders, from the central government level to the communities. Those consulted included
policy makers in government agencies, health and local government officials, beneficiary
community groups, village water committees and NGOs. The consultative process was important
to get stakeholder feedback about the Project and to also incorporate their views in the design.
As part of this process, the mission undertook field visits to validate the data and information
collected at central government level, and to assess the level of involvement of the potential
beneficiaries. It was noted, and confirmed by communities, that the selection of sites was
8
conducted in a participatory manner involving all stakeholders, guided by very clear village and
site selection criteria developed by the government. These criteria included: (i) communities with
population of greater than 1000 people; (ii) track record of good maintenance of other
government provided infrastructure ; (iii) Ability of villagers to deposit a sum of D 25000.00
(equivalent US$ 853) before the start of drilling towards a maintenance fund; (iv) Willingness of
villagers to provide land for the borehole, solar panel and tank area; and (v) Villages that are not
more than 1.5 km apart are clustered and supplied from one system.
The consultative process also gathered the following views which have been incorporated
in the project design: (i) inclusion of sanitation facilities at ‘loomos2; (ii) implementation of
specific project components through the appropriate government ministries. Therefore, sanitation
and, hygiene promotion and education will be implemented through the Departments of Health,
and Community Development respectively, (iii) Revival of the water and sanitation working
group, as opposed to beginning a new process to develop and enhance sector coordination. The
appraisal mission included two-day RWSS stakeholder workshop during which the findings and
recommendations of the mission were presented for validation.
2.7. Bank Group experience, lessons reflected in project design
2.7.1 The Bank Group Portfolio in The Gambia to date involves 63 approved operations with a
total net commitment value of about UA 236.98 million. The on-going operations have a total
commitment of UA 25.1 million (excluding multinationals) and a disbursement ratio of 34% as
at 2 November, 2011.
2.7.2 The Gambian water sector has received support from a number of donors during the last
10 years, which includes IDB, EU, JICA, AfDB and the Saudi Fund. Lessons from projects
implemented by these donors (stated in bracket at the end of each lesson), as well as other
completed Bank projects include:
(i) Support to Policy and Reforms: The Gambia is currently implementing water sector
reforms whose main goal is to ensure “effective and sustainable management of water resources
to support socio-economic development and environmental sustainability in The Gambia”. The
Reforms, based on the National Water Policy (2006), are being implemented through a Bank
financed “Support to National Water Sector Reforms Project” that was approved in 2010. The
Project had just fulfilled conditions precedent to first disbursements at the time of appraisal for
this project (September 2011). The Project’s expected outcomes include (i) Improved
governance of water resources based on IWRM established in the country; and (ii) Enhanced
capacity available in The Gambia to manage the nation’s water resources. (AfDB-2011)
(ii) The Bank funded ISPFEG Project (2006-2010) drew this lesson that all capacity building
and institutional support have to be anchored within the Government’s policy reforms to ensure
their sustainability. The proposed project supports the National Water Policy (2006) and the
Water Sector Reforms by centering implementation in the defined structures and through
decentralized planning and implementation.(ADB ISPEEG Project– 2010).
2 Loomos: weekly markets which draw people from a number of villages.
9
(iii) Use of fewer Indicators: ensure the use of core indicators by keeping the indicators at a
minimum number given the existing weak capacities and operational efficiencies. (AfDB-2009).
(iv) Sustainability of infrastructure: It is important to have a clear strategy and plan on
operation and maintenance in rural water supply and sanitation infrastructure. Introduction of
user-fees (for drinking water and public latrines) that reflect the full cost of operation and
maintenance of facilities, as well as a need for an O and M plans in place is key to long-term
sustainability. The project will support development of an O and M plans, which will also
include modalities for managing user fees that will be charged at these facilities.(IDB-2008)
(v) Use of institutional comparative advantages: prioritising of water needs in the rural areas
based on decentralised institution (decentralised planning) and the implementation carried out by
the DWR (centralised implementation), has proved to be the most efficient and cost effective
way of achieving coverage targets. It combines the comparative advantages of decentralised
decision-making with the technical strength of the DWR (EU Project – 2010);
(vi) Integration of Sanitation and hygiene promotion in water projects. Water supply,
sanitation and hygiene promotion, being the key components of the project, will be implemented
as a unit. All sanitation facilities will be provided with water and hand washing facilities.(EU
Proj.-2010)
(vii) Simplifications of conditions for first disbursements in order to speed up project take off.
(AfDB).
2.8. Key performance indicators
2.8.1 The Project key performance indicators are set out in the Results Based Logical
Framework. Progress in implementation will be measured on a regular basis through a variety of
means including bi-annual Bank supervision missions, Quarterly Progress Reports, and annual
technical and financial audit reports. The PMU will be responsible for collecting, and analyzing
project information to monitor performance.
2.8.2 The main indicators defined for monitoring the project’s impact were developed with
the Government of the Gambia and validated during a one-day RWSS stakeholder workshop
held on 12 August 2011. These indicators also address the Bank’s Core Sector Indicators (CSI),
and include the following: access to water supply and sanitation; functionality of facilities and
community - level management institutions; water quality; gender representation, and the
number of people trained in safe hygiene practices (segregated by gender).
10
III – PROJECT FEASIBILITY
3.1. Economic Performance
Table C.1: key economic figures
EIRR: 21.48%
ENPV: USD 2.34Million
NB: detailed calculations are available in Annex B7
3.1.1 The project is economically viable as shown in the above indicators. The assumptions
that serve as the basis for calculations of the EIRR are provided in Annex B7. The main
assumption is based on the investment, operations & maintenance and reinvestment cost during
the life of project. The economic return of the project consist of health benefits resulting from a
decline in water-borne diseases, time savings and a general improvement in health conditions
and increase in productivity.
3.1.2 The project has other substantial economic benefits such as environmental and social
benefits which could not be quantified because of non-existence of data. Most of the project
facilities would have almost reached the end of their economic live, such that the salvage values
would be negligible and would not make an impact on the evaluation of the project EIRR.
Hence, and as a conservative measure for the computation of the EIRR, no residual value has
been considered at the end of the project’s life span.
3.2. Environmental and Social impacts
3.2.1 Environment
The Project is classified under category 2 of ESAP, and has been validated by the Bank in April
2011. The Project infrastructure involves (i) drilling boreholes to be equipped with submersible
solar powered pumps (ii) rehabilitation/upgrading of existing schemes to solar powered facilities
and (iii) construction of latrines. These facilities are located on multiple sites none of which are
in protected or sensitive areas. The Project has no detrimental effects and most of the impacts
will be temporary and short-term during construction (such as dust emissions, noise pollution
etc.), and all of the impacts, including permanent ones (such as installation of water tank
infrastructure) will be mitigated through the implementation of the Environmental and Social
Management Plan (ESMP) of each sites
The Gambia’s legislative requirements for this Project do not require any form of authorisation
to implement it, while the Bank’s procedures require preparation of an ESMP, An ESMP has
been prepared as per the Bank policy, and the . Gambian National Environmental Agency will
monitor implementation of the Project on the basis of this ESMP.
3.2.2 Climate Change
The project has potential to generate climate change benefits through adaptation of initiatives to
climate change variability. The Project will mitigate the effects of climate change through its
exclusive use of solar energy technology in water supply pumping systems. The use of solar
11
energy for pumping water, and planting of vegetation to blend the infrastructure will counteract
the minimal effect the project may contribute to climate change. Potential adverse effects
associated with high temperatures, reduced rainfall (groundwater recharge) and increased evapo-
transpiration deficits may affect the project negatively. The pilot use of ecological sanitation
latrines is one way that will make the project climate-friendly.
3.2.3 Gender
The project will ensure that gender issues are well mainstreamed in all its activities. This will be
demonstrated in a balanced representation of both male and females in project activities and in
provision of water supply and sanitation facilities that are convenient to women and girls
especially. Women and the girls in The Gambia, like in most regional member countries,
disproportionately bear more of the consequences of poor water supply and sanitation because
they are traditionally responsible for fetching water for household use. They are also less
represented at decision making levels across all sectors. During community mobilisation and
training, the Project will ensure that there is at least 50% women participation and representation.
The project will also implement training targeting women to equip them to participate effectively
in Village Development Committees’ (VDCs) activities, including taking up leadership
positions. Their security, privacy, dignity and health conditions are expected to improve through
provision of ergonomic water and sanitary facilities in schools, market places and households.
Provision of adequate facilities will lead to increased school attendance and income. All these
will culminate in socio-economic empowerment of women thereby improving their living
conditions.
3.2.4 Social
Poor water and sanitation account for more than 20% of the rural under-5 mortality in the
country. Successful implementation of this Project will result in increased survival rates of
children through reduction in water-related diseases including diarrhoea, dysentery, cholera and
others. Malaria and diarrhoeal incidence in under-5 are expected to reduce by 50% from 21%
and 24% respectively by 2015. On HIV/AIDS, the project can contribute to the impact by
minimizing the chances for opportunistic water related infections, as well as through the public
health enlightenment campaigns under the sanitation and hygiene promotion.
Education will be positively impacted by the project through; i) improving girl-child school
attendance and survival in school until Grade 12 (currently drop-out rate of 60% at grade 9 and
26% at grade 12) by freeing them of the traditional role of fetching water for household use;
providing sanitation facilities in schools; ii) attracting teachers to the rural communities with the
availability of safe water and sanitation thereby improving on learning outcomes; and iii)
Improved health conditions of pupils for learning.
The project will provide job opportunities unskilled labourers and artisans in the communities as
it is committed to using local people from the communities in agreement with contractors in the
construction of water and sanitation facilities. Capacity building for about 120 community
volunteers on toilet construction will provide them with skills. The planned management and
12
financial/record keeping training for VDCs and water committee members under the project will
improve communities’ abilities to manage community based development facilities.
3.2.5 Involuntary resettlement
There is no involuntary resettlement expected as a result of project activities.
IV – IMPLEMENTATION
4.1. Implementation arrangements
4.1.1 Implementation arrangements: The proposed Project will use existing government
structures in implementation, incorporating lessons and experience gained with similar
operations in the Gambia and the region. The GoTG shall be the recipient of the ADF and
RWSSI TF Grants while the Ministry of Fisheries, Water Resources and National Assembly
Matters (MFWRNAM) will be the Executing Agency (EA) of the Project. The Department of
Water Resources (DWR) in MFWRNAM will be responsible for implementation, and shall
delegate this role to an existing Project Management Unit currently financed by the IDB. An
assessment made by the Bank on the capacity of the existing PMU to implement the Project
determined that it had the necessary core skills but required other additional skills to be
sufficient. Therefore three additional staff (a Rural Water Supply Engineer, a Social/Sanitation
specialist, and a Monitoring and Evaluation specialist) will be added to the existing four
members of the PMU. All members of the PMU will be engaged as individual local consultants
in accordance with Bank rules. The project will use an existing Project Steering Committee
overseeing the IDB-funded Project, which will be transformed into a National Steering
Committee (NSC). The NSC will provide policy coordination in the implementation of the
Project, and its membership will be drawn from the following institutions: MoFWRNAM, DWR,
Ministry of Finance and Economic Affairs, Office of the President, Ministry of Local
Government and Lands, National Environment Agency, Women’s Bureau, the Ministry of
Health and Social Welfare, and The Association of Non-Governmental Organisations (TANGO).
The NSC will meet quarterly. A Technical Advisory Committee (TAC) will be formed to
provide technical guidance and quality assurance to the PMU.
4.1.2 At regional and community levels, the project will be implemented through the
decentralised structures of the local government authorities (area councils), the ward and village
development committees. The Area Councils are responsible for planning, resource mobilization,
demand creation; service delivery; support to community and households; making and enforcing
ordinances and other related laws, and are supported in undertaking these tasks by a district-
based technical committee. At ward to village levels, technical support is provided by the
Multidisciplinary Facilitator Team (MDTF) and the WATSAN committees.
4.1.3 Financial Management: The PMU will maintain records and accounts for the Project
showing all the required project financial details, including expenditures by component and
category/activity. It will also be responsible for generating and reporting quality, timely, and
quarterly Interim Unaudited Financial Reports (IUFRs) and any other financial reports as may be
13
required during implementation. The Ministry (EA) will be responsible for the preparation and
submission of withdrawal applications from the Bank. An independent external auditor
acceptable to the Fund will undertake annual financial and technical audits of the project, and
funding for this is included in the project cost.
4.1.4 Procurement: All procurement of goods and works and acquisition of consulting services
financed by the Fund will be in accordance with the Fund's Rules and Procedures for Procurement
of Goods and Works (May 2008 edition) or as appropriate, Rules and Procedures for the Use of
Consultants (May 2008 edition), using the relevant Bank Standard Bidding Documents. The Project
Management Unit (PMU) will be responsible for the procurement of goods, works, consulting
services, training, operating costs and miscellaneous items. An assessment of the PMU to carry out
procurement under the ADF financing was undertaken and it was concluded that the Unit will
need further strengthening. To address this shortcoming, an experienced Procurement Officer
will be recruited on short-term basis through a competitive process with Terms of Reference
acceptable to ADF to undertake all procurement related activities on behalf of the Unit.
Technical Annex B5 provides details on the list of procurement items, procurement rules and
procedures relating to goods, consulting services, and training, as well as the review procedures
required by the Bank.
4.1.5 Disbursement: The combined ADF and RWSSI TF grant is anticipated to be disbursed
over a four year project period, between January 2012 and December 2015. The EA will be
required to open a foreign currency Special Account in a bank acceptable to ADF. This account
will hold the proceeds of the grant. Opening of the Special Account will be a condition precedent
to the first disbursement. The request for disbursement shall always be accompanied by a
schedule of activities for the next six months, and supporting documents justifying expenses
incurred from previous requests. For ICB and NCB packages and consultancy services,
disbursements will be made direct to the suppliers and contractor. Other payments, including
community mobilization, hygiene promotion and education, as well as related operational costs
will be paid through the Special Account.
4.2. Monitoring
4.2.1 The Project will be monitored by the Project Management Unit, based on the Project
Results Based-Log-frame indictors, and using data and support from DWR and the NGO
implementing the hygiene promotion and education component, and other contractors.
Monitoring will observe the indictors and related sources of verification in the logframe. These
indicators will be reviewed at the end of each year. The PMU will be responsible for monitoring
and preparing project performance reports, and report regularly to the NSC and to the Bank. The
Bank will monitor implementation through joint supervision missions with the Government.
Another level of monitoring will be through quarterly progress reports and annual technical and
financial audits. A monitoring and evaluation officer will be appointed in the PMU. The Project
has allocated resources for this activity. Key monitoring milestones are presented below.
14
Timeframe Milestone Monitoring Process/feedback Loop 01/2012 Grant Approval ADF Approval/ Bank letter to GoTG 03/2012 Grant Effectiveness Bank/GoTG – Bank letter to GoTG 04/2012 Project Launch Mission Bank/GoTG 09/2012 First Disbursement Bank/GoTG: Fulfilment of conditions by GoTG 04/2014 Mid-Term Review Bank/GoTG 2012-2015 Supervision Missions Bank 12/2015 Project Completion Report GoTG/Bank
4.3. Governance
The Gambia’s water governance is still under development and requires strengthening.
The National Water Policy (2006), which is the basis of the current water reforms, seeks to
strength the institutional and organisational set-up of the sector. The current policy and legal
framework has overly centralised decision making in national level institutions (DWR and
NAWEC). However, the decentralisation program will devolving some of the decision making
functions to lower level institutions and broaden wider participation (at the community and local
government levels) in planning and implementation. Potential risks emanates from procurement
decisions, use of project assets, and selection of staff for training. These risks will be mitigated
with adherence to the prepared detailed procurement plans, which will be updated quarterly, and
in application of Bank standard rules and guidelines. Use of assets will be governed by
appropriate Bank and government rules. The Bank will also provide training to the PMU staff,
starting with the project launch mission, to ensure that they are aware of all relevant Bank
requirements and regulations. Independent financial and technical audits will be undertaken
annually. Compliance with these controls will be reviewed during supervision missions.
4.4. Sustainability
Sustainability is central to the success of this Project, and in the design it is ensured in the
following ways:
4.4.1 The commitment of the Government to the Project is manifested in the PRSP and vision
2020, both of which prioritized water supply and envisaged 100% coverage by 2020. With the
continued support of development of partners, such as in the Project, this commitment can be
translated into ensuring sustainability of project outputs.
4.4.2 Implementation will be based on a demand responsive approach. Stakeholders, including
the communities will be involved in project cycle activities to ensure a sense of ownership and
commitment to the project. The Project will use the integrated WASH approach, which combines
the provision of water and sanitation, sensitization and mobilization of the communities, and
promotes the participation of the communities in the identification and implementation of the
facilities in their areas, enhances the sustainability of the services to be provided by the program.
4.4.3 Financial sustainability will be assured by ensuring that the selected project communities
contribute towards the operational costs of water supply schemes in their respective areas. Work
15
will only begin in an area once there is evidence of this contribution, proposed to be a sum of
GMD 25,000 (US$ 853 equivalent) in cash, and other in-kind contributions outlined below. The
beneficiary communities will be fully responsible for the operation and maintenance costs as
well as the management of the services through the Village Water Committees. In addition, they
will provide land on which the installations will be made and labour for excavation and
backfilling of the pipe-lines. The Project will support the development of national Operation and
Maintenance strategy/plan and working with other development partners will assist the
government to ensure financing for the plan.
4.4.4 Technical sustainability will be ensured through the use of technologies for which the
relevant technical expertise exists in the country. Solar powered water schemes have been
implemented in The Gambia for over 15 years, and over this period the country has built systems
and capacities involving the public and private sectors. The private sector based in the Gambia
supply the solar components are also responsible for maintain the systems for up to five years
after installation. In addition, there will be training of community VDCs and VWCs and local
service providers in operations and maintenance of the selected technology options.
4.4.5 Environmental sustainability will be assured by timely implementation of the ESMP and
involving in monitoring the Gambian National Environmental Agency.
4.5. Risk management
4.5.1 The Project assumes (i) continuing efforts to strengthen institutional capacities in the
Gambia public sector; (ii) continuing government support to the decentralization process, and
implementation of the Water Sector reforms; (iii) DWR acting as a implementer of RWSS; and a
positive communities response to the Project. The current risks include the following:
4.5.2 Weak Institutional Capacity: This major risk of weak institutional and implementation
capacity is mitigated by, firstly, using a project management unit, staffed by individual
consultants, to assist the EA with project implementation and management, and secondly,
supporting training at the various levels of implementation.
4.5.3 Delays in water sector reforms: Delays and failure to implement the reforms fully would
result in continued weak institutional capacities leading to poor sector management and
sustainability of project outputs. In mitigation, the project will support institutional, management
and capacity building activities at various implementation levels.
4.5.4 Uncoordinated water sector: The lack of sector coordination weakens government ability
to manage the sector and mobilise resources. In mitigation, the proposed project will assist the
government to revive and formalise water sector working group and will introduce annual joint
water sector reviews to enhance sector development and coordination
4.5.5 Operation and maintenance system: A major issue on operation and maintenance of rural
water supply and sanitation is the absence of a government-defined O&M strategy/plan
framework. Different projects have developed their own O and M systems, and these require to
be harmonised. Sustainability will be improved by government support to the private sector in
16
making spare parts and technical expertise more accessible to the sector. In mitigation, the
Project will support government in developing an O&M strategy/plan harmonising all the
existing systems, which will also reinforce the private sector role to perform their task.
4.5.6 Community resistance to adopt safe hygiene practices: There is a risk of delayed response
to improved hygiene promotion. In mitigation, the project will deliver hygiene promotion
services (good hand washing, proper use of improved latrines etc.) that bring about sustained
behaviour changes. It will also finance and promote a continuous education strategy which can
be funded by the government after the end of the project.
4.6. Knowledge building
4.6.1 The knowledge gained from the implementation of this project will strengthen DWR and
other participating institutions in a number of ways including: cooperation in implementation of
multi-institutional projects, knowledge sharing across participating institutions, the capacity to
manage bottom-up planning processes, promoting sustainable practices in the use of facilities.
Lower level institutions at regional area council and community levels (VDCs) will gain
knowledge and skills from various trainings to be offered in participatory planning and
budgeting, monitoring and supervision.
4.6.2 The Bank’s launching and supervision missions, quarterly and annual progress reports,
mid-term review, financial and technical audits and completion reports will also provide
information on various aspects of the project for further diagnosis. The knowledge obtained will
be shared within the Bank and with other development partners as well as with RMCs.
V – LEGAL INSTRUMENTS AND AUTHORITY
5.1. Legal instrument
Grant Protocol of Agreement: ADF Grant (UA 1.11 million) and RWSS-TF (Euro 4 million) will
be used to finance the Project.
5.2. Conditions associated with Bank’s intervention
5.2.1 Conditions for effectiveness
The Grant Agreements will come into effect on the date of their signature by the Government of
The Gambia and the African Development Fund.
5.2.2 Conditions Precedent to First Disbursement of the Grants: The obligation of the Fund to
make the first disbursement of the Grants shall be conditional upon the entry into force of this
Agreement and evidence by the Recipient to the satisfaction of the Fund, that the following
conditions have been fulfilled:
(a) Opening of a foreign currency Special Account and a local currency special account in
bank acceptable to the Fund for the deposit of the proceeds of the Grant; and
17
(b) Approval by the National Environment Agency of the Environment and Social
Management Plan (ESMP) for the implementation of the Project.
5.2.3 Undertakings. Under this Agreement, the recipient hereby undertakes the following:
(a) To ensure that the National Steering Committee meets on a quarterly basis, and to
report on the outcome of the meetings in the quarterly progress reports to the Fund.
(b) To implement and report on the implementation of the Environment and Social
Management Plan on a quarterly basis in a form acceptable to the Fund.
5.3. Compliance with Bank Policies
( X ) This project complies with all applicable Bank policies.
( ) The following exceptions to Bank policies are recommended for approval. The project
complies with all other applicable Bank policies
Non-standard conditions (if applicable): None.
VI – RECOMMENDATION
Management recommends that the Boards of Directors approve the proposed grant of UA
1.11 million (ADF) and Euro 4 million (RWSS TF) to the Government of the Gambia for the
purposes and subject to the conditions stipulated in this report.
Appendix I. Country’s comparative socio-economic indicators
Appendix II. Table of ADB’s portfolio in the country
List of active projects (loans and grants) by Sector
last missi Last end IP DO
Agriculture ADF Grant LIVESTOCK AND HORTICULTURE DEVELOPMENT P-GM-AA0-012 OnGo 12/26/2008 1/9/2009 12/31/2014 4,020,000.00 1,053,742.14 26.21 3/8/2011 3/22/2011 2.29 2.50
Agriculture ADF Loan NERICA DISSEMINATION PROJECT - GAMBIA P-Z1-AA0-069 OnGo 9/26/2003 11/3/2003 12/30/2011 1,560,000.00 1,264,010.63 81.03 6/12/2011 6/19/2011 2.07 2.75
Agriculture NTF ARTISANAL FISHERIES DVPT (SUPP) P-GM-AAF-005 OnGo 6/22/2009 7/13/2009 12/30/2012 5,000,000.00 2,338,759.94 46.78 6/27/2011 7/8/2011 2.64 2.75
Agriculture GEF SUSTAINABLE LAND MANAGEMENT PROJECT P-GM-AZ0-001 OnGo 10/26/2010 12/17/2010 6/30/2014 2,774,449.84 227,000.44 8.18 NR NR
Total Agriculture 13,354,449.84 4,883,513.15 36.57
Water Supply AWF TF SUPPORT FOR NATIONAL WATER SECTOR REFORM P-GM-EAZ-001 OnGo 4/7/2010 7/23/2010 4/30/2013 1,755,596.75 353,135.40 20.11 NR NR
Total Water Supply 1,755,596.75 353,135.40 20.11
Multi-Sector
(Institutional Support) ADF Grant ISP FOR ECONOMIC & FNANCIAL GOV. P-GM-KF0-001 APVD 9/30/2011 10/12/2011 6/30/2015 2,000,000.00 0.00 0.00 NR NR
Total Multi-Sectot 2,000,000.00 0.00 0.00
Social (Poverty Allevation
And Micro-Finance) ADF Grant ENTREPRENEURSHIP PROMOTION AND MICROFINA P-GM-IE0-003 OnGo 11/15/2006 12/20/2006 12/31/2012 8,000,000.00 3,380,562.60 42.26 8/7/2011 8/16/2011 2.69 3.00
Total Social Sector 8,000,000.00 3,380,562.60 42.3
Grand total 25,110,046.59 8,617,211.15 34.3
NR=Not Rated
Sector
Status of Bank Portfolio in Gambia as at 02 November, 2011
Signature
Date
Approval
DateStatus SAP CodeOperations
Source of
Finance
Last Mission Rating
Disb.
Ratio
Amount
Disbursed
Amount
Approved
Closing
Date
Appendix III: Key related projects financed by the Bank and other development partners in the country
Funding Source Project Name Amount Description Period
Saudi Fund Saudi Sahelian Programme Phase 4 US$8 Million Rural water supply and sanitation for target
population of 100,000 2006-2009
Islamic Development
Bank Water Supply and Sanitation Project US$5.48 Million 100 water points in 4 divisions 2009-2012
EC/EDF-9 Rural Water Sector Support
Programme Euro 6.8 Million Rural water supply and sanitation (wells,
boreholes and solar systems) 2006-2010
EC / EDF-8 Regional Solar Programme phase II Euro 2.08 Million Rural water supply( boreholes fitted with
solar systems 2002 - 2009
JICA Integrated Water Use Project Phase 2 US$ 7.256 Million 20 new solar powered water systems and
converting 9 diesel powered systems to
solar power
2005-2008
JICA Integrated Water Use Project Phase 3 US$ 11.5 Million 15 new solar powered water system and
converting 3 diesel powered system to solar
powered
2009 - 2012
UNDESA Managing Water and Energy
Services for Poverty Eradication in
Rural Gambia
US$ 2 Million Expansion and Extension of Rural Water
Supply Systems schemes to carter for
horticultural activities in 5 villages
2004 - 2008
AfDB Water Supply and Sanitation Study
for The Gambia UA 1.2 Million Master Plan for Water Supply and
Sanitation in major urban areas and detailed
design for priority areas
2006-2008
Appendix IV: Map of Project Area
OUTCOME OF NEGOTIATIONS
Negotiations on the Grant Agreements (ADF and RWSSI Trust Fund) for The Gambia Rural
Water Supply and Sanitation Project for the period 2012 – 2015, took place on 8 and 9 December
2011 at the Temporary Relocation Agency of the Bank in Tunis, between a delegation from The
Gambia and representatives of the Bank.
All the terms and conditions of the grants, as defined in the Appraisal Report, were negotiated
and accepted by the delegation representing the Government of The Gambia.
Language: English
Original: English
PROJECT: Rural Water Supply and Sanitation Project
COUNTRY: The Gambia
PROJECT APPRAISAL REPORT – TECHNICAL ANNEXES
Date: August 2011
Appraisal Team
Team Leader: Rees Mwasambili – Sr. Water and Sanitation Engineer – OWAS.1
Team Members: Ahmed Attout – Sr. Financial Analyst, OWAS.1
Kelello P. Ntoempe , Pr. Environmentalist, ONEC.3
Mahecor Ndiaye - Water and Sanitation Engineer, OWAS.1/SNFO
Gregory Osubor - Social Development Specialist, OSHD/NGFO
Mustapha Diallo - (Procurement Expert, ORPF.1/SNFO
Sector Director: Sering B. Jallow
Regional Director: N. Matondo-Fundani (OIC)
Peer Reviewers
Issakaku Budali, - Social Protection Specialist, OSHD/KEFO
Christopher Mutasa – Financial Analyst – OWAS.2
Ashraf H. Ayad – Procurement Specialist, ORPF.1
Eskinder Almesged – Water and Sanitation Engineer, OWS.2
Tom. R. Mugoya – Water and Sanitation Engineer, OWAS.1
LIST OF TECHNICAL ANNEXES
A. Country Development Agenda, Sector Brief and Donor’s Support
A1. Country Development Agenda
A2. Donor support to the Water Sector
B. Support of Key Arguments of the Report
B1. Lessons Learned
B2. Project Costs
B3. Implementation Arrangements
B4. Financial Management, Disbursement Arrangements and Audit Arrangements
B5. Procurement Arrangements
B6. Audit Arrangements
B7. Economic and Financial Analysis
B8. Environmental and Social Analysis
Environmental Analysis
Stakeholders
Gender Analysis
Social Analysis
B9. Project Preparation and supervision
C. Additional Annexes
C1. Monitoring
C2. RWSSI Quarterly Progress Reporting
C3. General Terms of Reference for the PMU
C4. Terms of Reference for the National Steering Committee
C5. Organizational Structure of the Ministry of Fisheries, Water Resources and National
Assembly Matters
C6. List of Project Villages
TECHNICAL ANNEXES
A. Country Development Agenda sector brief and donor’s support
A1. DEVELOPMENT AGENDA AND SECTOR CONTECT
1.1 The Second Poverty Reduction Strategy Paper (PRSP II), for the period 2007–2011, is
Gambia’s framework for reducing poverty and promoting economic growth. The PRSP priorities
are articulated and implemented through sector plans, and financed through allocations from the
annual budget, complemented by substantial donor contributions. PRSP II covers five broad
thematic areas as follows: (i) creating enabling policy environment to promote growth and
poverty reduction; (ii) enhancing capacity and output of the productive sectors; (iii) improving
coverage of the basic social services and social protection needs of the poor and vulnerable; (iv)
enhancing governance systems and build the capacity of local communities and civil society
organizations to play and active role in economic growth and poverty reduction; and (v)
mainstreaming cross-cutting issues into the development process. Pillar (iii) of the PRSP aiming
at improving basic services (health, education, water and sanitation) and is one of the key priority
areas for poverty reduction.
1.2 The Government is currently preparing a new program, “Program for Accelerated
Growth and Employment (PAGE)”, for the period 2012-2015, as the successor to the PRSP II.
PAGE is expected to be approved by the Cabinet toward the end of 2011, and will build on the
main thrust of PSPP II, with the main focus on governance but will also include greater focus on
infrastructure investments, including water and sanitation.
1.3 In 2008 the Government of The Gambia, through the Ministry of Fisheries, Water
Resources and National Assembly Matters (MoFWRNAM), began to reform the water sector
through implementation of the new National Water Policy adopted in 2007. The objective of the
Reforms is to establish integrated water resources management (IWRM) in The Gambia in line
with the National Water Policy and the IWRM Roadmap. This will facilitate efficient, effective
and equitable water resources management throughout the country and support economic growth
and improve livelihoods so as to reduce poverty. The framework consists of a water law in
harmony with the policy; well-structured sector institutions with adequately qualified staff; and
sound water resources management tools, data and knowledge base for effective management of
water resources in the country. The Bank is financing the reforms through the African Water
Facility (AWF).
1.4 The water sector is presently organized on the basis of the National Water Resources
Council Act of 1979. The Ministry of Fisheries, Water Resources and National Assembly Matters
through its Department of Water Resources (DWR), is responsible for water resources
management and the provision of water supply to the rural areas. Other key institutions related to
water resources are the National Environment Agency (NEA) (responsible for management of the
environment); National Water and Electricity Company (NAWEC) (a service provider for water
supply and sewerage services to urban centers); the Public Utilities and Regulatory Authority
2
(PURA) (regulator for provision of electricity, water supply and sanitation services); Department
of Physical Planning and Housing (DPPH) (statutory duties and powers in relation to
conservation and protection of water resources), Department of Community Development (DCD)
(community mobilization and training) in the Ministry of Local Government and Lands; and
Local Government Authorities (LGAs) in all regions in the country
1.5 Despite the abundant water resources in the country, uneven distribution of fresh sources
and constraints in water resources development and management of safe drinking water makes
access difficult for many segments of the population, especially those in the rural areas. The
Government estimates water supply coverage to have progressed from a national coverage of
58% in 1990 (50% rural and 74% urban) to 75% coverage in 2010 (70% rural and 85% urban),
but the quality of coverage data is highly variable and does not necessarily imply that the systems
are working. Access in rural areas is substantially lower. Many rely on shallow wells, ponds, and
streams, which are often both biologically and chemically contaminated. The burdens associated
with shortage of water are borne disproportionately by women and children. According to PRSP
II, the key water sector challenge is to provide for sustainable development and management of
water resources to meet higher demands for domestic water supply and sanitation.
A2. DONOR SUPPORT TO THE WATER SECTOR
1.6 At least eight donors have provided development assistance to The Gambia during the last
10 years. Appendix III of the PAR gives a list of the current similar donor supported operations
in the water sector. The major donors are the European Union (EU) (under EDF financing
cycles), the Islamic Development Bank (IDB), the Japanese International Cooperative Agency
(JICA), the Saudi Fund, UNICEF and the AfDB. These interventions are mainly focused on
provision of water supply, with only UNICEF and the AfDB supporting sanitation infrastructure
as well. This support from the donors has had elements of capacity building. But there has been
hardly any major support for water resources management and institutional reform except now
when UNEP is currently supporting a regional project “Improving Water Management and
Governance in Western African Countries through support in the development of IWRM Plans”
covering seven ECOWAS countries including The Gambia. In the Gambia the UNEP project
supported the development of the IWRM Roadmap that was concluded in May 2009. No
commitments have been made by donors for the implementation of the roadmap. However, the
joint assistance strategy (JAS) of the World Bank and the African Development Bank for the
period 2008-2011 supports two of the five pillars of The Gambia’s Poverty Reduction Strategy
Paper (PRSP) II (2007-2011); the focus of support includes (a) improving the enabling policy
environment, (b) improving coverage of the basic social services (education, health, water and
sanitation) and social protection needs of the poor and vulnerable, and (c) enhancing governance.
1.7 The graphical representation below summarizes the main elements of the development
context.
3
The Gambia’s Development Agenda and Donor Support
Challenges & Contraints
The Gambia’s Development Agenda
Donor Support
By Sector
By Aid Modality
- Economic Mgt
- Public service
delivery
- Accelerating
growth and
competitiveness
- Public Financial
Management
DBS + SBS %
Agriculture Sector
Water and
Sanitation
Transport Sector
Communications
and IT
Project Support %
Social Sector %
Short/medium term
Others %
Donor Support = % of National Budget
Long
term
Poverty Reduction and
Attainment of MDGs
Improve Investment, PSD,
Business Environment and
Gambia's overall Productivity
Decrease Aid
Dependency
• High poverty levels, standing at
58% (68% rural) (2008)
•High Un- and underemployment
• Transitional effects of redirecting
public expenditure to poverty
reduction programmes
• Weak Institutional capacity
across the public service
Economy undiversified and
limited
Inadequate/poor infrastructure
Deficiencies in the business
climate
Water and Sanitation –
Insufficient resources to address
infrastructure bottlenecks
• Limited higher and tertiary education
opportunities
PSRP II 2007-2011
• Growth and poverty reduction
• Five Pillars (thematic areas)
(i) Creating enabling policy environment to
promote growth and poverty reduction;
(ii) Enhancing capacity and output of the
productive sectors;
(iii) Improving coverage of the basic social
services and social protection needs of the
poor and vulnerable;
(iv) Enhancing governance systems and build
the capacity of local communities and civil
society organizations to play and active role
in economic growth and poverty reduction
(v) Mainstreaming cross-cutting issues into
the development process
Accelerated Growth and Employment; reduction in
Poverty under PAGE (2012 – 2015)
4
B. Support of Key Arguments of the Report
B1 - Lessons Learned: List of projects that have been taken into account
Project Title Date and
Amount
Intervention Areas Rating Lessons i
Rural water
supply and
sanitation
programme
(RWSSP) -
Uganda
2005-/09
UA 40
million
ADB
-Point water source development
and rehabilitation
-piped GFS and rural growth
centre
- sanitation facilities
-Rain water harvesting (domestic
and communal)
Institution support
Country wide
xxx sector budget support within SWAP and common monitoring frameworks
through joint sector reviews
decentralized approach promotes private sector participation and growth as
well as capacity building for local governments and communities
relies on local Govt absorption capacity and limited funds spread widely
and thin with limited local impact
Decentralized approach promotes bottom up planning and increased sense
of ownership.
Central
Province Rural
Water Supply
and Sanitation
Project -
Zambia
2000 – 2007
UA 10.87 m
- Water Supply Development
- Sanitation Support
- Health Education
- Catchments Protection
- Community Mobilization and
Training
- Institutional Support /Project
Management
*** Use of independent engineering consultant to supervise drilling and civil
works;
More time should be given to capacity development (in basic finance,
technical and organization skills) and sensitization of community
beneficiaries;
Preparation and set-up/updating of baseline data at project design;
Consideration of use of monitoring and evaluation consultant during
project implementation to monitor impact both during and after project
completion.
-
The Gambia:
The Capacity
Building Project
1998-2004 1) Project management
capacity building,
2) Aid and debt management
capacity building,
3) RIFT training program
*ii
Grounding of capacity building and institutional support operations
should within the country’s policy and institutional reform programs.
The mid-term review of projects should have clearly defined and
quantifiable benchmarks related to the implementation of the policy
reform agenda. These benchmarks should be used in deciding whether
the outputs of the project are sustainable or otherwise. In case it is not
sustainable the project should either be cancelled or suspended until the
reform benchmarks have been attained.
5
National Rural
Water Supply
and Sanitation
Program
2006 - 2010
UA 15m
Water Infrastructure
Development
Sanitation and Hygiene
Education
Institutional Support and
Capacity Building
Program Management
Improve quality at entry by streamlining conditions precedent to
effectiveness;
Use integrated approach to water and sanitation implementation.
Central
Province Eight
Centres Water
Supply and
Sanitation
Project -
Zambia
2003 - 2010
UA 22.03m
Water Supply Rehabs. and
Extension
Sanitation
Building Works
Institutional Support
Project Management
***
Provide regular training in Bank’s procurement rules and procedures
Integrated approach, addressing water supply, sanitation and institutional
support in an integrated manner
6
B2. Project Costs and Description
B2.1 The Gambia RWSS Project
The Rural Water Supply and Sanitation Project (RWSSP) for The Gambia, developed as project
grant under JAS/ADF XII and the Government of The Gambia’s PRSP II focus, will provide
rural water supply and sanitation facilities and services to improve community health in the five
rural regions of the country. It will also facilitate building the capacity of local authority
institutions (regional area councils), village development committee (VDCs)), reflecting the
Government’s commitment to decentralized decision making by focusing implementation at the
district level. With its strong community-based approach, the Project will help extend reach to
RWSS service provision to the North Bank, Central River, Lower River, Western and South
Bank Regions..
While recent interventions in rural water supply have provided new drinking water facilities,
very little work has been done to address the poor sanitation. This Project will address both, and
will adopt an integrated water and sanitation approach in implementation.
The design of water and sanitation facilities is aimed at providing a satisfactory service using the
most appropriate technology to achieve the Project objectives at minimum capital, operation and
maintenance costs, energy consumption, imported materials and highly skilled expertise
requirements. The designs also conform to the Gambian national design standards regarding such
factors as minimum ground water yields, minimum and maximum pressures, safe disposal of
human faecal matter well as for various categories of consumers and users.
B.2.2 Project Description
The Project will (i) strengthen beneficiary communities’ capacities and capabilities to plan,
implement, manage, operate, and maintain improved water supply and sanitation facilities; (ii)
increase the participation of women and the youth in water management, and of men in
sanitation activities especially; (iii) increase hygiene education through awareness campaigns;
(iv) develop the capacity and capability of a wide range of sectoral support organizations, such as
nongovernment organizations (NGOs) /community-based organizations (CBOs), to provide
efficient and cost-effective support to communities and local government authorities so as to
improve RWSS service delivery. The Project will in the process support the implementation of
the National Water Sector Policy (2006) and the Sanitation Policy (2011); and strengthen the
Government’s decentralization efforts by focusing project activities and decision making at the
area council and community levels.
Development Objectives and Project Objectives
The overall Water Sector Development Goal is “effective and sustainable management of water
resources and improved climate risk management to support socio-economic development and
environmental sustainability in The Gambia”. The objective of the RWSSI Project is to increase
access to safe drinking water and improved sanitation in the rural areas of Gambia from the
current level of about 70% to 72% for water supply, and from 40% to 44% for sanitation by
7
2015. This will lead to an additional 65,000 people gaining access to safe drinking water, and
improved sanitation and hygiene practices. The Project has the following four components:
Component I – Water Supply and Sanitation Infrastructure
The project will apply a demand responsive approach in implementing this component that
consists of a comprehensive package including software, construction and installation, baseline
survey (for sanitation undertaken in collaboration with Component 3), mobilization, community-
based planning and monitoring, hygiene and sanitation education, Community Lead Total
Sanitation (CLTS), gender awareness and, capacity building at user level required for effective
use and sustainable operation. This component comprises; (i) provision of new boreholes
installed with solar powered water supply systems, and rehabilitation and upgrading of existing
water supply facilities and, (ii) provision of improved sanitation facilities1 in the project areas.
The Project includes community mobilization and capacity building to ensure sustainability of
the installed facilities. The Water Supply Infrastructure will be implemented by DWR, while
DCD will lead the implementation of sanitation infrastructure. Sanitation infrastructure will be
implemented as an integrated activity with Component 3 as described in detail in Component 3
below.
A. Water Supply Infrastructure:
i. Provision of 18 new drilled boreholes (6-8-inch diameter), supplying piped water to
medium- large size rural communities (with greater than 1000 people) and installation of
stand-alone solar powered pumping units, elevated water tanks, distribution network and
public stand-taps;
ii. Rehabilitation and Upgrading of 4 water supply facilities to solar powered pumping units,
elevated water tanks, a distribution network and public stand-taps.
Selection of sites for the new water schemes and those to be rehabilitated and upgraded were
undertaken by the local government authorities, in consultations with the communities, and done
on the basis of technical and socio-economic guidelines provided by DWR. The main criteria
used for selection of villages were as follows:
The selection of villages to benefit from new facilities:
i) Population > 1000 people;
ii) Previously installed water supply systems well maintained;
iii) Ability of villagers to deposit at least D25000.00 as part of the maintenance fund
iv) Willingness of villagers to provide land for the borehole, solar panel and tank area
v) Villages that are not more than 1.5 km apart are clustered and supplied from one
system.
Villages to benefit from upgrading be based on:
1 Improved sanitation facilities defined as “types of technology and levels of services that are likely to be sanitary than unimproved technologies.
Improved sanitation includes connection to a public sewers, connection to septic systems, pour-flush latrines, simple pit latrines and ventilated
improved pit latrines. Not considered as improved sanitation are service or bucket latrines 9where excreta is removed manually), public latrines and open latrines”. The Gambia National Policy for Sanitation and Hygiene, Ministry of Health (2011)
8
i) Communities that experienced rapid population growth, since the systems were
installed and the systems can no longer meet the water demands of the population.
ii) Poor water quality due to high presence of iron or manganese
iii) Deep water table that limits the ability of the hand pumps to lift water
The drilling contract for tube wells, borehole materials, pipes and fittings, solar systems and
tanks will be procured through international tenders, done at an early stage of implementation.
Surveys and site-specific designs will be done by local consultants and the project respectively.
Pipe laying will preferably be done by free-labour contributions of the beneficiaries.
Solar systems are very successful in the Gambia, and have become the preferred technological
option of the Government. They are also reliable and cost effective. But given their high capital
cost, they can only be justified for villages with a population above 1,000 people. The demand
for these solar systems by far exceeds the supply, and DWR has had to set criteria to select
villages that qualify for a solar system to ensure maximum social and economic benefit from the
available financial resources. All recent donor projects, financed by the EU, IDB, Saudi Fund
and JICA have partly implemented their project using solar system technology.
B. Sanitation Infrastructure:
(i) Provide 50 Ventilated Improved Pit Latrines (VIP) in public institutions - schools (separate
for boys and girls) and rural health centres- and public places (markets), and;
(ii) Promote Community Led-Total Sanitation (CLTS) to lead to provision of 1,000 latrines at
household level.
The Department of Community Development will lead implementation of this sub-component.
Construction of institutional latrines will be procured through national competitive bidding while
household latrines will be services through other accepted methods that include community-
based procurement.
Component II: Institutional Strengthening and Capacity Building/Training
This component will seek to strengthen national, local government and community level
institutions with a dealing in water and sanitation services provision.. The DWR at central and
regional levels will be strengthened to provide sustainable water supply services; and the
Department of Health together with the Department of Community Development to deliver
sanitation, hygiene promotion and education activities. Community level structures will be
strengthened in planning and implementation, operation and maintenance and monitoring. The
Project has a number of institutional development activities to facilitate successful
implementation of the Project and long term sector sustainability. These activities will lead to
DWR, DoH, DCD and the area councils to have sufficient capacity to facilitate and deliver
RWSS services more effectively. These include:
9
(i) Institutional support at national level institutions (DWR, DoH, DCD)
This will include; (i) support to short-term training of staff to strengthen the water supply and
sanitation management functions; and (ii) provision of office equipment and operational
vehicles.
(ii) Institutional support for local authority council areas
This will involve training and provision of equipment and tools necessary for effective planning
and implementation of RWSS activities by staff at this level, with the full involvement of
communities. The Village Water Committee members will be trained in water and sanitation
planning, community development and facilitation, health and hygiene promotion, principles of
CLTS and, project management. In addition, office equipment and transport (motor cycles and
bicycles – for VWCs) will be provided to facilitate implementation of project activities. There
will be a focal person (WATSAN Chairperson) in councils to be in charge of RWSS activities.
Formation and training of Village Water Committees and Their Role Village Water Committees will be set up in each target village and trained in operation and maintenance
of water facilities, collection of fees and other related fields. The training will be conducted by regional
staff of DWR. The committee consisting of members elected among the user communities, and
participation of women included, will be placed under the Village Development Committee
(VDC) that coordinates development issues and activities as a whole in the village.
The roles and responsibilities of the VWC include: (i) Preparation of action plans and facilitation
of implementation of the plan for improvement of water and sanitation in the village (ii)
Coordination in daily operation and maintenance activities, and facilitation of allocation of
resources (iii) Provision of instructions for proper use of the water facilities and preparation of rules
on water use (iv) Conflict resolution related to use of water supply facilities, (v) Assuring access to the
support services for operation and maintenance to be provided by the public and private sectors
(iii) Reactivation and strengthening of the Water and Sanitation Working Group at national
level to promote sector coordination and in initiation of Joint Government-Donor Sector
Reviews.
The Government and some donors have in the past instituted some committees or special
councils to coordinate sector activities at national level. The most prominent include the National
Water Resources Council and the National Water Resource Committee, and the Water and
Sanitation Committees (WATSAN) established under a UNICEF initiative centred on the DWR.
However, they were all informal in some ways, and few met regularly which reduced the ability
of these entities to successfully coordinate their respective programmes. The support will go
towards reactivating coordination mechanisms that once existed and was financed by UNICEF
(see box below).
10
This activity will therefore support government plans to revive this working group. However, in
line with the ongoing aid coordination processes in the Ministry of Finance and Economic
Affairs, the re-constituted group will be required to be formal. The project will finance a short
consultancy that will elaborate the coordination mechanisms including drawing terms of
reference for the group, and defining, if so needed, a secretariat to coordinate the activities of the
group. The consultancy will also define start-up steps and framework for introduction of Joint
sector Reviews. Part of the funds will support the initial activities of the working group
(meetings, production of minutes, communications etc.).
The Joint Sector Reviews (JSR) is a forum for performance assessment, budget and policy
guidance, allowing a broad spectrum of stakeholders to get an insight into, discuss and influence
sector developments. Held annually, JSR draws conclusions and makes recommendations on
overall developments in the sector but is not a decision-making body. Any binding decisions
during JSRs such as formal undertakings/actions for the following year are to be taken by an
appropriate government defined and appointed group. These reviews are usually held in an
agreed month of the year. JSR are supported by inputs of Joint Technical Reviews (JTR) that are
held usually six months after the JSR, to assess the progress made with regards to the sector's
half year performance and to prepare the ground for the JSR for the sector. Further JTRs
recommends actions which will lead to improved sector performance, and assess any other
pertinent issues affecting the sector. It must be a specific objective every year to review the
progress in implementation of agreed actions for the sector.
(iv) Develop an O&M strategy and plan based on existing experiences gained from O&M
systems existing in the sector..
To improve access to potable water in rural as well as peri-urban villages, the Department of
Water Resources (DWR) has adopted four technical approaches in the Gambia:
Hand-Dug wells (1.60 m ID) equipped with one or two hand-pumps, to provide clean
drinking water in the smaller rural settlements in areas with shallow water tables (<25 m);
Drilled wells (4 ½ -inch ID) equipped with a hand-pump for small rural settlements with
deeper water tables (>25m), or where dug wells are not suitable for other reasons (eg, low
recharge rates, water quality etc.);
In 1992 the Government in collaboration with UNICEF launched a pilot Rural Environmental Project
which had water supply and sanitation components. The project also instituted a coordinating
mechanism called the Water and Sanitation Working Group (WSWG) which included UNICEF,
representatives of all the key Government agencies and NGOs involved in the implementation of
UNICEF funded programmes in WSS. As a coordinating mechanism WATSAN proved successful
because it provided an opportunity for collaboration and enabled stakeholders to be part of the decision-
making process. A major drawback, however, was that the whole process was single donor (UNICEF)
driven and without the participation of other donors active in the sector. Coordination related mainly to
UNICEF’s intervention in WSS with the collaborating Government institutions and NGOs. The lessons
of WATSAN clearly show the importance of such a mechanism for the WSS sector and the need for the
Government to be seen to take the lead to demonstrate ownership and ensure the participation of all the
stakeholders. CSO Report (June 2010)
11
Drilled boreholes supplying piped water to medium to larger size rural communities by
means of a stand-alone solar powered pumping unit, elevated water tank, a simple
distribution network and public tap stands;
In collaboration with the National Water and Electricity Corporation (NAWEC), extend
existing urban water supply grids to adjacent settlements.
The above first two hand pump-based water supply systems are accompanied by a community
based cost-recovery and maintenance system for hand-pumps, including a network of trained
area mechanics, well-established countrywide since the early 1990’s. DWR adopted a standard
handpump (the PB Mark II) for which basic spare parts were sold in distributor shops throughout
this small country, thus considerably facilitating maintenance and repair in the rural
environment. Most of these distributor shops no longer deal in these spare parts due to a
breakdown in the supply chain.
This activity will analyze the hand-pump based system above and other existing systems from
donor funded projects, with the aim of harmonizing these various systems into one national
strategy and plan. The Department of Water Resources will lead the implementation of this
component.
Component III: Hygiene Promotion2 and Education
This component will aim to improve the hygiene and sanitation conditions in the project areas
by focusing on promotion of better hygiene behavior and improving on the communities’ safe
sanitation practices. It shall involve revising existing and development of new communication
materials to promote improved sanitation and hygiene education in the communities covered by
the project. These materials shall supplement hygiene promotion and education materials used by
the Ministry of Health. The materials shall include details for training of trainers, visual aids
including fliers, radio shows and programmes. The materials to be developed shall be gender and
culturally sensitive and shall cover such topics as personal hygiene, cleanliness within the
household, prevention of HIV/AIDS, disposal of solid waste, proper use of toilet facilities and
hand washing, household water storage as well as handling of food. Preventive measures against
water borne diseases including diarrhea, typhoid, cholera and malaria shall also be addressed and
included as part of the Project.
Health and hygiene education are important sub-sector components associated with the
abstraction, distribution, use and storage of potable water. At national level they are the
responsibility of the Department of Health and the Department of Education, and at Regional
level the responsibility of Area Councils. While the DWR has no explicit responsibility for
health and hygiene education, it shall maintain contact with the entities that do and coordinate
water and sanitation service delivery.
Sanitation, Health and Hygiene education: Country context
Like most regional member countries, the Gambia has made significant efforts in the provision
of safe drinking water towards meeting both the national and MDG goals. However, like most
2 The word hygiene means cleanliness relating to health. Good hygiene is a practice of keeping oneself and one’s surrounding clean, especially in order to prevent illness or the spread of disease. Hygiene promotion means encouraging people towards behaviors that embody these practices
and are the basis of cleanliness and good health. National Strategy for Sanitation and Hygiene (2011-2016)
12
member countries, much more remained to be done in the field of basic sanitation and hygiene.
In addition, until this year (2011), the Gambia had no one coherent national sanitation policy,
and therefore lacked appropriate policy tools with which to respond to the various sanitation
challenges. Besides the Water and Sanitation Project implemented by the Department of Water
Resources, with the aim of introducing hygienic means of excreta disposal in the entire country,
there has not been much coordinated policy response to basic sanitation issues in the country.
Another weakness in the policy response to basic sanitation issues has been the lack of a clear-
cut institutional home for sanitation. Sanitation issues could be found in various policies and
programmes of several sectors such as the Ministry of Health and Social Welfare, Department of
Water Resources, National Water and Electricity Company (NAWEC), Department of
Community Development, the National Environment Agency and the Local Government
Authorities and Municipalities.
Unsurprisingly, improved sanitation and hygiene lags behind the provision of safe drinking water
in service delivery. National Safe water coverage has rapidly increased from 23.1% in 1983 to
50.4% in 1993 and from 76% in 2003 to 86% in 2006(UNICEF/WHO JMP Report, 2010).
National coverage for sanitation slightly rose from 23% in 1990 to 67% in 2008(UNICEF/WHO
JMP Report, 2010). In urban areas, while the access rate to safe sanitation was as high as 68%
(UNICEF/WHO JMP Report, 2010), the rural areas averaged 40%, but with some regions,
particularly CRR-South at 31 % (MICS 2005/2006).
For the past four years, the country has also introduced a nationwide monthly cleansing exercise
for ensuring proper environmental sanitation. In 2008, an Anti-littering Bill was developed to
ensure proper environmental hygiene practices. Waste management which is largely the role of
Local Government Authorities has been revived and there are periodic waste collection exercises
in the two urban municipalities of Banjul and Kanifing Municipal Council.
National Policy for Sanitation and Hygiene (2011) and National Strategy for Sanitation and
Hygiene (2011 – 2016)
The Gambia has developed a draft National Policy for Sanitation and Hygiene (2011), and an
accompanying implementation Strategy for 2011–2016. Developed through a wide consultative
process, the Policy and Strategy were validated by stakeholders at workshops held in March
2011.The draft Policy is currently (August 2011) awaiting Cabinet approval.
National Policy for Sanitation and Hygiene: The stated aim of the draft Policy is to create the
enabling environment that will make it possible for all households in The Gambia “to be made
aware of and well-informed of the importance of safe sanitary practices and proper modes of
hygiene behavior for improved health”.
The Policy identifies seven measures that are required to reach the desired objective;
i. Capacity building and infrastructure development;
ii. Sanitation Marketing and Hygiene Promotion;
iii. Delivery of Sanitation and Hygiene Services;
iv. Research and Development of Sanitation Technologies;
v. Public-Private Sector Partnerships;
13
vi. Inter-sectoral coordination and collaboration;
vii. Community Consultation and involvement
The above will be achieved through implementation of a series of strategic actions that include
the following;
A National awareness-creation and sensitization campaign that is gender and culture-
sensitive, to promote safe sanitary practices and proper hygiene behavior;
Involvement of the private sector in sanitation marketing of affordable and appropriate
low-cost technologies;
Development of knowledge and skills base of a wide range of personnel to be associated
with the implementation of the Policy;
Carry out institutional audit to determine gaps and overlaps in institutional roles and
responsibilities, with a view of effecting the required institutional harmonization to
implement sector-wide programming
Develop enabling business environment in sanitation products to attract the private
sector;
Creation of a high-level coordination framework at three levels:
o Inter-ministerial Steering Committee that will supervise the implementation of the
Policy;
o The National Agency for Sanitation and Hygiene to be the lead agency to ensure
inter-sectoral and inter-agency coordination and collaboration;
o National Working Group on Sanitation and Hygiene to serve as a technical back-up
team for the operationalization of the policy and strategy on sanitation and Hygiene.
Creation of a National Sanitation and Hygiene Trust Fund to coordinate resources
mobilization. Donors, NGOs, local government authorities and the private sectors will be
encouraged to contribute.
National Strategy for Sanitation and Hygiene (2011 – 2016): The objective of the Strategy is
“to operationalize the National Sanitation and Hygiene Policy” (2009 – 2014). The Strategy has
identified eight Strategic Priority Areas around which its responses and activities recommended
in the strategy revolve:
i) Policy and Legislation
ii) Institutional Responsibilities and coordination Framework
iii) Sanitation Services;
iv) Capacity Building and Infrastructure Development;
v) Sanitation Marketing;
vi) Monitoring and Evaluation;
vii) Research and Development
viii) Financing Framework
Implementation of the Project component:
Institutional responsibilities for sanitation in the Gambia are split at three levels as shown in the
table below.
14
Level Roles and Responsibilities
National Level (Led by MoHSW): Policy formulation; regulation; monitoring; coordination;
quality assurance; and capacity development
District Local Government Level Planning; resource levels mobilization; demand creation;
service delivery; support to community and households;
making and enforcing ordinances and related laws Communities/households/private
sector/NGOs
Demand for services; contribute to O&M of Public
Facilities; Construction of toilet facilities at household level
NGOs or other locally based organizations shall be recruited as consultants to undertake the
sanitation, and hygiene promotion and education. The NGO shall work closely with the units
responsible for public health (DoH) and community welfare (DCD). Potential trainers including
a teacher from each of the schools and a representative from each of the health centres covered
by the project shall be identified to undergo training. These will be trained on the best
approaches, and methods of educating and communicating with the public and proper hygiene
and sanitation. The trainers will take care to conduct separate sessions for both males and
females whenever sensitivity calls. They should also be able to handle and work with the young
people, especially those of school going age.
After the training, the programme shall be rolled out starting with general sensitization for all the
general public on the importance and implication of keeping their communities clean. The local
leaders including politicians, mosque and church leaders and community elders shall be used to
reach the people. The programme shall then concentrate on the identified and deserving schools,
health centres as well as the communities to be covered by the programme. The promotional and
training programme shall be staged in such a way that there will be repeat sessions at various
times during the project’s implementation period.
In addition, the training programme will be closely followed by the construction of sanitation
facilities (to be done under separate contracts) including toilet blocks for schools and health
centres with separate facilities for women and men, and should also be able to cater for the
disabled. Hand washing facilities shall be provided with each of these facilities. Different types
of household latrines shall also be built as demonstration units, at sites selected by the respective
communities themselves. These units shall include improved pit latrines, eco-san and compost
latrines, etc., following the Gambian norms. Characteristic of each model unit including
convenience, ease of maintenance and cleanliness, cost of construction, maintenance details and
any limitations due to environmental constraints shall be clearly elaborated for the intended
users. The households shall be encouraged to put up own sanitation facilities depending on their
preference. The NGOs shall use government, and if not available, develop some criteria of
identifying the poor households which would need to be supported under the programme and the
level of such assistance towards meeting part of the cost of the on-site sanitation facilities.
The Project will use Community-Led Total Sanitation (CLTS3) concept to mobilize and engage
the communities. The challenge of this concept is to mobilize communities to enable the
3 Community-led total sanitation approaches is an integrated approach to achieving and sustaining open defecation free (OD) status in which the
use of PRA methods enables local communities to analyse their sanitation conditions and collectively internalise the terrible impact of OD on public health and on the entire neighbourhood environment. National Sanitation and Hygiene Strategy (2009-2014)
15
majority of rural households to move from unimproved to improved sanitation. Figure below
illustrates these needs on a simplified sanitation ladder, which is used by sanitation organizations
to map coverage and options in terms of quality and costs.
Figure 1: Simplified Sanitation Ladder
Throughout the implementation of the Hygiene Promotion and education component, the
consultant NGOs shall keep and maintain clear records and data, to facilitate measurement of the
inputs and outputs as well as impacts and outcomes from the intervention. And finally under this
component, support is provided to undertake a rapid rural sanitation survey to establish a
baseline. This will be outsourced to an NGO or local consulting firm.
Overall, the project will support provision of sanitation facilities in 100 public places (schools,
health centres, public places). It will also support 1,000 households in the promotion of improved
household sanitation, including eco-san.
Component IV: Project Management
This Component will finance activities to be undertaken by the executing agent for timely
delivery of the proposed project outputs within budget, based on detailed work and procurement
plans.. It includes support to the Project Management Unit, and all associated activities (technical
and financial audits, monitoring and evaluation) and logistical costs (operational vehicles and
office equipment). The PMU will be responsible for all day to day activities, record keeping and
progress reporting of the project. It will be staffed by locally recruited individual consultants, and
shall be headed by a Project Coordinator, a person with adequate experience in management of
development projects, assisted by a Rural Water Supply Engineer, (experienced in
procurement/contract management), a Social Development Specialist (with experience in
sanitation and gender issues, and engagement with civil societies), a Monitoring and Evaluation
Expert and an Accountant. In addition, a Procurement Specialist will be engaged for 18months to
assist the PMU with the procurement process. The Unit will be supported by a driver and
secretary/administrator..
16
Duties of the PMU
The role and responsibilities of the PMU will include amongst others, the following:
Responsible for the day to day management of the Rural Water Supply and Sanitation
Project;
Take direct and overall responsibility for the planning, organizing, implementation, and
management of the project, including the technical, administrative, financial, procurement
disbursement quality control, monitoring and evaluation, and reporting tasks and activities.
Prepare detail work plans for the execution of the project;
Manage, direct, supervise monitor and evaluate the work of consultants recruited for the
various activities including (i) surveys (ii) community mobilization and training, (iii)
Hygiene training (iii) supervision of civil works etc.
Procure consultants, contractors and suppliers to provide works, goods and services
required by the project.
Advise DWR on ways of improving Project implementation
Prepare monthly and quarterly performance reports, to be submitted to the DWR, NSC and
the Bank;
Ensure that annual financial and technical audits are undertaken;
Participate in the regular review and evaluation of overall progress of the project
17
Project Total Costs: Detailed Project costs.
18
B3. Detailed Implementation arrangement
The implementation of the Project will use existing structures from central to community levels,
incorporating lessons and experience gained with the other similar operations. The Project
Management Unit will be at the center of this implementation. The PMU will be responsible for
delivering the project outputs within the agreed timeframe. The PMU will coordinate and supervise
the implementation of the all Project components, maintain the Project accounts and financial
records, process disbursement requests, and reports in accordance with the requirements of GoTG
and ADF.
The overall coordination of the Project and reporting obligations to the Bank will be the
responsibility of MFWRNAM. An MOU shall be signed among DWR, MoH and DCD defining
the roles, responsibilities and procedures to implement the components. Conclusion of this MoU
will be a condition precedent to first disbursement
National Level
The GoTG shall be the recipient of the ADF Grant while MFWRNAM will be the Executing
Agency (EA) of the project. The Department of Water Resources in MFWRNAM will be
responsible for implementation, and shall delegate this role to an existing Project Management
Unit currently implementing an IDB funded RWS Project.
The Ministry will establish a National Steering Committee (NSC) which will provide policy
coordination in the implementation of the Project. The NSC will draw membership from the
following institutions: MoFWRNAM, DWR, Ministry of Finance and Economic Affairs, Office of
the President, Ministry of Local Government and Lands, National Environment Agency,
Women’s Bureau, the Ministry of Health and Social Welfare, and The Association of Non-
Governmental Organizations (TANGO).
The existing IDB-funded PMU will form the core of the PMU that will implement the RWSSI
Project. An assessment undertaken by the Appraisal Mission on the IDB project showed that,
with additional strengthening in staff levels and basic equipment, the IDB-financed PMU has the
necessary core skills and experience to implement the RWSSI Project. The IDB financed PMU
has the following staff; Project Coordinator, Accountant and two support staff (secretary and
driver), and it is supported by an engineering consulting firm. Additional staff required to be
added to the existing PMU to effectively implement the Bank supported RWSSI Project are a
rural water supply engineer, a social/sanitation specialist and a Monitoring and evaluation
specialist.
A Project Technical Advisory Committee (TAC) will also be set-up to provide technical support
to the PMU. The TRC will be composed of members from the key project participants; DWR,
DOH, MoE, NEA and DCD.
Regional/Local Government Level
In the rural areas the Area Councils are responsible for drinking water supply, and in accordance
with the obligations described in the Local Government Act, they shall ‘promote the rational use
of water’ and ‘regulate the use and management of wells and water reticulation systems’.
Therefore at the regional level, the project will be implemented through the area councils, which
will be the decision making body acting on development plans from the communities (VDCs).
19
The area councils, works through and is supported technically by the WATSAN committee,
which is a mixed-skills teams of professionals (in social, technical, financial, local government
administration) drawn from different ministries at districts levels. The DWR will anchor the
technical support with staff to support project implementation.
Sub-district/Community Level
At the community level, the project will use community structures, the village water committees.
In the Gambia, rural water assets installed through Government financing are owned by the
Government. They are operated and managed by the beneficiaries themselves through water
user groups, known as the Village Water Committees (VWCs). VWCs are a sub-committee of
the Village Development Committees, which are responsible for planning for village
developments.
Village water committees who are elected by the community members and are gender balanced,
with at least half of the membership being women. They are accountable to their communities.
The key responsibility of VWCs is operation and maintenance of the village water supply and
Sanitation facilities. They also set the water tariff, place contracts with external service providers
to undertake major repairs and maintain and operate the assets directly. They can also mobilize
resources for promoting improved drinking water and sanitation facilities. VDCs are supported
technically by Multi-displinary Facilitating Team (MDFT), made up of government extension
staff at WARD level. MDFT assist the VDC in planning, mobilization and training in different
skills.
The following diagram gives the overall implementation arrangements for the Project.
20
GAMBIA – RWSS Project Implementation Arrangements
National
Steering
Committee
Functional
Responsibilities MFWRNAM
Executing Agency AfDB
Department of Water
Resources
(Implementing Agency)
TAC
DoH, MoE,
DWR, DCD PMU
National Level
Planning
Policy and legal
Liaison and
supervision
Management
Development
Regulatory
Cost Recovery and
sustainability
Regional/Local
Government
Level
Planning
Management
Development
Identification
Regulatory
Implementation
Supervision
Operation and
Maintenance
Regional
DWR Motivators
Regional Local
Government Authorities
(Area councils)
MDFT
Community
Level
Plan
Operate
Maintain
Manage
Implement
CBOs (Ward and
Village Dev.
Committee)
District WATSAN
Committees
Private
sector
NGOs
Consultants
Supplier
Latrine
artisans
Area
mechanic
Target Communities
21
B4. Financial Management and Disbursement Arrangement
Executive Summary
The financial management (FM) assessment was carried out in accordance with the Guidelines
for Financial Management and Financial Analysis of Programme (January 2007). The
assessment has also benefitted from previous assessments by the Bank and other donors in the
Water Sector. The conclusion of the assessment is that financial management arrangements meet
the Bank’s minimum requirements. The overall risk rating is assessed as moderate once the
mitigation measures are implemented.
Implementation Arrangement: The implementation mechanisms will be as described in B3
above.
Disbursement of the ADF resources will be made by direct disbursement to suppliers of works
and goods for all ICB, International Shopping and NCB packages, and for consultancy services.
Payments for operating costs for project implementation, for sanitation, hygiene education and
environmental awareness creation, gender mainstreaming, audit, and for supply of office
equipment and IT software will be made through the Special Account method. Other Bank
disbursement methods could also be used if necessary in financing the project.
Financial Management: Proper financial management system shall be maintained by a
qualified accountant during implementation. The Executing Agency shall establish a Special
Account for ADF funds to expedite disbursement of small expenditures of the project activities.
Before any payments are made, all project expenditures shall be prepared by the PMU, reviewed
and authorized by the Ministry and the Department of Water.
Audit: Proper financial records shall be maintained by a qualified accountant at the PMU level
during implementation. The accounts shall be audited annually by an independent reputable firm
according to International Standards on Auditing (ISAs) and International Financial Reporting
Standards (IFRSs). The audit reports shall be submitted to the Bank not later than six months
after closure of the fiscal year.
Country Assessment: Issues
The 2010 Country Financial Accountability Assessment (CFAA) concluded that the enactment
of the Government Budget Management and Accountability (GBMA) Act and the issuance of
revised Financial Instructions in 2004 have strengthened the institutional and legislative
framework that govern public expenditures, and revenue management as well as public
procurement management. However, the CFAA notes that gaps still remain and has suggested
several recommendations including, the need to improve the capacity in the areas of internal
audit, external audit and external scrutiny of government financial management. These areas
were noted as keystone activities of any future PFM reform and would require adequate capacity
building.
The inherent risk of the public financial management system in the Gambia is still high due to
many weaknesses that should be addressed in a sustained manner. There has not been much
significant achievement since the 2003 CFAA report in the area of internal audit except for the
creation of the internal audit unit within the MOFEA. The unit lacks adequate resources and
capacity to carry out its role effectively. Despite progress made in addressing the backlog of
22
audit reports, the Auditor General’s office lack sufficient capacity to produce high quality reports
in a timely manner. The National Audit Office (NAO) has begun the process of transforming
itself into a modern Supreme Audit Institution and has finalized its strategy towards achieving
this objective. However, issues pertaining to its lack of independence, scope and quality of audit
reports and responsiveness of the executive to audit recommendations still need to be addressed.
The 2010 and 2011 IMF reports and the 2010 Public Expenditure Review (PER) update also
noted, among its recommendations, a need to re-focus and prioritize areas of the PFM reform
strategy. More specifically, they noted the need to improve budget planning and execution
processes; strengthen institutions responsible for budget compliance and evaluation and
improving revenue administration.
Ministry of Fisheries, Water Resources and National Assembly Matters - EA
MoFWRNAM
The inherited risks of the PFM system in the Gambia are also affecting the MoFWRNAM.
However the project FM is strengthened by the following features:-
MoFWRNAM has succeeded in executing or still executing projects and studies financed
by several international donors (EU, IsDB, JICA, Saudi Fund, AWF & AfDB).
The accounting personnel within the MoFWRNAM are experienced.
The project being under the MoFWRNAM will use the Treasury Accounting Instructions.
The project will benefit from the ongoing financial management reforms.
Budgeting arrangements are adequate;
External auditing arrangements are adequate;
Internal Audit arrangements are currently being reinforced
Funds flow arrangements are adequate.
FM ACTION PLAN Action Responsibility Timeframe
Agree on external auditor and audit TORs GoG/Bank On going
Step up recruitment and training of FM GoG/ Bank On going
Resolve systematic problem on Reporting and training on the same GoG/Bank On going
Step up use of Internal Audit at MoFWRNAM GoG/Bank On Going
Project Risk Assessment and Mitigation
The objectives of the project's financial management system are to:
ensure that funds are used only for their intended purposes, in an efficient and economical
manner;
ensure that funds are properly managed and flow smoothly, adequately, regularly, and
predictably in order to meet the objectives of the project;
enable the preparation of accurate and timely financial reports;
enable project management to monitor the efficient implementation of the project; and
Safeguard the project's assets and resources.
23
The table below summarizes the risks, as identified during the financial management assessment,
which may hinder the achievement of project objectives, along with recommendations for
mitigating those risks.
Risk Rating Summary Table Type of Risk Risk
Rating Risk Mitigation Measure
/Remarks
Condition for
Negotiation or
Effectiveness
(Yes/No)
Residual
Risk
Rating
Inherent Risk
Country Level
Weaknesses in public financial
management by state institutions, including
issues of accountability and transparency
H
Strengthening the role of public institutions in
FM capacity building through ongoing reforms in
the public financial management system.
No
S
Entity Level
There could be FM capacity problem that
may result in poor implementation of
project activities. In addition to interference
in project management and mismanagement
of project assets and deviation in the use of
funds, leading to a failure in complying
with Bank's fiduciary safeguards
S
Use of a Project Management Unit (PMU)
staffed with competent personnel including a
qualified accounting to assist in project
management & implementation will help
mitigate those risks.
Moreover, the Project Management Unit (PMU)
will have the overall FM responsibility under
strict oversight of the following:
- MoFWRNAM (Ministry of Fisheries, Water
Resources and National Assembly Matters) - EA
- Department of Water (Implementing Agency)
- Steering Committee (Advisory and monitoring
role)
No
M
Project Level
a) Lack of experience and coordination risk
(one of the reasons that we are using this
PMU is because we think it has gained
experience from IDB).
b) Accounting system and Procedures
Manual are not current and up to date.
S
The PMU is currently implementing an IsDB
project, it will be further strengthened by
qualified personnel to handle day to day project
management
The PMU would be assisted to document its
existing systems into Accounts Procedures
Manual. Further FM training and support would
be provided by a Bank’s FM Specialist to the PT
to ensure correct application of the FM
procedures.
No
M
Overall IR
S
M
Control Risk
Budgeting
Delays in preparing detailed budget
estimates and Annual Work Plans.
M
The Project Operations Manual will provide clear
guidelines on budget cycle and procedures to
ensure timeliness and completeness of budgets.
The first year budget and Annual Work Plan, to
be largely based on the agreed Procurement Plan,
will be ready before effectiveness.
Yes
M
Accounting
Accounting staff do not have much
experience in Bank disbursement and FM
procedures.
Weak technical skills of accounting staff.
S
A qualified project accountant with the similar
previous experience as part of the PMU staff will
provide leadership and sustainability.
Regular review of staff capacities during
Missions and additional support to be provided
by the Bank will enhance the FM capacity.
No
M
Internal
Controls/Internal Auditing
Risk of non compliance with internal
control procedures.
S
Project Operations Manual, developed and
agreed by negotiations, will provide guidelines
on policies and procedures; manual will be
reviewed and updated regularly.
Yes
S
24
Type of Risk Risk
Rating Risk Mitigation Measure
/Remarks
Condition for
Negotiation or
Effectiveness
(Yes/No)
Residual
Risk
Rating
Weak Internal Audit capacity within the
MoFWRNAM
Internal controls will be in line with
Government's operational policies. The Internal
Audit function will be monitored for its
effectiveness during supervision, and necessary
remedial action will be taken during project
implementation.
Funds Flow
Delays in processing replenishment
requests could result in fund shortage and
affect project implementation.
Delays in counterpart funding
M
Strengthening the planning capacity of existing
PMU and training in Bank disbursement rules
will help minimize this problem.
GoTG will make in-kind contribution to
operational costs of the PMU in form of offices
and salaries of Gov. staff who will work with the
project.
No
M
Financial Reporting
Quality and timeliness in submitting
interim unaudited financial reports (IUFRs)
and other reports.
S
Facilitate training of PMU Accountant to ensure
quality and timeliness of reporting.
PMU staff will be trained in the preparation of
IUFRs and other reports.
The IUFR formats will be agreed during project
negotiations and agreed upon with accounting
staff to ensure that s/he can report on project
expenditures.(did you check on the existing
formats used?
Yes
M
Auditing
Delays in the submission of audit reports,
and the timeliness of management follow-
up on audit issues
S
To ensure timeliness of audit compliance, an
external auditor acceptable to the Bank will be
engaged 6 months after effectiveness.
Supervision missions will follow up on
compliance with audit recommendations; the
National Audit Office (NAO) will oversight the
recruitment of the external auditor.
No
M
Overall Risk Rating S M H - High S – Substantial M – Moderate L - Low
In order for the Bank to obtain reasonable assurance on the use of funds, the following features
of a financial management system should be in place:
The PMU should have an adequate number and mix of skilled and experienced staff;
The internal control system should ensure the conduct of an orderly and efficient payment
and procurement process, and proper recording and safeguarding of assets and project
resources;
The accounting system should support the project's requests for funding and meet its
reporting obligations to the Bank and the Government;
An independent, qualified external auditor should be appointed to review the Project's
financial statements and internal controls.
25
Strengths and Weaknesses of the Financial Management System
Strengths: The oversight responsibility of the MoFWNAM will enhance internal auditing and
will also help to strengthen fiduciary compliance. The Ministry has previous experience in
executing donor financed projects such as the EU, JICA and IDB. The provision of funding to
recruit additional qualified staff for the PMU will further strengthen the capacity and help
mitigate the identified fiduciary risks.
Weaknesses: The major weakness is that the current staff in MoFWRNAM has no previous
experience in implementing projects under AfDB rules and procedures. This limitation can lead
to delays, errors, and non-compliance with eligibility criteria and other financial convents. In
mitigation, the Project launch mission will orient project staff in all the relevant Bank rules and
procedures, and these will be coupled with periodic training.
Budgeting Arrangements
The budgeting process for the project is driven by the Annual Work Plans and fully integrated
into the planning process of the PMU. The budget will be reviewed and approved by the TAC
and the NSC. Planned activities in the budget contain details of objectives, expected outcomes,
and performance indicators. The first year budget and work plan for this project was finalized
prior to effectiveness.
Accounting Arrangements
The Project Accountant will be responsible for overall financial management and the day- to-
day processing of financial data of the project. S/he will also be in charge of liaising the financial
reporting to the Bank and the Ministry. Currently, the Accountant of the existing PMU relies on
mostly a combination of manual records and Excel spread sheets to capture and record
transactions. A review of the existing system revealed that accounting software which was
procured for use by the unit has been abandoned due to lack of periodic maintenance
Under the project, the PMU will be purchasing an accounting software package, which will both
serve the project's financial management and accounting needs, and be adopted by the PMU for
its regular operations. The system will be made operational within six months after project
effectiveness, and in the interim, the PMU will use Excel spreadsheets to record transactions.
Internal Audit: The MoFWRNAM Internal Audit Department in collaboration with the National
Audit Office (NAO) will ensure compliance with government procedures. The duties of internal
audits include reviewing the internal control systems of the EA, and conducting special
investigations. Project implementation will benefit from the Audit Unit's responsibility to
conduct regular reviews of operations and financial transactions for the entire Bank’s funded
activities.
External Auditing: The National Audit Office (NAO) of The Gambia has primary responsibility
for auditing of all government projects. Yet, donor funded projects do not fall under the mandate
of the NAO, and their requirements for audit services are contracted to private firms after
authorization from the NAO. Under the project, this arrangement will be followed in line with
Bank's procurement guidelines. The appointment of the Auditor should be finalized within six
26
months of effectiveness in order to comply with audit covenants and ensure timely audit of
project expenditures. A copy of the Bank’s new Terms of Reference (TOR) for Audit would be
made available to the project during negotiation.
Disbursement Arrangements
The Project’s expected cost is UA 4.95 million, which will be disbursed over a 4-year period.
Disbursements and payments will be managed by the PMU.. All approvals and payments will be
processed at the PMU level. The Ministry (EA) will be responsible for the preparation and
submission of withdrawal applications to the Bank.
A Special Account (SA) in foreign currency will be opened at the Central Bank of The Gambia
on terms and conditions acceptable to the Bank, for the purpose of receiving the grant proceeds.
Upon fulfillment of conditions precedent to first disbursement, the SA will receive an initial
deposit equivalent to six (6) months’ expenditure forecast. Subsequent releases into the SA will
be made against replenishment requests approved and supported by appropriate documents as
specified in the Disbursement Letter. Invoices and supporting documents will be submitted
directly to the PMU for payments.
Disbursement will be made by direct payment &/or payment orders to the suppliers and
contractors for the ICB and NCB packages and for consultancy services in line with the
thresholds as stated in the Disbursement Letter. Other payments, including community
mobilization, hygiene promotion and education, as well as related operational costs will be paid
using the Special Account method. Other Bank disbursement procedures could also be used if
necessary. All supporting documentation related to various proceeds disbursed will be retained
by the PMU for review by Bank supervision missions and external auditors. The Bank's FM
team will periodically assess the adequacy of the FM systems, and these assessments will form
the basis of any change in disbursement methods.
Supervision Plan
The project will be supervised twice a year. FM will be an integral part of those supervisions.
There will also be desk reviews of the quarterly IFRs and the annual audited Financial
Statements.
Financial Reporting Arrangements
The PMU will be responsible for generating quality and timely quarterly Interim Unaudited
Financial Reports and any other financial reports as may be required during implementation.
These reports should clearly show, at a minimum: sources and uses of funds use of funds by
project activity/component, expenditure summary by category code, and cash flow forecast, as
well as bank statements showing the activities of the Special Account. Financial reporting under
the project will be based on transactions; therefore, proper record keeping is essential for
generating accurate Statement of Expenditure returns. Accurate IFRs will be prepared for each
quarter depicting the budgeted or planned expenditures against the actual expenditures as
indicated above. The IUFRs will be submitted to the Bank within thirty (30) days after the end of
each quarter. The Formats of the various periodic financial monitoring reports will be discussed
and agreed during negotiations.
27
The financial management system of MFWRNAM is sustainable with the support to be provided
by the project to the PMU. The PMU will maintain accounts for the Project showing all the
required Project financial details, including expenditures by component, category and financing
source. The Ministry (EA) will be responsible for the preparation and submission of withdrawal
applications. Tables 4.1 below give the expenditure schedule of the project by component.
Table 4.1: Expenditure schedule by component [UA equivalents]
UA
Components 2012 2013 2014 2015 Total
1 Water supply and Sanitation
Infrastructure
57,750 1,155,000 1,010,625 664,125 2,887,500
2 Support to Institutional Strengthening
and Capacity building/training
181,834 212,139 121,223 90,917 606,113
3 Hygiene Promotion and Education 60,469 141,094 120,938 80,625 403,125
4 Project Management Framework 113,793 170,689 170,689 113,793 568,964
Total base cost 413,845 1,678,922 1,423,474 949,460 4,465,701
Physical contingency (5%) 22,936 93,050 78,892 52,621 247,500
Price Contingency (2%) 89,314 81,037 47,459 18,989 236,799
Total Project Cost 526,096 1,853,009 1,549,825 1,021,070 4,950,000
Table 4.2: Sources of financing (‘000 UA)
UA'000 %Total
Source Foreign Local Currency Total
1. ADF 888 222 1,110 22.43
2. RWSSTF 2,864 716 3,580 72.32
3. GoTG - 150 150 3.03
4. Communities - 110 110 2.22
Total 3,752 1,198 4, 950 100
The cost of the project organized by category of expenditure is presented in table below
Table 4.3: Project cost by category of expenditure [‘000 UA equivalents]
Categories of expenditure UA ‘000
Foreign Local Total Costs % foreign
A. Works 1,528 359 1,887 81
B. Goods 838 114 952 88
C. Services 471 575 1,046 45
D. Miscellaneous 134 447 581 23
Total base cost 2,971 1,495 4,466
Physical contingency 177 70 247 72
Price Contingency 170 67 237 72
Total project cost 3,318 1,632 4,950 67
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B5. Procurement Arrangements
All procurement of goods and works and acquisition of consulting services financed by the Bank
will be in accordance with the Bank's Rules of Procedure for Procurement of Goods and Works or,
as appropriate, Rules of Procedure for the Use of Consultants, using the relevant Bank Standard
Bidding Documents. The PMU will be responsible for the procurement of goods, works, services
and miscellaneous items as detailed in Table B5.1 below.
29
Table 5.1 Summary of Procurement Arrangements (figures in millions)
* “Other” may be LIB, Shopping, and Procurement under Community-Based Investment or Direct Contracting.
30
Scope of Procurement on the Project
Civil Works
5.1 Procurement of civil works for rehabilitation of boreholes including installation of
elevated water tanks construction, totaling UA 715,000, and piped networks and reticulation
system, totaling UA 708,000, will be carried out under International Competitive Bidding (ICB)
procedures. The scope and value of these works are likely to attract foreign competition.
Procurement of civil works for new drilled boreholes and surface works totaling UA 206,000 will
be carried out under National Competitive Bidding (NCB). Procurement of Ventilated Improved Pit
Latrines (VIP) in public institutions (schools and rural health centers) and public places (markets,
bus stations) totaling UA 138,000 will be carried out under NCB. The contract values are small and
works are scattered geographically.
5.2 Procurement of VIP latrines for households totaling UA 325,000 and valued at less than UA
50,000 per contract will be carried out through Bank’s guidelines for Procurement under
Community-Based Investment Project. For this purpose, the Project provides skilled labor (artisans,
masons and carpenters) and materials such as cement, rods, wheel barrows and fencing material.
The Community provides land on which the toilet is constructed; labor to dig the pit, water during
the construction and sand. The local artisans (masons and carpenters) will receive training from
DCD for constructing the household VIP latrines. The acquisition of materials (cement, rods, wheel
barrows and fencing material) for constructing household VIP will be carried out through NCB. The
Manual of procedures of the PMU will determine the administrative, accounting and financial terms
of the Community-Based Investment.
Goods 5.3 The acquisition and installation of solar systems comprising solar panels and solar pumps
valued in total at UA 756,000 will be awarded under one contract through ICB procedures. The
value of goods is likely to attract foreign competition. The acquisition of IT and office equipment
valued at UA 69,000 will be carried out under NCB. The nature and value of the goods may not
attract foreign competition and there is adequate number of qualified local suppliers available in the
country to guarantee large competition. The vehicles, motorcycles and bicycles valued at UA
211,000 and training and awareness materials valued at UA 19,000 will be procured through
shopping. The goods are readily available off-the-shelf goods for small value.
Consulting Services 5.4 The acquisition of consultancy services shall be carried out through Short-Listing and the
method of selection shall be as follows. QCBS for the recruitment of consulting firms for design
(sites survey, network design and studies) and works supervision, valued at UA 76,000; the selection
of consulting firms for sanitation baseline survey, valued at UA 27,500; and the selection of
Consulting firm for implementation of hygiene education, valued at UA 295,000. This last
assignment emphasizes participation and considerable local knowledge; the short list may comprise
entirely NGOs.
5.5 LCS for the recruitment of Audit firm, valued at UA 37,500. The recruitment of PMU
individual consultants valued at UA 288, 000 will be carried out accordingly with Bank’s rules for
selection of individual Consultants.
31
5.6 The PMU staff (Coordinator, RWS Engineer, SS Specialist, M&E Expert, Accountant,
Secretary and driver) through contract(s) will be recruited through press advertisement opened to
Gambian nationals only. The annual renewal of contracts of the PMU staff will be based on
performance contract subject to Bank’s no objection. However, for other individual consultants like
Procurement specialist, the selection method shall be through the Bank’s procedures for the
selection of individual consultants.
5.7 For contract amounts valued at less than UA200,000 for Firms and UA50,000 for
individuals, the Borrower may limit advertisement of the procurement to national or regional
newspapers. However, all eligible consultants, who wish to provide the required services, may
express their interest to be short-listed. For contract valued at more than UA200,000 for Firms and
UA 50,000 for individuals, advertisement of the procurement must be placed on the UNDB online
and the Bank’s website.
Training
5.8 The Community training, totaling UA 106,000 and support to Water and sanitation
working Group, totaling UA 279,000 will be acquired by Short List and the selection method is
QCBS. The promotion of Community Led-Total Sanitation (CLTS) at household level will be on
the responsibility of DCD. DCD will ensure the training of local artisans (masons and
carpenters) for constructing the household VIP latrines.
Miscellaneous/Operational logistics
5.9 Procurement of miscellaneous items during the operation of the project (operating
expenses), totaling UA 568,000 will be procured through shopping. Contracts for Staff training,
valued at UA 56,000 and support to DWR and DCD, valued at UA 20,000 will be acquired
through direct negotiation because the vendor public Institutions have the needed experience
and knowledge in training communities and have been assessed to be the most qualified
institution to oversee the implementation of the trainings. DWR will sign a Memoranda of
Understanding (MOU) with DCD, which would have prior approval of the Bank.
General Procurement Notice
5.10 The text of a General Procurement Notice (GPN) will been agreed with PMU and it will
be issued for publication in UN Development Business online and on the Bank’s web site, upon
approval by the Board of Directors of the Grant Proposal.
Review Procedures 5.11 The following documents are subject to review and approval by the Bank before
promulgation: General Procurement Notice, Specific Procurement Notices, Tender
Documents or Requests for Proposals from Consultants, Tender Evaluation Reports, including
recommendations for Contract Award (goods/works), or Reports on Evaluation of Consultants'
Proposals, Draft contracts (goods/works), if these have been amended and differ from the
drafts included in the tender documents, Reports on Evaluation of Consultants' Financial
Proposals, including recommendations for Contract award, minutes of negotiations and duly
initialed contracts documents.
32
Post Review 5.12 Contracts for goods and works valued up to UA 15,000 shall be approved by the
Executing Agencies, and will be subject to post review by the Bank. Procurement documents,
including solicitations of price quotations, evaluation sheets and contract awards will be kept by
the EAs for periodic review by Bank supervision missions. The procurement post review audits
to review the correctness of the procurement activities will be carried out during the first
supervision mission after the procurement activities are completed. However, the Bank reserves
the right to conduct its procurement audit at any time during the project implementation.
National Law and Regulations 5.13 The national procurement Laws and Regulation of The Gambia have been reviewed
during a Country Procurement Issues Paper (CPIP) in 2005 undertaken by the World Bank. The
Legal and Regulatory Framework is governed by the Public Procurement Act which came into
force in July 2003. The action plan emphasizes the need to strengthen capacity, in order to
improve accountability, integrity and transparency of public procurement and reduce the scope
for waste of resources and corruption. It focuses on fundamental issues which are to be
addressed: (i) Revision of Public Procurement Act to remove conflicting functions of GPPA (ex
ante approval, ex post review and appeal responsibility) and to enable Community Driven
Development (CDD), (ii) Revision of Regulations to clarify domestic preference and small
enterprises preference, (iii) Improve the Institutional Capacity, (iv) Streamline Procurement
Procedures and Market Performance, and (v) Improve the Integrity of the Public Procurement
System. As the recommendations have not been fully implemented by the Government of the
Gambia, procurement under Bank financing will be in accordance with the Bank’s rules and
procedures.
5.14 The Project Management Unit (PMU) will be responsible for the procurement of goods,
works, consulting services, training and operating cost items. The PMU will be formed around
an existing Islamic Development Bank (IDB) financed PMU currently implementing a RWS
Project. An assessment undertaken by the Appraisal Mission on the IDB project revealed that,
with additional strengthening in staff levels, the IDB PMU has the core skills and experience
which the Bank could use in implementing the RWSSI Project. The requirements for the PMU to
effectively implement the RWSSI Project include a Procurement Specialist (part-time) to
undertake all procurement related activities on behalf of the Unit. The Procurement officer will
be recruited through a competitive process accordingly with Bank’s rules and procedures for
selection of individual consultants.
Procurement Plan
5.15 The Bank shall review the procurement arrangements proposed by the Borrower in the
Procurement Plan for its conformity with the Loan Agreement and its Rules. The Procurement
Plan shall cover an initial period of at least 18 months. The Borrower shall update the
Procurement Plan on an annual basis or as needed always covering the next 18 months period of
project implementation. Any revisions proposed to the Procurement Plan shall be furnished to
the Bank for its prior approval.
B6. Audit Arrangements
The PMU will maintain accounts for the Project showing all the required Project financial
details, including expenditures by component, category and financing source. MoFWRMA, will
be responsible for the preparation and submission of withdrawal applications. The internal audit
33
procedures of the executing agency shall be adhered to ensure compliance with policies,
procedures, laws and regulations as well as to appraise the economy and efficiency of the project
funds. An external auditing firm, acceptable to the Fund, will undertake annual audit of the
Project. Certified copies of audited accounts will be submitted to the Bank by the EA within six
months after the end of each financial year. The cost of auditing services will be met from the
project funding.
Internal Audit: The MoFWRNAM Internal Audit Department in collaboration with the National
Audit Office (NAO) will be involved in internal audits to ensure compliance with government
procedures. The duties of the Internal Audit will involve reviewing the internal control systems
of the EA, and conducting special investigations. Project implementation will benefit from the
Audit Unit's responsibility to conduct regular reviews of operations and financial transactions for
the entire Bank’s funded activities.
External Audit: The National Audit Office (NAO) of The Gambia has primary responsibility for
auditing of all government projects. However, audits of donor-funded projects are contracted to
private firms after NAO authorization. Under the project, this arrangement will be followed. The
PMU will be responsible for recruiting the audit firm in accordance with the Bank rules and
NAO regulations. The appointment of external auditors will be appointed within six months of
the Project’s effectiveness. This will be to ensure compliance with audit covenants and ensure
timely audit of project expenditures. A copy of the Bank’s new Terms of Reference (TOR) for
Audit will be given to the project during negotiation for their adoption and use.
The External Auditor will be appointed for a period of up to three years duration, subject to
satisfactory performance. The auditor will be recruited through short-listing. All audits will cover
both financial and technical sides of the projects.
Payments: The External Auditor will be paid directly from the project funds.
Circulation of Audit Reports: The audit report will be circulated to the Bank Group by the EA
within six months from financial year end.
34
B7. Economic and financial analysis
GAMBIA: RURAL WATER SUPPLY AND SANITATION
PROJECT (RWSSP)
ASSUMPTIONS USED IN THE ECONOMIC EVALUATION (ECONOMIC RATE OF
RETURN)
Currency : The analysis has been done in US Dollars.
Exchange Rates : 1 USD is equivalent to Gambian Dalasi GMD 30.
Project Life : 25 years life span is assumed.
Beneficiaries : A total population of approximately 65,000 in 2012 projected to
reach approximately 123,105 in 2040.
I - Economical Analysis
Cost: Project cost is estimated at UA 4.95 million (USD 7.92 million) of which 72 % will be in
foreign currency and the remaining 28% in local currency. All costs exclude physical, price
contingencies.
Investment Cost: The financial cost of the project has been converted into economic cost by
calculating their border price equivalents. Since the Gambia economy is partially open, there is
therefore need for shadow pricing of costs and benefits. A standard Conversion Factor of 0.80
has been applied on all local costs of the project.
Operation and Maintenance Costs: These are the incremental costs of treatments labour,
energy, spare parts, and other necessary maintenance inputs. These are estimated at 5% of the
initial investment value.
II - Economic Benefits4
Reduction of time in search for water-Time savings will be made through reduction in the time
spent in fetching water from sources outside homes. Currently, engaged population with water
fetching in the targeted areas spend 1 hour a day-each in fetching water. When the project is
realized time devoted to fetching water will be reduced by 40% as households will no longer be
fetching water from remote sources. The time savings will be approximately 2.9 million man
hours per year. Assuming an hour rate based on monthly minimum wages of 60 Dollars (USD
0.34/hour), the time savings will be approximately USD 0.796 million, considered in local
benefits.
Increase in productivity- The benefit is the result of the increase in productivity resulting from
reduction of absenteeism from work due to water-borne diseases such as Malaria, diarrheal,
dysentery, and skin disorder. Time savings resulting from reduction in absenteeism are assumed
4 Figures for this assumption are based on the Integrated Household Surveys 2003/04, and the MoFWRNAM
reports.
35
to be 4 days for Malaria, and 3 days for both diarrheal and dysentery. The number of cases
reduced for these decease is reduced by 40,860 cases a year and the cost of treatment per case is
DL 300 (USD 10).
Health Benefits: The assumption of the health related benefits are as follows: (i) the potential
incidence of water borne diseases, projected according to population living in the targeted areas
with no adequate water supply and sanitation services; (ii) an estimated 30%5 reduction in
disease incidence (i.e. Malaria, diarrheal, dysentery, and skin disorder) accrue from improved
water supply and sanitation services by virtue of increased quality, quantity, and regularity of
water supply and sanitation services. These benefits reflect containing the cases of water and
sanitation borne diseases and the savings in medical treatment costs.
Salvage Value: Most of the project facilities (pumps, solar power units, distribution system,
tanks etc., except civil works) would have almost reached the end of their economic live, such
that the salvage values would be negligible and would not make an impact on the evaluation of
the project EIRR. Hence, and as a conservative measure for the computation of the EIRR, no
residual value has been considered at the end of the project’s life span.
Sensitivity Analysis
Sensitivity analysis carried out indicated that the economic aspect of the project is moderately
sensitive to increases in project costs and reduction in benefits. Sensitivity analysis conducted show
that an increase of 15% in project investment cost leads to a drop of the EIRR to 18.73%, while a
15% reduction in benefits would cause the EIRR drop to 18.30%. A combination of both these
factors will cause EIRR to decline to 15.74%. In all cases, the EIRR remains greater or equal to the
opportunity cost of capital in The Gambia
5 This figure is based on the 1991 WHO report “Effects of improved water supply and sanitation on ascariasis,
diarrhea, hookworm infections, schhistosomisais and trachoma”
36
Calculation of the Economical Rate of Return
37
B8. Environmental and Social Analysis
B 8.1 Environmental Analysis: Background
The DWR under the Ministry of Fisheries, Water Resources and National Assembly Matters was
formed under the National Water Resources Act of 1979. The National Environmental
Management Act (NEMA, 1994) is the umbrella legislation establishing the National
Environment Agency (NEA) as a semi-autonomous agency under the Office of the President and
a major stakeholder in the development of the water sector. The legislation gives the NEA vested
powers to enforce environmental regulations.
Environmental review, key findings and recommendations
The ESMP is currently being compiled by a local consultant and will be finalized by the end of
August. The project is classified as having no significant impact and requires no approval from
the NEA. However NEA has indicated that they must be consulted with regard to the finalization
of the ESMP because they are charged with monitoring compliance. NEA will also have to
review the construction of public sanitation facilities in markets and make a decision as to
whether any authorization is required.
Impacts
The main environmental and social impacts resulting from the rural water and sanitation project
will include; creation and expansion of burrow pits: excavations to source building material and
to build foundations will result in burrow pits; dust; soil erosion of the excavated topsoil; noise
pollution which is inevitable during construction of boreholes; loss of vegetation and
encroachment of alien invasive species; air pollution, water (aquifer pollution from the pit
latrines; disruption of water supply where upgrading is being done; water pollution and poor
management of water around water points; increased subsistence farming which could in turn
lead to use of fertilizer and also increased sedimentation; visual intrusion which will arise from
the erection of service reservoir tanks on hills and with regard to abstraction points in the
upstream areas; lowering of the underground water table and possibility of affecting other users
by reducing their borehole yield; over-abstraction and groundwater depletion leading to salt
water intrusion.
Mitigation
Mitigation of negative impacts listed above will include among others limiting the amount of
bare soil to avoid erosion and silt transport during high intensity rainfall events. Where practical,
the excavated topsoil will be stored for reuse. In order to retain the natural vegetation cover,
individual trees of conservation importance that are within the proposed project area will be
marked and avoided during vegetation clearing. Clearing of old mature trees will be avoided and
re-vegetation will be done to ensure indigenous species are not dominated by alien species.
Construction areas will be cordoned off to ensure safety of the passer-by; noise pollution will be
controlled by working during working hours only and using appropriately maintained machinery
with emissions below 85 decibels. Disruption of water supply during upgrading will be managed
through communication and giving adequate prior notice. Visual impacts will be minimized by
careful siting, landscaping and planting of vegetation around the developments. Aquifer
management and protection will be ensured through detailed pumping tests analysis. Aquifer
38
contamination will be prevented by siting the sanitation facilities away from shallow aquifers.
The cost of mitigation is being finalized as part of the ESMP.
Benefits
The project has some benefit as well in that, provision of adequate and safe water within
reasonable distance from homes will free up time for girls and women and result in increased
girls attendance in schools and women will use their time for income generating activities.
Availability of water as envisaged in this project will be coupled with hygiene awareness and
training and this will result in minimization of water borne illnesses. The project will also create
jobs and this will inject money into the local economy for the duration of the construction. Due
to the use of solar panels, there will be permanent Security jobs and all in all the socio-economic
development in the community will be enhanced. The project through its awareness and training
will incorporate other aspects that will empower village development committees and their
subcommittees to think out of the box in terms of devising subprojects that will ensure income
generation for the communities and hence reliable and adequate funds for the maintenance of the
facilities.
Legal and Other requirements
The national legislation in The Gambia does not differ from the Bank’s policies and procedures
on environment and social issues. This will ensure harmonization of monitoring and reporting
requirements. The Gambia’s legislative requirements for this project do not require any form of
authorization while the Bank’s procedures require preparation of an ESMP. However, this is not
necessarily a difference because discussions with the NEA have shown that they would want to
be part of the ESMP finalization so as to ensure adequate monitoring. Some of the legal
instruments relevant to environmental and social aspects of this project are given below.
The government of The Gambia subscribes to regional and international declarations such as:
The eThekwini Declaration: which sets the global bar for progressive and ambitious political
commitment on sanitation to aid Africa to meet the sanitation MDGs.
Sharm-el-Sheick Declaration(2008): which seeks to increase efforts to implement past
declarations on water and sanitation (WatSan); raise the profile of sanitation by addressing the
gaps in eThekwini Ministerial Declaration on sanitation; create conducive environment to
enhance the effective engagement of Local Authorities, Private sector and CSOs; build
institutional and human resources capacity at all levels and mobilize increased donor and other
financing for the water and sanitation initiatives
The Abuja Declaration (2009): which was designed to review progress made on national action
plans towards achieving the eThekwini Action Plan and ministerial commitments, commitments
made at the African Union Summit held in Egypt in 2008, how support can be provided for
realizing both commitments, and to identify the challenges, constraints and steps to be taken to
address them.
Furthermore the Government of The Gambia has the following national requirements pertaining
to water and sanitation.
The National Health Policy Statement (2008) has as its main mission “to promote and protect
the health of the population”; “enhance commitment to the reduction of the burden of disease in
39
the population through …. further advocacy for increased access to safe water for the population
to reduce incidences due to water-borne diseases and poor sanitation”
The Draft Pubic Health Act (2008) was revised to improve on the 1990 Act. It has given
substantive consideration for public and environmental health and other related matters. The Act
empowers the Minister of Health to make regulations relating to the collection, removal and
sanitary disposal of rubbish, night soil and other offending matter. The Act also mandates the
Director of Health Services, who heads the Department of Public Health (DPH), inter alia, to
abate nuisances and to remove or correct any condition that may be injurious to public health.
The Draft Pubic Health Act 2008 covers many relevant sanitation issues such as: food hygiene,
prevention and control of infectious diseases, occupational health and safety, slaughter houses,
control of animals and adherence to international health regulations. It is a strong public health
inspection tool, but with inadequate provision on sanitation issues. It states that ‘It should be a
national objective for all levels of Government to take all necessary steps and measures to
promote safe, reliable and adequate water management systems for all citizens.
The Occupational Health and Safety Policy (2007) aims at integrating occupational health and
safety into national health policies and strategies, through partnership with other sectors. It seeks
to promote healthy and safe workplaces in both the formal and informal sectors, develop and
strengthen occupational health and safety institutions, and strengthen inter-sectoral collaboration
and coordination between stakeholders, with the health sector taking the lead role.
The Gambia Utilities Act (1972) establishes the National Water and Electricity Company
(NAWEC) as a private enterprise with the responsibility to provide potable water and electricity.
NAWEC is also given responsibility for the evacuation of the wastewater/sewage which results
from the use of potable water by the population. No distinction is however made between urban
and rural service provision, though NAWEC’s area of activity is largely limited to the Greater
Banjul Area and the 10 provincial growth centers.
The National Water Policy provides the legal, institutional and strategic framework for water
resources management and development in the Gambia. All aspects of water resources are given
attention. The accent is on the development of capacities to meet increasing demand in all areas,
not only for drinking water supply. The criteria for potable water quality, which are defined in
the ‘Water Quality Standards for Surface Fresh Waters and Groundwater’ attached to the
Environmental Quality Standards Regulations (1999), are based on the World Health
Organization (WHO) Conventions on water quality.
The National Water Policy has however made insufficient provision for sanitation issues. The
provisions of the policy also create a conflicting situation on the issue of institutional
responsibility for sanitation issues, in having to identify NAWEC(the National Water and
Electricity Company), which is a public enterprise with a commercial and profit-making
mandate, to serve as a lead agency for an issue like sanitation which has a largely non-profit
social responsibility.
The National Environment Management Act (1994) is a conglomeration of laws and
regulations applicable to environmental protection in the Gambia. The laws and regulations
concern public health and pollution control as well as natural resource management. The
40
National Environment Agency (NEA) was set up in 1994 by the National Environment
Management Act (NEMA). The Act empowers the Agency, inter alia, to identify and classify
materials, processes and wastes that are dangerous to human or animal health and the
environment.
NEMA has not however made adequate provision for basic sanitation and hygiene services
supply and enforcement.
The Draft Waste Management Bill (2007) is designed to complement the National
Environment Management Act (NEMA), by filling the enforcement gaps in the existing
environmental legislation in the area of waste management, and thereby ensuring that NEMA
environmental protection principles are complied with in respect of international principles and
standards on waste management.
The Anti-Littering Regulation (2008) considers indiscriminate littering as a public offence. It
also introduced a nationwide monthly cleansing exercise, locally known as “Set-Setal”, to
promote proper environmental sanitation and hygienic practices among the population.
The Gambia Public Utilities Regulatory Act(2008) establishes the Public Utilities Regulatory
Agency (PURA) as a regulator for public utilities such as electricity, telecommunications,
drinking water supplies, wastewater and waste management. PURA’s institutional mandate also
permits it to recommend and administer a licensing system for public utilities, the periodic
assessment of tariffs imposed on customers and the efficiency of service delivery. The agency
has established a National Consumer Parliament to provide a platform for consumer-supplier
interaction in evaluating service delivery, responding to consumer complaints and so on.
The National Education policy (2004-2015) elaborates on the expansion of the number of
schools, the required number of classrooms, and related school facilities such as sanitary and
water facilities. The National Education Policy makes no provision for hygiene and sanitation in
the school system, yet the issue is considered critical to the proper and total quality management
of the schools. The Policy failed to set basic principles, guidelines and standards for the
provision and use of water and sanitary facilities in schools. Notwithstanding this omission in the
policy document, the sector has made significant steps in ensuring the provision of basic sanitary
facilities and services in the school environment.
National Water and Electricity Company (NAWEC), Company’s Act, 1995 established
NAWEC, which assumed the role and responsibility conferred to the private sector utilities
company set up under The Gambia Utilities Act, 1972. The Memorandum of Association makes
it accountable for the provision of water supply, power generation and sanitation services across
the country. The National Utilities Company (Water Supply) Regulations describe the
mechanisms for tariff setting – private connections, public buildings, industries and agriculture –
with payment methods. The regulations also outline the penalties for misuse and damage of
water installations.
Forestry Act, 1998 covers the protection, exploitation and development of the country’s forestry
resources. In the Act the Declaration of Water and Wind Erosion Areas and Protection Forests
states that:
41
1. Part IX (77) - The Secretary of State may, by Notice published in the Gazette, declare any
lands to be water or wind erosion areas; and,
2. Part IX (79) - In relation to lands so declared, the Secretary of State may make
regulations for the purpose of preventing water and wind erosion.
Hazardous Chemicals and Pesticide Control and Management Act, 1999 sets norms and
establishes licensing procedures in these areas. It contains no water-related or water-specific
issues; and thus, there is no legislation regarding chemical contamination of either ground or
surface water sources, through either chemical spillage or the residues of pesticide or chemical
fertilizers from agricultural activities.
Waste Management Act, 1999 covers ‘the safe management of waste’, and waste management
licensing. The Act delegates the NEA as the Waste Regulation Authority with the responsibility
for waste collection and waste disposal being vested with designated authorities.
Environmental Quality Standards Regulations, 1999 prescribes water (fresh, ground, and
saline water), and air quality standards. The DWR is represented on Environmental Quality
Standards Board. Section 5 (1) states ‘The environmental quality standards set out in Schedule 1
shall apply in respect of ambient air, saline waters, surface fresh waters and groundwater’. The
NEA shall ensure that standards set out in Schedule 1 are maintained.
Environmental Discharge Permit Regulations, 2001 deals with the discharge of ‘dangerous
material’ into the air, water and onto land. It establishes standards and prescribes procedures
whereby discharge permits are assessed, approved and in the case of violation, withdrawn.
The Local Government Act (2002) defines the role of local government institutions ― such as
Area Councils, District Authorities, Ward Development Committees (WDCs), Village
Development Committees (VDCs), public health institutions, schools, and agricultural
infrastructures in local governance. The Local Government Act defines the responsibility of
Local Government Authorities in ensuring general hygiene and sanitation, as well as the
provision of public services such as portable water, wastewater and waste management. A
drawback in the implementation of the Local Government Act (2002) is that it entrusts the
Minister of Health responsible for the administration of the Public Health Act (2008) to delegate
service provision to local governments. The delay however, in delegating basic services like
sanitation and general hygiene to local governments is a major contributor to the low sanitation
situation in the country. This situation justifies the development of a comprehensive framework
for ensuring the effective and efficient coordination of institutional mandates and responsibilities
on sanitation.
National Water Resources Bill, 2004 (draft) describes the previous approach to water
resources management and while partially in line with this Policy many of the international best
practices related to IWRM are absent and it will require major revision. Once it has been
brought into line with the Policy, it will provide the enabling framework for implementing the
Policy. The main elements of the 2004 Water Bill include:
1. Section 8 – reaffirming the role of NWR Council whose functions include the
‘formulation of an overall water resources policy, approve funds, undertake engineering
works and implement management systems’;
42
2. Section 14 – recognizing the DWR as the line body whose functions include the
‘initiation of a system of water rights and regulate the development and use of water
resources, monitor and safeguard the quality of water resources, manage the hydro-
meteorological system, undertake investigations and planning and develop and
implement cost recover mechanisms’; and,
3. Section 16 – reaffirming the NWR Committee as the executive arm of the Council whose
functions include ‘coordination and approval of projects, promotion of sector basin and
master plans, establishment of a licensing system for users of water, promote a review of
existing legislation, and provide the Council with technical support’.
Draft Fisheries Act, 2006 is administered by the Department of Fisheries and Water Resources
and is concerned with the regulation, protection and exploitation of the country’s fresh and sea-
water fisheries. The Act defines ‘fisheries waters to mean inland waters, the territorial sea and
the marine waters of the Gambia’, and in:
1. Part VI – Aquaculture (32) - encourages the promotion and development of aquaculture
in The Gambia; and,
2. Part VI – Aquaculture (33) - provides for the allocation, by the appropriate Department of
State or Ministry, of lands for aquaculture development.
B8.2 Stakeholder Consultations
Consultation meetings and workshops were undertaken with the following stakeholders whose
responsibilities in terms of national law are also provided.
STAKEHOLDER RESPONSIBILITIES Ministry of Health
and Social Welfare The lead Ministry with responsibility for overall coordination, creating an enabling
environment for sanitation interventions of all stakeholders in the different sectors
and regions and monitoring sanitation standards in households, schools and public
facilities. □ Enforce health policies and legislations to promote improved sanitation and proper
hygiene practices Promote sanitation social marketing approaches to promote good hygiene and
prevention of sanitation related diseases Ensure a comprehensive health services deliveries Prosecute offenders of the Public Health Act and Regulations Provide technical backstopping through posting of PHO to the LGAs for improving
the sanitation service deliveries Network and collaborate with development partners to improve service deliveries.
Ministry of Local
Government and
Lands
Enforce legal regulations on land administration and use Enforce physical planning regulations and housing developments Provide the technical backstopping to the lined departments under the Ministry Network and collaborate with development partners to improve service deliveries.
Department of
Water Resources In partnership with the Ministry , develop and implement policies for the national
water resources management In partnership with the development partners, implement programs to provide
potable water supply systems and improve sanitation in the rural communities Assist village communities in the management of their water supply systems Conduct water quality monitoring country wide
43
Manage and run the water quality laboratory in Abuko Provide technical advice and guidance for groundwater extraction in the Gambia Focal point for the World Metrological Organization (WMO).
National Water
and Electricity
Company
(NAWEC)
Supply water, electricity and sewerage in urban and peri-urban areas of the Gambia Establish and implement policies and systems to manage sewerage in the Tourist
Development Area (TDA) and Banjul city (collection and disposal) . electricityde
National
Environment
Agency (NEA)
Enforce the National Environmental Management act Implement policies and legislations on environmental management and standards Develop thorough regulatory instruments and enforce legal standards for effluent
disposals Implement environmental education & conservation programmes Monitor, identify and control the importation and use of toxic and hazardous
materials to the public and the environment Department of
Basic and
Secondary
Education
(DoBSE)
Implement policies and programs for basic and secondary education Ensure that basic standards are adhered to by all schools Establish and conduct systematic monitoring of basic and secondary schools Provide the human and the material support to public basic and secondary schools,
including the provision of sanitary facilities Provide training of teachers and ancillary staff on sanitation
Department of
Community
Development
(DCD)
Support the formation and strengthening of community institutions for better
management and sustainability of development interventions Work as partner with the communities to identify problems and develop/apply
possible solutions Establish and implement an Appropriate Technology and Research Unit to build
and strengthen the community skills Conduct community sensitization for effective participation to enhance ownership
and sustainability Training of community artisans on low-cost latrine construction
UNICEF Support Governments efforts to improve health and to reduce morbidity among the
poor and vulnerable population.
Consultations outcomes
The following issues came out of the consultations;
i. Women vegetable gardens were seen as a crucial component to be serviced in terms of
latrines;
ii. The Gambia already has a Water and Sanitation Working Group but is currently dormant
and needs to be revitalized at National, and Regional levels to ensure smooth
implementation of the project by all the responsible parties. In addition it was seen as
necessary to ensure VDC’s exist in all communities involved in the project and then
strengthen their capacity and that of relevant subcommittees through training courses.
The issue that such VDC’s may become dormant after the implementation of the project
was raised, it was therefore recommended that the project should also introduce
complimentary initiatives that will ensure income generation for the long term
sustainability of the project and maintenance;
44
iii. It was recommended that there should be short training courses for key staff of DCD on
new sanitation technologies and Ministry of Health on new technologies for hygiene
promotion and education;
iv. There was a recommendation to train the DCD technical department for the construction
of latrines so that costs can be reduced. This pertains to community toilets not ones
requiring super structures such as the ones planned for public places;
v. The teams raised the fact that there is a risk of the toilets not being used if the education
and awareness is not done adequately.
B8.3 Social and Gender Analysis
General Background Context:
As at the last national census in 2003, Gambia had a population of 1.4 million with an urban-
rural differential of 62% and 38% respectively. With a growth rate of 2.8%, it is estimated that
the population would grow to 2.04 million by 2015, MGDs target date. In an effort to
proactively check the population trend which was not in tandem with sustainable socio-economic
growth, the government in 2006 adopted a new population policy (2007 - 2015) that amongst
others seek to reduce the growth rate and as well address some of the socio-economic indices.
HEALTH
The health outcomes in the country though worrisome show a progressive move towards the
MDGs with infant mortality rate of 75 per 1000 live births, under-5 mortality rate of 93 per 1000
live births and maternal mortality ratio of 566 per 100,000 live births (as at 2006). These poor
health indicators have been attributed to many factors including the inadequate access to water
and sanitation facilities particularly in the rural parts of the country. The incidence of diarrhea,
malaria, typhoid, cholera and other water-related diseases which are major causes of child
morbidity and mortality in the country are directly related to the insufficient access to water and
sanitation services. Reports in the Gambia have shown reduction in deaths arising from diarrhea,
malaria, and cholera in some communities following water and sanitation interventions.
Childhood Illnesses: Communicable diseases are the major cause of morbidity and mortality
among children under five years, especially those living in poor conditions. Children who
succumb to illness miss out on school, damaging their future prospects as well as the future
economic health of their societies. Poor families are forced to spend a large proportion of their
income on treating their children which damages the family’s ability to improve their economic
status. Malaria, respiratory tract infections, and diarrhea have been implicated as the major
causes of child deaths (about 60%) in The Gambia as depicted in the graph below.
45
Distribution of Causes of Death in Children Under Five in The Gambia.
Source: WHO, 2008
Malaria
Malaria has been identified as the leading cause of death in children under five in The Gambia.
Studies have revealed that malaria is responsible for about 39% of clinic visits by under-5
children in The Gambia. A malaria indicator survey also shown that 21.1% of children below 5
years had fever (malaria) 2 weeks before the survey.
In the World Malaria Report 2008, an estimated 247 million cases of malaria, (2006 WHO
figures) led to almost 881,000 deaths worldwide, with over 75 percent of these deaths among
African children under five years of age.
Diarrhea
In The Gambia, there has been conflicting figures on diarrhea prevalence rate but The Gambian
baseline survey on WASH puts it at 24% among children under five. Diarrhea has also been
implicated in about 1.7 million child deaths each year worldwide.
Causes
Diarrheal diseases are caused by ingestion of contaminated water and food or by poor hygiene
and sanitation practices. They are most prevalent in areas where people struggle to find clean
water for drinking, cooking and sanitation. Untreated diarrheal episodes can cause severe
dehydration and electrolyte imbalance (loss of essential minerals from the body) resulting in
death.
In addition to the inadequate safe water and sanitary facilities, only 9 percent of Gambians use
soap and water during hand washing, which would be an obvious cause for the spread of
diarrheal diseases.
POVERTY
Approximately 60% of Gambians are classified as poor with a large rural-urban disparity of
67.8% to 39.6% respectively in poverty rates. However with regards to gender, 48% of males
and 63% of females are considered poor, with 15.1% of females and 8.5% of males classified as
extremely poor. An Integrated Household Survey conducted some years ago indicated that while
poverty is found in all parts of the country, extreme poverty can be found more in rural areas
Distribution of Causes of Death in Children Under
(2008)
0
5
10
15
20
25
Malaria Pneumonia Other Diarrhoea Pre maturity Birth Asphyxia Neonatal
sepsis
Injuries Congenital
abnormalities
Measles
%
46
than in urban areas, and that poverty affects women on a greater scale than men6. Women and
children are placed at greater risk to abuse and exploitation as they seek ways to earn needed
income. Children from poor households may be kept out of school in order to contribute to
family income or tend children while parents work or are engaged in farming and heath can be
negatively affected if needed medications are not affordable or provided by health facilities
To address this general poverty and the gender dimension, the government introduced several
policies and programmes for poverty alleviation including PRSP ii (2007 – 2011) which has
gender mainstreaming as pillar 5, Poverty Reduction and Growth Strategy (PRGS), National
Gender Policy 2010 - 2020 as well as several credit schemes.
WASH
Access to water is 75% while to sanitation services is put at 48% with significant urban/rural
disparities in both cases (80% : 70% for water and 55% : 40% for sanitation) which are
improvements following the interventions by the government and development partners in the
sector in recent years. However, the successes so far obtained fall short of MDG expectations
and face the possibility of reversal due to the current dysfunctional state of some of the
infrastructure and the increasing population and need for the services.
The GOTG has developed policies and strategies including those for water (2006) and Sanitation
& Hygiene (2009 – 2014) with the objective of meeting the challenges brought about by their
poor access to the citizens.
WASH in Schools: In the Gambia, the WASH situation in schools is particularly dire and the
sanitation situation varies greatly between private and public schools, urban and rural schools.
An assessment of 32 schools from all the 6 regions and 2 municipalities throughout the country
revealed that 72.7% of schools get drinking water from taps, while 23% get water exclusively
from wells, and 35% of the taps and 32% of the wells were not functional at the time of the
study. For schools where students had access to portable water, the median pupil: water ratio was
at an abysmally low rate of 630:1. In terms of toilet availability, the median pupil: toilet ratio
was 97:1. The figures were worse in rural public schools compared to urban areas for example, at
one private and urban school, the median pupil: latrine ratio was 20:1 while a rural public school
had a median pupil: latrine ratio of 514:1
WASH in Health Facilities: An institutional assessment conducted in 2009 showed that provision
of toilet infrastructure is appalling. 10% of the centers assessed do not have any form of toilet
facility for outpatients. The median patient: toilet ratio was 43:1, while in a third of the centers,
toilets are not separated by male/female. Generally, WASH conditions in the facilities are often
in appallingly unsatisfactory conditions
WASH in Public Places: In a study, a total of 14 conventional markets and 14 traditional markets
or “Loomos”, where over 100,000 people interact weekly, were assessed throughout the country
in respect to their sanitary conditions. When assessed for access to portable drinking water, such
services were found to be generally poor in mass interaction areas. 9 markets (i.e. 64.3%) were
dotted with at least one tap while only 6 Loomos (46%) had at least one tap but majority of these
taps were however not functional. The availability of toilets on the other hand was found to be
grossly inadequate considering the number of people interacting in such places and the
6 Situation Analysis of Children & Women in The Gambia Draft Report 2010
47
environment was unhygienic and generally unacceptable. Squat toilets were found in 57% of the
conventional markets and 64% of the traditional markets (Loomo).The assessed facilities were
equipped with an average of 2 to 4 toilets without specific gender considerations.
B8.4 Gender Analysis
The target population for project is communities in the 5 rural regions in The Gambia. The
selection process was demand driven with no specific gender criteria but since more women
dwell in the rural regions compared to their male counterparts who often migrate to the cities
(urban centres) in search of jobs, it stands to believe that the project impact will be more on
women. Also, the female gender is more disproportionately affected by the lack of or inadequate
water supply and sanitation facilities. It is the women and girls that are traditionally responsible
for fetching water used for cooking, washing, cleaning and drinking in the household. Often,
they go long distances getting water for the home which affects the time available for other
activities like school attendance, income generating activities etc. The often absence or
unconducive sanitary facilities in schools and other public places affect the dignity of the woman
folk and so reduce their interest in services provided in such places.
Project Effect on Gender Dimensions:
The project is expected to impact positively on female gender in several ways – income, health,
education and politically.
Increased Income: About 90% and 70% of economically active women and men respectively are
involved in rural agriculture in The Gambia. With the safe water provided under the project,
majority of these women will have ‘freed time’ from the fetching of water and attending to sick
children (due to water related diseases) for use in their farms and or other economic activities.
Some of the women will also serve as laborers and petty food vendors during the constructions
and borehole drillings thus improving their income.
Political Empowerment: Given the commitment of the project to promoting gender equality and
women empowerment, it is anticipated that women would become more politically empowered
and relevant in the communities through active participation in VDCs activities including
decision making pertaining to development planning and management in the communities. The
current situation where there are only 8 female councilors (10%) of the total 80 elected in the 5
rural councils of the country will likely witness improvement.
Health: The high maternal mortality ratio of 556 per 100,000 live births in the country has been
linked to poverty (>60%), illiteracy (in rural areas only 30% of women are literate) and poor
quality of health services. The project is expected to improve on this through reduction in
malaria, diarrhea and other water-related diseases incidence as well as freeing of the health
burden on women attending to their sick children and family members in hospitals. Increased
female literacy rates arising from improved school attendance and survival rates will bring about
a decrease in earlier pregnancies and better self-care before, during and after childbirths.
Education: For the girl-child, school attendance is expected to increase as the project will ensure
provision of separate toilet facilities for boys and girls in schools. The availability of water in
households through the project will eliminate the burden of spending hours fetching water
therefore freeing time for the girl-child school attendance.
48
In general, women confidence and dignity is expected to be maintained or restored through the
improved sanitary facilities in schools, public places and households.
Risks
The likely gender risks under the project include;
1. The possibility of the rural female headed households (about 12.8%) not benefiting from the
facilities due to inability to pay, and
2. Alienation of the female gender in decision making at the community level.
Mitigation Measures:
* The communities have a mechanism for identification and payment exemption for the very
poor or indigent persons or households. This exemption mechanism shall be strengthened and
enforced under the project.
* The local government act 2002 provides for women involvement in decision making at
community level by stipulating and identifying women as mandatory members of village
development committees (VDCs). The VDCs have the constitutional responsibility for all
development planning at the village level and serve as the local entry point for all development
assistance to the villages. The project shall through gender mainstreaming and women
empowerment training and sensitization campaigns/programmes to key decision makings ensure
implementation of the act.
Though the project has the general objective to improve access to sustainable water supply and
safe sanitation in the rural areas, it has a gender dimension in that women and girls are the
greater beneficiaries as already explained.
The country gender profile as well as the gender assessment conducted prior to this time brought
out important issues that informed the project design.
B8.5 Social Specific Issues
Social Benefits:
The project is expected to contribute to the efforts of the government towards meeting the MDGs
and to the general wellbeing of the people in the benefiting communities. Access to safe and
sustainable water supply and improved sanitation facilities brings about improved health
resulting in reduced time in hospital attendance, reduced cost on medicines, and more time and
energy for economic or income earning activities. The envisaged socio-economic impact of the
project is enormous.
Impact on Health:
* Reduce incidence of water- related diseases like diarrhea, malaria, trachoma, cholera, typhoid
etc. thereby contributing to reduction in child mortality which is currently put at 93 per 1000 live
births.
* Reduce or mitigate the impact of HIV/AIDS by reducing the chances for opportunistic water
related infections. HIV prevalence rate is low (1.4%) but women are more affected (75%).
Impact on Education:
The project will assist in moving the country towards meeting MDG 2 i.e. “Achieve universal
primary education” by contributing to improvement in the school attendance and survival figures
49
particularly of the girl-child. It is anticipated that survival shall improve from the present 60%
for grade 9 and 26% for grade 12 to 70% and 30% respectively. The provision of access to safe
water supply and improved sanitation has been demonstrated to result in positive impact on basic
education through several means. First is the relief from the traditional role of water fetching
from long distances for the girls thus providing time for school attendance and retention.
Secondly, the provision of separate sanitation facilities (toilets) at the schools also encourages
school attendance for both sexes.
The access to water and sanitation made possible by the project will attract teachers to these rural
communities which is expected to impact positively on the leaning and education outcomes of
children in the schools. Chronic early childhood diarrhea often due to poor water supply and
sanitation/hygiene practices may cause impaired brain development with the resultant negative
impact on a child’s learning achievements. With this project, these water-related diseases that
may affect child development will be significantly reduced thereby allowing for full learning
achievements.
Community Empowerment:
* Capacity building for the VDCs under the project will improve their ability to manage
themselves and general services including water and sanitation in the community.
* Department of Community Development is expected to train about 150 community volunteers
on construction of household toilets and sanitation facilities thereby equipping them for future
job prospects.
* The project will provide job opportunities for about 500 unskilled laborers and artisans in the
communities as it is committed to using some of these groups of people in the construction of the
sanitation facilities and drilling of boreholes in the project sites.
* The construction period will offer opportunities for some form of petty trading to women in the
communities.
Risks
* None use of the facilities (water and toilets): This will arise is the siting is bad and
unacceptable to the end users.
* Thief: The borehole pumps and other infrastructure are liable to been stolen by unscrupulous
members of the society.
Mitigation Measures:
* Sites for the water points and public toilets shall be jointly identified by the end users with
strong women involvement and the government operatives.
* The communities will recruit guards whose responsibility it is to secure the water
infrastructure. Theses shall be paid from the monthly contributions made by beneficiaries as the
operations and maintenance costs for the installed facilities.
Stakeholders Participation:
At every stage of this project formulation (identification, preparation, design and appraisal), key
stakeholders including the direct beneficiaries/communities, public sector, NGOs development
partners were consulted and their views used in finalizing the project document. Some of the
agencies and institutions dialogued with and the summary outcomes of the discussions at
appraisal are listed under the environmental analysis section above.
50
The major stakeholders shall be involved at all levels of the project circle – implementation,
monitoring, reviews and evaluation. Depending on their areas of expertise and or legal
responsibilities, ministries/agencies shall take lead in specific activities under the project. For
example, the ministry of health shall take the lead in the sanitation and hygiene promotion while
the Department for Community Development (DCD) shall lead others in the processes leading to
the eventual construction of the sanitary facilities. The Department of Water Resources (DWR)
shall take responsibility as lead agency in the provision of boreholes while the women’s bureau
shall lead gender mainstreaming activities including gender training.
B 8.6 Monitoring & Evaluation
To ensure that the project is managed efficiently and that project benefits are maximized and
reach target groups, M&E will be a key activity during implementation. Monitoring activities
will be conducted periodically to gather information from multiple sources to determine whether
inputs have rendered expected benefits to the target population. The M& E process will also seek
to detect any deficiencies and discrepancies between the plan and execution of the Project so that
timely corrections can be made to improve resource efficiency, benefits, outcomes, and impacts.
Indicators to be monitored have been formulated and agreed upon with the Executing Agency,
and presented in the log frame. Selected indicators, which include the Bank’s Core Sector
Indicators, pertain to physical progress, project impact with disaggregated data to demonstrate
benefits with targets for gender, capacity-building activities, and institutional reform activities.
The PMU will update the baseline physical and socioeconomic data in each of the five project
regions, submit a detailed implementation plan for monitoring performance, and prepare
benchmark information for the Bank’s review and concurrence 3 months after work begins in a
particular Region
The implementation and monitoring processes are planned to be participatory in nature and shall
involve all key stakeholders including the beneficiaries’ themselves. At the national level the
DWR through the PMU in collaboration other partners shall conduct monitoring site visits
routinely just as the MDFTs in collaboration with the local councils conduct theirs and report to
the national coordinating team. At the ward and community levels, the DWCs, VDCs and VWCs
with assistance from MDFTs will be responsible for monitoring at those levels.
Social & Gender Related Indicators:
- Number of artisans trained by sex
- Number of gender-segregated public and school sanitary facilities constructed
- Village water committees membership by sex
- % of female heads of household benefiting from the project
- Number of training on gender mainstreaming or gender related issues conducted for key
project stakeholders
- Under-5 Mortality Rate
- Infant Mortality Rate
- Number of female and male teachers trained in hygiene and sanitation promotion.
51
B9. Project preparation and supervision
The following is a schedule of the key milestones during the preparation of this project.
Activity Date
1. Identification/Preparation March 2011
2. PCN to OPSCOM July 2011
3. Appraisal August 2011
4. Presentation to Senior Management September 2011
5. Negotiations December r 2011
6. Board Approval January 2012
7. Planned Date of Effectiveness June 2012
8. Planned Date of Mid-Term Review March 2014
9. Planned Closing Date December 2015
C1 Monitoring
Indicator Definition
Water Access % of people within 0.5 km of an improved water source
Sanitation access % of people with access to improved sanitation
Hand washing % of people with access to hand-washing facilities
Gender % of water user committees with women holding key positions
Water Quality % of water samples taken at point of water collection (stand
tap)complying with national standards
Management % of water points with actively functioning village water committees
C2. RWSSI Progress Reporting
The project will also be required to report to the Bank on the basis of the attached format (F1)
below.
52
Report Date:
Board Approval date:
Bank Closing Date:
1 Rural Water Coverage(%) 2 Rural Sanitation Coverage(%)
Baseline: as of Baseline: as of
Target: by Target: by
3 Cumulative Additional Population Served (million)
Target:
(1) Water Supply
(2) Sanitation
4 Cumulative New Water Points Constructed
Target:
(1) Hand Dug Wells
(2) Boreholes
(3) Springs
(4) Roof Water Harvesting
(5) Piped Systems (water points)
(6) Others
5 Cumulative Water Points Rehabilitated ##
Target:
(1) Hand Dug Wells
(2) Boreholes
(3) Springs
(4) Roof Water Harvesting
(5) Piped Systems (water points)
(6) Others
6 % of Water Points Functioning
7 Cumulative Sanitation Infrastructure Constructed
Target:
Total Latrines (A+B)
A. Household Latrines
B. Total Public Latrines ((1)+(2)+(3)+(4))
(1) School Latrines
(2) Health Post Latrines
(3) Market Place Latrines
(4) Others
31/12/09 31/12/10 30/06/11
31/12/09 31/12/10 30/06/11
31/12/09 31/12/10 30/06/11
Total Rehabilitated
((1)+(2)+(3)+(4)+(5)+(6))
31/12/09 31/12/10 30/06/11
Total Constructed
((1)+(2)+(3)+(4)+(5)+(6))
31/12/09 31/12/10 30/06/11
Country:
- Cumulative Achievement Report -
53
C3. Generic Terms of Reference for the Project Management Unit
Under the overall direction of the Director of the Department of Water Resources, and being
responsible for the day to day management of the Rural Water Supply and Sanitation Project,
the PMU will have the following duties and responsibilities:
Take direct and overall responsibility for the planning, organizing, implementation, and
management of the project, including the technical, administrative, financial, procurement
disbursement quality control, monitoring and evaluation, and reporting tasks and activities.
Prepare detail wok plan, organize and staff the unit for the execution of the project;
Manage, direct, supervise monitor and evaluate the work of consultant to be recruited for
the refining and updating of the components and scope of the works, detail cost estimates,
and supervision of works.
Provide project management services.
Engage Private Sector, contractors, and suppliers to provide works, goods and services
required by the project.
Supervision and evaluation of staff
Advise DWR on ways of improving Project implementation
Prepare monthly and quarterly performance reports, to be submitted to the NSC and the
Bank (quarterly reports);
Participate in the regular review and evaluation of overall progress of the project
Provide on the job training for local staff
MFWRNAM will develop Job Descriptions for each staff that will be hired on the PMU
C4 Terms of Reference for the National Steering Committee
Purpose and Functions
The purpose of the NSC is to provide policy and technical guidance in the implementation of the
project. The key functions of the NSC
1. Review and approve annual work plans and budget within the framework of the financing
agreement and the Project Appraisal Report.
2. Review and approve project outputs – study reports, strategies, draft water bill, etc, and
provide feedback to the consultants and/or the Project Management Unit.
3. Review and approve progress reports and financial reports.
4. Facilitate contacts with national institutions, stakeholders and/or individuals for access to
data and information needed for carrying out the studies.
5. Ensure participation of national institutions and individuals in project activities.
6. Serve as platform for disseminating and sharing information.
7. Resolve conflicts or obstacles to implementation of the project through expeditious
consultations with relevant institutions and stakeholders.
54
Membership
The members of the PSC will consist of senior representatives of the following organizations:
(1) Ministry of Finance and Economy
(2) Ministry of Fisheries, Water Resources and National Assembly Matters
(3) Office of the President
(4) Ministry of Local Government and Land/ Department of Community Development
(5) National Environmental Agency
(6) Ministry of Health and Social Welfare /Department of Health
(7) Department of Water Resources
(8) Women’s Bureau
(9) The Association of Non-Governmental Organisations (TANGO
Meetings
The NSC will meet quarterly; but the Chairperson may call an extraordinary meeting to consider
any legitimate matters brought to the NSC’s attention.
55
C5 Organizational Structure of the Ministry of Fisheries, Water Resources and National
Assembly Matters
56
S/N Region/District Village Pop.
2011
Pop.
2020
D/ W/Demand
2020 (m3)
Esti.Max.
Pumping Head
(m)
BH Size
(mm)
Est.Size
Solar (Wp)
Tank size
(m3)
REMARKS
NBR
1 Upper Niumi Maka Bala Manneh, Madina,
Kerr Ngata
971 1160 58 40 150 2500 40 Complete new system
2 Jokadu Touba Angalleh 1063 1270 64 40 150 2600 40 Complete new system
3 Upper Niumi Bantanding Wollof 1095 1309 65 40 100 2600 40 Already has B/H
4 Jokadu Tambana 1072 1281 46 40 100 2200 30 Complete new system
5 Sabach Sanjal Ballo Ebra 1,152 1377 69 40 150 2800 40 Complete new system
CRR
6 Nianija Conteh & Sare Alpha 1,154 1379 69 40 150 2800 40 Complete new system
7 Nianija Sinchu Tafsirr, Buduk,
Sinchu Batch, Sare Janko &
Sare Sidi
1,870 2235 112 40 150 4200 80 Complete new system
8 Niani Wassu & Lamin Kanteh 2,355 2814 141 40 150 5200 80 Complete new system
9 Fulladu West Madina Tunjang 1,117 1335 67 40 100 2800 40 Already has B/H
10 Fulladu West Faraba, Nema & Konko Fula 1,106 1322 66 40 150 2800 40 Complete new system
11 Fulladu West Tabanani 1,091 1304 65 40 100 2800 40 Already has B/H
12 Fulladu West Taifa, Sare Futa & Sinchu
Dambelli
1,987 2375 119 40 150 4800 80 Complete new system
URR
13 Kantora Song Kunda 1,346 1609 80 40 100 3000 40 Already has B/H
14 Jimara Gambissara Lamoi 1,574 1881 94 40 150 4300 60 Complete new system
15 Jimara Gamara, Sare Baga, Madina
Mbayen, Sambou, Likassi &
Ghaltten
1,938 2316 116 40 150 4900 80 Complete new system
LRR
16 Kiang Central Sibito 776 927 46 40 100 2200 30 Complete new system
17 Jarra West Si Kunda 1,234 1475 74 40 150 3000 40 Complete new system
WCR
18 Foni Jarrol Sintet and Sintet Fula Kunda 1,417 1693 85 40 150 3500 60 Upgrading
19 Foni Kansala Kangfenda and Burrock 1,226 1465 73 40 150 3000 40 Complete new system
20 Foni Bintang Sibanorr Upgrading 4,013 4796 240 40 200 (2) 40 Kva Gen 100 Upgrading
21 Foni Brefet Ndemban Upgrading 2,196 2625 131 40 150 3000 - Upgrading
22 Foni Brefet Bullock Upgrading 3,326 3975 199 40 150 (2) 5300 - Upgrading
C6. Project Villages
TECHNICAL DATASOCIAL DATA
AFRICAN DEVELOPMENT BANK AFRICAN DEVELOPMENT FUND
BOARDS OF DIRECTORS
Resolution N° B/GM/2012/05 - F/GM/2012/08
Adopted by the Boards of Directors of the Bank and the Fund on a lapse-of-time basis
on 13 February 2012
Grant to the Republic of The Gambia from the resources of the Rural Water Supply and Sanitation
Initiative Multi-donor Grant Arrangement to finance part of the foreign currency costs and part of
the local currency costs of the Rural Water Supply and Sanitation Project
THE BOARDS OF DIRECTORS,
HAVING REGARD to: (i) the Agreement Establishing the African Development Bank (the "Bank"), in
particular Articles 1, 2, 32 and 50; (ii) the Agreement Establishing the African Development Fund (the
"Fund") in particular Articles 2, 8, 26 and 42; (iii) the Instrument for the Rural Water Supply and Sanitation
Initiative (RWSSI) Multi-donor Grant Arrangement, executed by the Bank and the Fund and certain
Donors; and (iv) the Appraisal Report contained in document ADB/BD/WP/2012/06/Approval -
ADF/BD/WP/2012/04/Approval (the "Appraisal Report");
RECALLING Resolutions B/BD/2006/02 and F/BD/2006/01 adopted by each of the Boards of Directors
of the Bank and the Fund, as applicable, approving the text of the Instrument for the RWSSI Multi-donor
Grant Arrangement, pursuant to which the Bank and the Fund administer the resources of the RWSSI
Multi-donor Grant Arrangement;
DECIDE as follows:
1. To award to the Republic of The Gambia from the resources of the RWSSI Multi-donor Grant
Arrangement, a grant of an amount not exceeding the equivalent of Four Million Euros (EUR
4,000,000) to finance part of the foreign currency costs and part of the local currency costs of the
Rural Water Supply and Sanitation Project;
2. To authorize the President to conclude a Protocol of Agreement between the Bank and the Fund
on the one hand, and the Republic of The Gambia on the other hand, on the terms and conditions
specified in the General Conditions Applicable to Protocols of Agreement of the Fund, and in
the Appraisal Report;
3. The President may cancel the Grant if the Protocol of Agreement is not signed within one
hundred and eighty (180) days from the date of approval of the Grant; and
4. This Resolution shall become effective on the date above-mentioned.
