Language: English

Original: English

STUDY: Rural Water, Sanitation and Hygiene (RWASH)

Program Development Study

COUNTRY: Liberia

STUDY REPORT

July 2012

Task Team

Team Leader:

Team Members:

Sector Director

Reg. Director

Sector Manager

Resident Rep

Rees Mwasambili

Ms. Mose Mabe-

Koofhethile

Mr. E. K. Kuatsinu

Mr. S. Bruce-Smith

Mr. S. Jallow

Mr. F.J.Perrault

Mr. K. Ba

Ms. M. Kilo

Task Manager, Senior Water and

Sanitation Engineer, OWAS.1

Principal Procurement Specialist

Consultant, OWAS.1

Consultant, ORPF.2

OWAS/AWF

ORWB

OWAS.1

LRFO

Peer

Reviewers

Basil Jones Principal Institutional Capacity Development officer; OSFU

Andrew Mbiro Water and Sanitation Specialist; OWAS/UGFO

Eskinder A. Demissie Sr. Water and Sanitation Engineer, OWAS.2

TABLE OF CONTENTS

LIST OF ACRONYMS i

GRANT INFORMATION ii

PROJECT SUMMARY iii

RESULTS-BASED LOGICAL FRAMEWORK iv

1. INTRODUCTION AND BACKGROUND 1

2. THE PROPOSED STUDY 3

2.1 OBJECTIVES 3

2.2 OUTCOMES 3

2.3 OUTPUTS 3

2.4 SUMMARY DESCRIPTION AND ACTIVITIES 3

3. COSTS ESTIMATES AND FINANCING PLAN 5

3.1 COST ESTIMATES (FOREIGN AND LOCAL) 5

3.2 FINANCING PLAN 6

4. EXECUTION OF THE STUDY 6

4.1 EXECUTING AGENCY: ORGANIZATION AND MANAGEMENT 6

4.2 FINANCIAL MANAGEMENT ARRANGEMENTS 7

4.3 PARTICIPATORY APPROACH 8

4.4 IMPLEMENTATION SCHEDULE 8

4.5 PROCUREMENT ARRANGEMENTS 9

4.6 DISBURSEMENT ARRANGEMENTS 11

4.7 AUDITING 11

5. JUSTIFICATIONS 12

6. GRANT PROTOCOL OF AGREEMENT 12

7. CONCLUSIONS AND RECOMMENDATIONS 12

7.1 CONCLUSIONS 12

7.2 RECOMMENDATIONS 13

ANNEX 1: LIBERIA DEVELOPMENT INDICATORS

ANNEX 2: DETAILED STUDY COST ESTIMATES (IN EURO)

ANNEX 3: PROGRAM DEVELOPMENT IMPLEMENTATION SCHEDULE

ANNEX 4: STUDY AREA - MAP OF LIBERIA

i

LIST OF ACRONYMS

CSB Community Services Bureau

CSO Civil Service Organization

CSP Country Strategy Paper

DP Development Partner

GOL Government of Liberia

JMP Joint Monitoring Program

LBPWU Labour-Based Public Works Unit

MDG Millennium Development Goal

LISGIS Institute of Statistics and Geo-Information Services

MLME Ministry of Lands, Mines and Energy

MPW Ministry of Public Works

MTEF Medium Term Expenditure Framework

NGO Non-Governmental Organization

NWSHPC National Water, Sanitation and Hygiene Promotion Committee

PFMU Public Finance Management Unit of the Ministry of Finance

NRWSSP National Rural Water and Sanitation Program

PRS Poverty Reduction Strategy

RWSD

RWASH

Rural Water Supply Division

Rural Water, Sanitation and Hygiene

RWSSI Rural Water Supply and Sanitation Initiative

SL Short-List

TOR Terms of Reference

WASH Water, Sanitation and Hygiene

WSSC Water Supply and Sanitation Commission

WSSP Water Supply and Sanitation Program

ii

Grant Information

Client’s Information

GRANT RECEPIENT: Republic of Liberia

BENEFICIAY/EXECUTING AGENCY: Ministry of Public Works – Community

Services Department

Financing plan

Source Amount (EUR) Instrument

RWSSI-TF 0.677 million Grant

Government of Liberia 0.072 million Government

TOTAL COST 0.749 million

ADB’s key financing information

RWSSI-TF Grant Currency

EUR

Timeframe - Main Milestones (expected)

Study approval October 2012

Effectiveness November, 2012

Completion February , 2014

Last Disbursement August 2014

Last Repayment NA

iii

Project Summary

Project

Overview

Project Name: Liberia: Rural Water, Sanitation and Hygiene Program Development

Study

Geographic Scope: Entire Country

Project Objectives and Expected Outputs: The overall objective of the study is to

provide the Government of Liberia with sufficient information and justifications to

make an informed decision on the most appropriate options for delivering sustainable

and equitable access to safe and affordable drinking water supply, basic sanitation and

hygiene services in rural areas. The outputs of the study will include; (i) National

Program and Operational Plan for Rural Water, Sanitation and Hygiene services for the

rural areas of Liberia for 2012 - 2017; (ii) Program Implementation Manual; (iii)

Monitoring and Evaluation Framework and (v) Operational and Maintenance Plan for

rural WASH.

Implementation Framework: 2012 – 2014 (15 Months including disbursement

effectiveness and procurement - 9 months Study Implementation)

Project Cost: Euro 749,347 (UA 645,564) of which Euro 677,347 (UA 583,644) is

RWSSI TF grant and Euro 72,000 (UA 61,920) is government in-kind contribution).

Project direct beneficiaries: The direct project beneficiary is the Rural Water Supply

Department in the Ministry of Works, the Ministry for Health and Social Welfare and

the counties.

Needs

Assessment

The rationale for the project can be put in the broader context of the Bank’s support for

Liberia’s emergence from a recent past of conflict to a path of stability, growth and

poverty reduction, accompanied by improved infrastructure rehabilitation and

development. Current Development Partners’ support to the Liberian Water Sector is

project based, and largely fragmented. Coupled with weak government capacity, this has

tended to reduce the efficiencies that would be gained from a programmatic approach, in

addition to increased transaction costs, and inability by government to effectively lead

and coordinate the sector. Thus the need to harmonise on the part of the donors and to

align to government efforts calls for development of programmatic framework for

planning, financing and implementation. This Bank support will assist the Government

to elaborate such a comprehensive framework, which will also be integrated.

Bank’s Added

Value

The proposed RWASH Program Development Study will complement the

implementation of the Liberia WASH Program and build on previous operations and

programs financed by the Bank and other Development Partners (DPs). These include

the Monrovia Water Rehabilitation project, the on-going Urban Water and Sanitation

project, financed by the Bank through this support and engagement with other donors,

the Bank has acquired substantial knowledge and experience on challenges facing

Liberia’s Water Sector. The Bank’s field presence is also an important asset that allows

it to have full engagement in the country’s development agenda.

Knowledge

Management

Financing of the proposed study will complement the Bank’s knowledge products in

water supply and sanitation sector in Liberia, notably the Support to the Water Sector

Reform Study financed through the African Water Facility, and the World Bank’s

support to Liberia in the preparation of the Water and Sanitation Investment Plan and

the Sector Investment Model. Knowledge will be gained through skills transfer from

advisors and consultants to the staff of MPW and other government institutions and

through the Study and various data and information platforms and manuals to the users,

as well as through the various field trips training courses and workshops. Knowledge

gained from this project will also be captured through careful monitoring and evaluation

of expected outputs and outcomes, supervision missions, and the Project Completion

Report.

iv

RESULTS-BASED LOGICAL FRAMEWORK

Country and Project Name: Liberia: National Rural Water, Sanitation and Hygiene Program Development Study

Purpose of the Project: To undertake a study to lead to development of the National Rural Water, Sanitation and Hygiene Program

(NRWASHP) RESULTS CHAIN PERFORMANCE INDICATORS Means of RISKS/

Indicator

(Including CSI)

Baseline Target Verification MITIGATION MEASURES

Imp

act

Improved and equitable access to

safe water supply and sanitation,

and improve hygiene practices,

thereby contributing to improved

human welfare, development and Liberia’s long term sustainable

growth

% Access to water supply and

improved sanitation

Water supply: 51%

Sanitation: 25%

Service coverage in rural areas

increased to 67% for water supply

and 57% for improved sanitation

1.1 Water Sector Reports

1.2 Government statistical

bulletins and economic reports

1.3 JMP report

Risk Inadequate financing

Mitigation

- Enhanced sector efficiency

- Improved accountability of budgets and spending

ensuring water, sanitation and hygiene are each separately and clearly identified

- Advocacy for sector financing

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tco

me

2.1 Improved Framework for sector coordination, planning,

management and efficiency in the

delivery of investments in Rural water supply, sanitation and

Hygiene services.

2.2 Improved GoL capacity to lead

and coordinate the sector;

2.1.1 Technically and economically sound NRWASH Program

developed.

2.1.2 A comprehensive Water

Supply and Sanitation Policy

Framework that gives clear direction and well defined roles and

responsibilities on the development

and management of RWASH sub sector

2.2.1 Effective RWASH planning

and programming leading to equitable, transparent and efficient

allocation of 2.2.3 The profile of the

WSS sector raised in national planning and allocation of resources

and increased stakeholder

participation and buy in into the RWSS programme

2.2.2 A sustainable national and

county based RWASH management

information system providing up-to-

date RWSS information for national

and county levels planning, monitoring and decision-making

purposes

No program 2.1.1 NRWASH Program approved/adopted by Government

and Development partners by end of

2013 2.1.2 NRWASH Program

Implementation by 2014

2.2.1 Functional Program

Management Team in place for

implementation by Jan. 2014.

2.2.2 RWASH Annual Budget for 2014 in accordance with Program

Operational Plan

2.1. Program Report MoU between DPs and GoL on the

Program;

2.2.1 Sector Report

2.2.2 Liberia 2014-2015 Annual Budget

Risk: Poor buy in by DPs and other key stakeholders Mitigation:.

- Consultations with all potential partners during the

program development process - Timely reports to all stakeholders during the

programme development process

Risk: Marginalization of hygiene and sanitation

Mitigation: - Dedicated hygiene and sanitation subprogram

operational plan and budget

- Close collaboration with MoHSW, MoE, MoLG&D and NGOs

v

Key

Act

ivit

ies

- Recruit consultants

- Undertake Studies and develop required products - Conduct On the job training and study tours

- Hold stakeholder consultative workshops

Risk Implementation delays

Mitigation: - TA support to Program Management Development

Team

- close supervision by the PMPW/RWSD and oversight by Government and Bank’s supervision.

Costs (UA,)*

Source FC LC Total

RWSSI TF 428,554 155,790 583,644

GOL - 61,920 61,920

Total 428,554 217,710 645,564

* including contingencies

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tputs

1.1:NRWASH Program and

Investment Plan; 1.2: Framework for operation and

maintenance of RWSS facilities

1.3 NRWASH Implementation Manual

1.4: M & E Framework

1.5: RWASH Program Management Capacity

1.6: Draft Financial Mobilization

White Paper

1.1:NRWASH Program and

Operational Plan; 1.2 Framework for operation and

maintenance of RWSS facilities

1.3 M & E Framework 1.4: NRWASH Implementation

Manual

1.4: k 1.5.1Established and equipped

RWASH Program office

1.5.2 Number of workshops and study tours

1.6: Draft Mobilization White Paper

NA 1.1 NRWASH Program and

Operational Plan by Oct.2013 1.2 NRWASH Implementation

Manual by November 2013

1.3 Framework for operation and maintenance of RWSS facilities by

October 2013

1.4 M&E framework by .November 2013.

1.5.1 Fully established and equipped

RWASH Program office by March 2013

1.5.2 3 workshops and 1 study tours

by October 2013 1.6 Draft Mobilization White Paper

by December 2013

- Study Consultancy

progress reports (inception, monthly,

completion);

- EA’s quarterly reports

- Bank supervision

mission reports

Risk: Delays in implementation and government endorsement of

outputs. Mitigation: Govt will be the main driver of the study to ensure full

ownership of the process and its outputs.

1. INTRODUCTION AND BACKGROUND

1.1 Liberia’s fourteen-year civil conflict (1990-2003) greatly undermined its development

prospects. The protracted conflict had a devastating effect on both infrastructure and the

human development of Liberia, due to dried up investment for the former and many of the

most qualified and experienced persons leaving the country for the later. Post-conflict

reconstruction of service delivery and sustainability of existing infrastructure remain as the

main challenges. Rural water supply coverage is currently (2010) estimated at 51% against

the MDG target of 67%, while rural sanitation coverage is 17% against the MDG target of

57%.

1.2 The Government of Liberia in 2008, embarked on water sector reforms that are aimed

at improving the management and efficient delivery of services. An integrated Water

Resources Management Policy (IWRM) as well as a Water Supply and Sanitation Policy

were approved by the Cabinet in 2008 and 2009 respectively. In addition, the Water,

Sanitation & Hygiene Sector Strategic Plan for 2011 to 2017 was completed at the end of

2011.

1.3 During this period the Bank supported the GoL and has emerged as the lead donor in

the water sector with 4 operations (valued at approximately 32 million UA) addressing

immediate, medium, and long term needs: 1) Monrovia Water Supply and Sanitation

Rehabilitation project 2) Urban Water and Sanitation Study for Monrovia and 3 towns of

Buchanan, Kakata and Zwedru, 3) Water Sector Reform Study and 4) The Urban Water and

Sanitation Project for Monrovia, Buchanan, Kakata and Zwedru.

1.4 The reforms and support provided by the Bank and other Development Partners

notwithstanding, Government capacity to lead, coordinate and deliver services which was

severely compromised by the conflict is still weak. It is critical to make a full transition to

country-led processes in service delivery, data management, regulation and sector oversight.

In addition, in recognition that the policies were not being fully operationalized the

Government of Liberia and development partners including AfDB negotiated the Liberia

Water, Sanitation and Hygiene (WASH) in 2011. The Compact emphasizes that water and

sanitation facilities must be accessible, affordable and available to both rural and urban

communities. The Compact made 4 key commitments (1. Establish and strengthen

institutional plan, 2. Ensure equity and prioritised service provision, 3. Develop a monitoring

system and 4 Improve sector financing mechanisms). The Compact set out a roadmap with

targets and responsibilities for achieving the agreed indicators. These developments have

moved the sector to a position where a programmatic approach is now required to enhance

aid effectiveness in accordance to the Paris Principles of harmonization and aid effectiveness.

1.5 The World Bank is currently supporting the GoL to develop a Water Supply and

Sanitation Sector Investment Plan (WSS-SIP) and a Water Supply and Sanitation Sector

Investment Model (WSS-SIM). The objective of the WB financed Investment Study is to

provide a ground-up facility based investment plan for urban and rural water supply and

sanitation infrastructure covering capital expenditure for rehabilitation, replacement and new

facilities. These will cover the hardware needs of the rural as well as the urban sub-sectors.

The GoL requested for the Bank’s assistance for a study to develop a National Program for

Rural WASH. The proposed National RWASH programme Study will provide the framework

of operationalizing the hard infrastructure investments (subject of WSP study), covering the

whole spectrum of program components that will include both the hard and soft aspects

2

required for sustainable management of rural water supply, sanitation and hygiene. The Study

is required to provide a common integrated framework for the rural sub sector development,

harmonize donor support, improve sector management, coordination and efficiency, and

service delivery to the rural communities and will include Water governance, policy

institutional aspects, capacity development, sector coordination and management, financial

and technical sustainability, private sector participation, environmental and climate change

adaptation.

1.6 The financing of the proposed study will address the above shortcomings and will

complement the Bank’s knowledge products in water supply and sanitation sector in Liberia,

notably the Support to the Water Sector Reform Study financed through the African Water

Facility, and the World Bank’s support to Liberia with the preparation of the Water and

Sanitation Investment Plan and the Sector Investment Model.

1.7 The proposed study will be financed through a Rural Water Supply and Sanitation

Initiative Trust Fund (RWSSI TF) only.

1.8 Lessons learned from Bank Group operations in the Country, Sector, and from

implementing similar program development studies in other countries have shaped the project

design in the following areas: Close supervision and follow-up: The Bank has been financing the Support to Water Sector Reform

Project through the African Water Facility. The main lessons learned is the importance of strong Bank

follow-up and supervision during recruitment and implementation of consultancy services to ensure

Government leadership and active participation/inputs by all key stakeholders. Due to lack of supervision

capacity in-country, the implementation of the Project lagged behind and led to very slow implementation

and lack participation of key stakeholders. The proposed project will have dedicated management team

from the government supported by a Technical Assistant that will work with and supervise the

consultancy to ensure government ownership, quality and timely delivery of the outputs. The Bank’s

supervision missions and well as the Bank’s office in Liberia will also follow up closely.

Effectiveness/Disbursement: (i) simplification of grant conditions to speed-up effectiveness and

disbursement; (ii) the Bank with the support of the current Consultant to the Water Sector in Liberia, will

facilitate the appointment of the appropriate staffing of the Government’s Program Development Team

(PDT) and carry out preparatory activities prior to approval of the grant and (v) Provide continuous

follow up through provision of Technical assistance to the EA in the management of the study.

Sector Performance: Capable sector management is key to successful operations and long term

sustainability of the study outputs. The project will: (i) strengthen the capacity of the PDT of the Ministry

of Public Works to implement, monitor and evaluate project progress with the support of Technical

Assistance. Support will also be provided to build capacity through study tours to key stakeholders and

actors . The study will include an analysis of the governance arrangements, institutions and actors that

shape the performance of the sector. In addition to the sector policy and regulatory framework, the water

sector governance assessment will cover:

- Water sector and decentralized governance arrangement (devolution, delegation and de-concentration)

- Citizen’s participation

- Transparency, and accountability

- Water sector financial management and procurement

- RWASHP budgeting and investment planning and the medium-term expenditure framework.

Inclusive Growth: in accordance to the Liberia Agenda for Transformation (PRSPII), the project will

ensure integration of the key crosscutting issues of Gender Equity, Peace Building, Environment, HIV

and AIDS, Children and Youth, Human Rights, the Disabled, Conflict Prevention and Developmental

Capacity. One of the key outcome indicators for WASH in the PRSP II is “Increased share of households,

institutions, and communities that have adequate quality WASH services, including in the poorest and

most vulnerable communities”. The study will devise the mechanisms for operationalization of the key

indicator.

Sustainability: the program development will include (i) the development of O&M framework and

elaboration of O&M manual as well as the development of M&E Framework to Improve RWASH sector

monitoring capacity and communication of results.

3

2. THE PROPOSED STUDY

2.1 Objectives

2.1.1 The Objective of the study to prepare a comprehensive National Rural Water,

Sanitation and Hygiene Programme in order to harmonize current efforts and improve and

speed up implementation in order to meet MDG targets.

Specific objectives

i) To undertake an assessment of the problems of rural beneficiaries in relation to water

supply, sanitation and hygiene, and a situation analysis of rural WASH;

ii) To formulate a program concept paper on the components of the national program

which will take into account the various concerns and aspirations of the key actors;

and serve as basis for the development of the fully fledged national program;

iii) To elaborate a national program with detailed costs of the program components (both

soft and hardware); and an operational plan and Manual;

2.2 Outcomes

The National Rural Water, Sanitation and Hygiene Program (NRWASHP will enable and

lead to improved framework for sector coordination, management and efficiencies, improved

planning and sustainability, and increased investments. GoL capacities to lead and coordinate

the sector will also be strengthened. It is also expected that all this will lead to an increased

access to safe water supply and sanitation and improved hygiene practices.

2.3 Outputs

- A consolidation of information relevant to the sustainable management and delivery

of Rural WASH services (Situation Analysis Report)

- NRWASH Program

- Program Implementation Manual

- Monitoring and Evaluation and O&M Plans

- Strategic Environmental Assessment Report and Climate Change Adaptation

Strategy

- Draft Resource Mobilisation Paper

2.4 Summary Description and Activities

The following tasks will be undertaken:

Task 1: Situation Analysis (Issues to be addressed in the Program)

Key elements to be covered in the situation will include Water governance, policy

institutional and legal aspects, capacity development, sector coordination and management,

financial and technical sustainability, private sector participation, environmental and climate

change adaptation, amongst others. The analysis will also include pertinent cross cutting issue

of gender.

Task 1(a) Rapid Sanitation and Hygiene baseline Survey

Building on from the Water point Atlas prepared in 2011, the situation analysis will also

include a baseline data survey of the sanitation and hygienic situation in rural Liberia through

a Sanitation inventory survey. This will entail field spot surveys as well as collecting data

from MPW WASH Focal people, the MOH Environment Health Technicians and the NGOs

working in the counties. The survey will include inventory of WASH for all schools, health

4

and social welfare institutions and public places such as the markets. Data from the survey

will be gender segregated. A sanitation Atlas will be produced.

Task 2: Development of National RWASH Program (2012-2017)

Based on the Program components agreed at a national consultative workshop, the National

RWASH Program will be elaborated. The program components will include rural water

supply and sanitation infrastructure, capacity building and institutional strengthening,

promotion of hygiene and sanitation, program management, and monitoring and evaluation,

operation and maintenance, amongst others agreed as priorities.

Sector performance standards and indicators; implementation monitoring, reporting and

accounting formats for use at community, county and national level will be determined as

part of the program development. Key Performance Indicators (KPIs), research and

development and system for dissemination of information will be developed. In line with the

Sanitation for All Compact for Liberia the RWASH Program development will include

baseline data desegregated by gender and will be designed such that bi-annually, the CSO

scorecard will be used to turn input, output and outcome data into information on how the

sector is performing. The program development study will also include a “randomized

control evaluation study”, which would be used to measure the impact of the program i.e.

improved human welfare, development and Liberia’s long term sustainable growth.

Coordination, coherent sector development, transparency, accountability to users/citizens and

the practice of good governance also mean that MPW/RWD have the obligation to increase

the level of sub sector information so that all stakeholders can examine where the sector

needs are, where the funds were spent, the outcomes gained as a consequence and the plans

and initiatives being taken by different actors.

This task will also address financial sustainability (and availability and sufficiency of sector

finances), including criteria for allocation of resources to local government administration,

and will incorporate within the NRWASHP, key performance indicators related to financial

management in line with the PRSP2.

Task 3: Development of Operation and maintenance Framework for Rural Water Supplies

and Sanitation Facilities

The O and M Framework will define the critical principles required in the sector and in all

project implementation that will ensure sustainability of the facilities. The O and M

Framework will address the following elements amongst others;

Operations and maintenance and facilities management plans.

Cost recovery mechanisms.

Community-level training for operations and maintenance.

Performance-based service contracts.

Supply chain management for water supply and sanitation facilities.

Task 4: Development of NRWASHP Implementation Manual

The activity will develop the Program Implementation Manual (PIM). The PIM will contain

the full project cycle of implementing the various Program components. Further, the PIM will

contain the definition of the stakeholders and their role vis-à-vis the implementation of the

program, planning cycle and process, implementation approaches (decentralization,

community participation, demand-responsive approach and cost-recovery principles),

eligibility criteria for investments; methodology for project implementation and monitoring;

5

technical and design aspects; procurement management; training and capacity building;

financial management, environmental and social issues; climate change and gender, amongst

others. The PIM will also include a section on Operation and Maintenance- Manual for O&M

of rural water and sanitation facilities.

Task 5: Development of a Monitoring and Evaluation Framework

This task will review the existing RWASH M&E framework, including the indicators, and

develop and define measurable indicators linked to ensuring development effectiveness and

achievement of the government targets, Impact on health, poverty and gender, environment,

climate change and other relevant WASH benchmarking systems. It will also identify the

various institutions and their mandates that will be involved in M&E.

The M & E framework, harmonized with PRSP II indicators, will set a viable M&E system

for the sector, and should allow for scope to widen the system to include establishment of

modalities for sector-wide information management, i.e. rather than establishing a “RWASH

sector M&E system” as an end state, this would be a building block to the establishment of a

“sector information management and monitoring system”, with this further development

taking place incrementally once the core M&E is fully institutionalized and operational. This

approach will allow for a more holistic approach to sector information management, which

among other things would enable better horizontal integration of various sector information

management systems, of which the M&E system would be one.

Task 6: Preparation of Resource Mobilization Paper

A Resource Mobilization document will be prepared based on the emerging consensus in the

sector, in close liaison with GoL, for mobilizing financial resources to implement the

NRWASH. The task will also include facilitation of arrangements for a donors’ conference

and preparation of conference materials (donor mobilization document).

3. COSTS ESTIMATES AND FINANCING PLAN

3.1 Cost Estimates (foreign and local)

3.1.1 The total cost is estimated at Euro 749,347 (UA 645,564) (excluding taxes and

customs and duties), of which Euro 497,505 (UA 427,854) will be in foreign currency and

Euro 251,842 (UA 217,710) will be in local currency. The cost per category of expenditure is

summarized in Table 1 below.

Table 1: Project cost by category of expenditure

EUR UA % of FC

Category of Expenditure FC LC Total FC LC Total Total

Consultancy Services 373,141 15,200 388,341 320,901 13,072 333,973 96%

T A 61,370 61,370 52,778 52,778 100%

Workshops and study tours 17,124 70,918 88,042 14,726 60,989 75,715 19%

Audit 20,995 20,995 18,056 18,056 100%

Operating Costs 84,732 84,732 73,939 73,939 0%

GoL Offices 68,400 68,400 58,824 58,824 0%

Total Base Cost 472,630 239,250 711,880 406,462 206,824 613,286 66%

Physical contingency (5%) 24,875 12,592 37,467 21,393 10,885 32,278 66%

Total Cost 497,505 251,842 749,347 427,854 217,710 645,564 66%

6

3.2 Financing Plan

3.2.1 The assignment will be financed by the Rural Water Supply and Sanitation Initiative

Trust Fund (RWSSI TF) and the Government of Liberia as shown in the table 2 below. The

RWSSI-TF financing will cover: (i) the cost of consultancy services for the study (ii)

Technical Assistance to the Rural Water Supply Division of the Ministry of Public Works

(MPW), (iii) Audit services, and (iv) Program development management costs in

RWSD/MPW consisting of general operating costs including cost of workshops, study tours,

procurement of basic office and IT equipment (computers, printers etc.), etc.

Table 2: Estimated Cost by Financing Plan

Source UA Euro %Total

F.C LC TC FC LC TC

GoL - 61,920 61,920 - 72,000 72,000 10%

RWSSI-TF 427,854 155,790 583,644 497,505 179,842 677,347 90%

Total 427,854 217,710 645,564 497,505 251,842 749,347 100%

4. EXECUTION OF THE STUDY

4.1 Executing Agency: Organization and Management

4.1.1 The Government has created the National Water, Sanitation and Hygiene Promotion

Committee (NWSHPC) as a resource group made up of the Line Ministries and service

agencies, civil society and development partners. The committee is responsible for

operationalizing the NWSSP including the development of strategies, and coordinating all

water supply and sanitation activities. NWSHPC will be the steering committee of the study.

4.1.2 The Study will be executed by the Ministry of Public Works (MPW). MPW is in

charge of Infrastructure and Basic Services under Pillar IV of the PRS. It has also led the

sector coordination at national level. The Ministry is technically oriented, and handles among

other tasks, the national rural water supply program. The ministry implements directly, and/or

through contractors and NGOs. The Rural Water Supply Division (RWSD) in MPW will

coordinate the program development process and study and will manage daily

implementation activities, including, monitoring of activities and reporting.

4.1.3 However, due to capacity constraints in MPW, the Project financial management will

be the responsibility of the Project Financial Management Unit (PFMU) of the Ministry of

Finance, which is already established by the World Bank. The PFMU has a Financial

Management Specialist, as Unit Manager, several Accountants (about five), and an Internal

Auditor. Sun Accounting software system has been installed at the PFMU, which the unit

uses to capture and report on financial transactions of the many projects it manages. The

PFMU will provide on the job training for seconded staff of the MPW under a Memorandum

of Understanding (MOU) to be signed between PFMU and MPW. A draft MOU has been

discussed with both parties.

4.1.4 Procurement under this project will be carried out by the Infrastructure

Implementation Unit (IIU). The Infrastructure Implementation Unit provides procurement

support to the MPW. The IIU is headed by a Program Director who in turn has two Deputy

Directors, responsible for Engineering, Admin & Finance and Monitoring and IT.

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4.1.5 The MPW shall establish a Program Development Team (PDT), led by a Program

Development Coordinator from RWSD with three other staff, to drive the development

process and to ensure a speedy execution of the assignment. The PDT will develop and

maintain liaison with all Government organs for the purpose of facilitating the work of the

consultants. Members of the PDT will be seconded to the project, and will comprise a

Water/Sanitary Engineer and a financial specialist from RWSD/MPW; and a hygiene and

sanitation specialist from the Ministry of Health and Social welfare. The MPW will appoint

the PDT prior to the start of the assignment.

4.1.6 Technical Assistance through a combination of Individual Consultancy and a series of

capacity strengthening activities which will include provision of various equipment (IT,

internet, GIS etc.), will be provided to the government to support it during the development

process and in the management of the study. The TA Individual Consultant will provide

advice, assistance and training to the Team and the RWSD in MPW to ensure a successful

undertaking of the study, and ultimately the development of the National Rural Water,

Sanitation and Hygiene Program.

4.1.7 A multi-disciplinary and reputable consulting firm with capability and demonstrable

experience in the field of the assignment and in comparable assignments shall undertake the

study. The consultants’ team would have the following core experts: Rural Water and

Sanitation Engineer (who will also be the Team Leader), Sanitation/environmental specialist,

Rural WASH Expert, Sociologist (Gender/poverty), Development Economist/financial expert

and institutional/governance expert. The consultant will be free to procure short-term experts

as required. The expert consultants of the firm must have the requisite qualifications and

expertise to undertake their respective assignments in the study.

4.1.8 The GoL will be responsible for approving the validated outputs and outcomes of

the assignment.

4.2 Financial Management Arrangements

4.2.1 An assessment of the executing agency, the MPW revealed that it had no capacity for

financial management. Project financial management will be the responsibility of the Project

Financial Management Unit (PFMU) of the Ministry of Finance, and already established by

the World Bank. The PFMU has a Financial Management Specialist, as Unit Manager,

several Accountants (about five), and an Internal Auditor. Sun Accounting software system

has been installed at the PFMU, which the unit uses to capture and report on financial

transactions of the many projects it manages.

4.2.2 The assessment of the PFMU concluded that there is sufficient capacity to meet the

accounting and reporting requirements of the proposed project. The Ministry of Public Works

will second an accounting staff to be trained by the PFMU under a negotiated MOU during

the study period with a view to build FM capacity at the MPW for managing future project

FM assignments.

4.2.3 In championing the use of the World Bank created PFMU efforts have been made to

align the Bank’s requirements for the proposed project with those of other existing donors

working with the institution to increase harmonization of procedures and practices amongst

8

the donors. PFMU is currently managing the FM aspect of the Labor Based Public Works on

behalf of the LBPWU.

4.3 Participatory Approach

4.3.1 During the implementation of the study, three national workshops/seminars involving

all stakeholders shall be held. The consultant in collaboration with the Program Development

Team/MPW and the TA will make all preparations necessary to carry out the workshops,

including drawing up the participant list, locations of the workshops, and items to be

discussed. During the conducting the workshops, organizers will ensure participation of

women. The stakeholders would include government departments, counties, donors, NGOs,

representatives of the community-based organizations and the private sector operators

involved in the sector. The locations of the workshops would be spread over the study area to

ensure participation of all stakeholders especially the beneficiaries of the systems. Each

workshop shall have a duration of about two-days whereby institutional, organizational,

developmental, environmental, financial and cross cutting issues of the study will be

discussed.

4.3.2 The consultant will propose the sequencing of workshops, but it will be expected that

these will be held to discuss the major outputs of the assignment

4.3.3 Dissemination of the study outputs. The study workshops and other sector meetings

will constitute important dissemination outlets for the study outputs. In addition, the

Consultancy Study will produce a brief dissemination outline strategy targeting the important

stakeholders.

4.4 Implementation Schedule

The total implementation period of the study will be 18 months after Grant approval.

The first six months after Grant signature will be used for the procurement of the consultancy

services and TA contract. The Study Consultant shall commence work within one month of

receipt of Notice to Proceed and shall complete all work within a maximum period of 9

months. The details of the proposed implementation schedule are given in Annex 3. Target

dates for key activities by calendar months are shown in Table 3 below.

9

Table 3: Implementation Schedule

Activity Time in

Months

Responsible Agency

RWSSI TF Grant Approval C AfDB

Grant Signature C AfDB/GOL

Submission of Short List of Consultants and RFP C+ 1 MPW

Approval of SL and RFP C+ 2.5 AfDB

Submission of Proposals C+ 4 Consultants

Submission of Evaluation Report C+ 5 MPW

Approval of Evaluation Proposals Report C+ 5.5 AfDB

Negotiation and Award of Contract C+ 6.5 MPW

Mobilization of Consultants C+ 7.5 Consultants

Inception Meeting C+ 8.5 Consultants/ MPW

First Workshop C+9.5 Consultants/ MPW

R WASH Program Concept paper C+10.5 Consultants/ ADF/MPW

Second Workshop C+ 11 Consultants/ MPW

Revised R WASH Investment Plan C+ 11.5 Consultants/ AfDB/MPW

Third Workshop C+13 Consultants/ MPW

PIM,O&M and M&E C+14 Consultants/AfDB/MPW

Submission of final Reports C+15 Consultants

4.5 Procurement Arrangements

4.5.1 The project’s procurement arrangements are summarized in Table 4 below. All

procurement of goods and acquisition of consulting services financed by the RWSSI-TF

Grant will be in accordance with the Bank'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), as the case may be using the relevant Bank Standard

Bidding Documents. Procurement arrangements are summarized in Table 4 below.

Table 4: Procurement Arrangements (UA)

Category Shortlist Other* Total

Goods

IT Equipment (Laptops , photocopiers office printers) - 11,202 11,201 [11,201]

Office Equipment/furniture 2,752 2,752 [2,752]

Total - 13,954 13,954 [13,954]

Services

Program Study Consultant 351,551 351,551 [351,551]

Technical assistance 55,556 55,556 [55,556]

Workshops and exchange visits 65,747 65,747 [65,747]

Audit 19006 19.006 [19.006]

Total 426,113 65,747 491,860 [491,860]

Operating Costs (travel, office supplies, communications) - 139,751 139,751 [77,831]

TOTAL 4,26,113 245,767 645,564 [583,644] *others may be Individual Consultants; National Shopping; GoL Procedures

Figures in brackets are amounts financed by the RWSSTF as the case may be [ ]

4.5.2 Goods: The acquisition of laptops and office equipment valued at a total of UA

11,201 will be carried out through national shopping. This procurement will be in two lots

estimated at UA 11,201, and UA 2,752, for IT equipment and office equipment respectively.

These are off the shelves goods and readily available in Liberia.

10

4.5.3 Consultancy Services: The acquisition of consultancy services for the main study in the

amount of UA 351,551 shall be through competition among short-listed qualified consulting

firms, using Quality and Cost-Based Selection (QCBS). Technical assistance amounting to UA

55,556 shall be procured using shortlisting of individual consultants. Audit services amounting

to UA 19,006 shall be procured through shortlisting, using Least Cost Selection (LCS).

4.5.4 For consultancy contracts which are valued at less than UA 200,000, the Borrower may

limit the publication of the announcement to national or regional newspapers. However, any

eligible consultant, being regional or not, shall be considered if they express their desire to be

short-listed. For contract valued at more than UA 200,000 for Firms and UA 50,000 for

individuals, advertisement of the procurement must be placed on the UNDB online and the

Bank’s website.

4.5.5 Operating Expenses: Expenditures during the project implementation including office

supplies, utilities consumables, advertising expenses, internet service communication,

consultative workshops, study tours and staff allowances will be procured through the

Government of Liberia (GoL) procedures acceptable to the Bank.

4.5.6 Review Procedure: The following documents are subject to a no objection by the

Bank before promulgation: ement Notices,

Reports, including recommendations for Contract Award (goods/works), or Reports on

e have been

amended and differ from the drafts included in the tender documents,

Evaluation of Consultants' Financial Proposals, including recommendations for Contract

award, minutes of negotiations and duly initialed contracts documents..

4.5.7 Post Review: Contracts for goods valued up to UA 15,000 shall be approved by the

Executing Agency, 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.

4.5.8 General Procurement Notice: The text of a General Procurement Notice (GPN) has

been agreed with the Government of Liberia and it will be issued for publication in UN

Development Business and the Bank website, upon approval by the Board of Directors of the

Grant Proposal.

4.5.9 National Law and Regulations: Republic of Liberia’s national procurement law and

regulations are governed by the Amendment and Restatement of Public Procurement and

Concessions Act (PPCC) 2005, which was approved September, 2010. The Act applies to

procurement of goods, works and services, financed in whole or part from public funds. A

Public Expenditure Management and Financial Accountability Review (PEMFAR) 2009,

prepared by World Bank confirmed that the Act complies with the international best

standards. It however, states that due to lack of capacity, application of the Act and

procedures is not consistent with good practice and poses high risk on the public finance

system. The PEMFAR has recommendations for areas for improvement for sound

11

procurement system. These include: (i) Eligibility of Parastatal organizations and state

enterprise; (ii) advance contracting and retroactive financing; and (iii) margin of domestic

preference. This was confirmed by the recently concluded NCB Assessment which was

carried out by the Bank. As the recommendations have not been fully implemented by the

GOL, in the interim, procurement under Bank financing will be in accordance with the

Bank’s rules and procedures.

4.5.10 Assessment of the Executing Agency: The Ministry of Public Works (MPW) will be

responsible for the implementation of the Project. Procurement under this project will be

carried out by the IIU. The Infrastructure Implementation Unit (IIU) provides procurement

support to the MPW. The IIU is headed by a Program Director who in turn has two Deputy

Directors, responsible for Engineering, Admin & Finance and Monitoring and IT. The

Procurement Unit reports to the Head of Engineering and has four Procurement Officers. An

assessment of the capacity of the IIU concluded that it has been exposed to other Donor and

MDB procurement procedures as well as for the Bank under the Labour-Based Public Works

Unit (LBPWU).

4.5.11 Procurement Plan: 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.

4.6 Disbursement Arrangements

Three Disbursement Methods will be available for use by the study namely: i) the

special account method, ii) the direct payment method, and iii) the reimbursement guarantee

method. The Special Account method (SA) shall be used for payments of goods, services and

operating costs, while Direct Payments shall be used for payments under the, services

contracts for the study. The reimbursement guarantee method will be used for imported goods

in case the suppliers choose to complete the transaction by way of letter of credit. A foreign

exchange Special Account will be opened specifically for the project in a commercial bank

and will be managed by the PPFMU, which is already managing the Special Accounts for the

funding from the World Bank and the African Development bank. The PFMU will also open

a local currency (Liberian Dollar) Project Account to support the operation of the Special

Account and facilitate payments in local currency, if this becomes necessary. All

disbursement will follow the procedures outlined in the Bank’s Disbursement Handbook.

4.7 Auditing

The General Auditing Commission (GAC), headed by an Auditor General, has

primary responsibility for the external audit of all government projects. Under the project, the

GAC shall approve of the selection of an independent private audit firm, using the Bank’s

procurement guidelines, for the project audit. The appointment of private external auditors for

the project, under terms of reference and with selection procedures satisfactory to the Bank,

would be finalized within six months of effectiveness in order to comply with audit covenants

and ensure timely audit of project expenditures. The report on the audit shall be submitted to

the Bank for review and approval, prior to payment of any associated audit fees, within six

months after the project’s fiscal year end.

12

5. JUSTIFICATIONS

5.1 Since emerging from the civil conflict, the Government of Liberia, with the assistance

of the donor community, has shown commendable efforts and commitment in addressing the

challenges of providing water, sanitation and hygiene services, especially to rural

communities. To improve the organizational, legal and regulatory framework of the sector,

the GOL embarked on reforms that led to development of an Integrated water Resource

Management Policy (IWRM) as well as a Water Supply and Sanitation policy (WSSP)

approved by the Liberian Cabinet in 2008 and 2009 respectively. The Agenda for

Transformation- Poverty Reduction Strategy (PRS) 2 (2012-2017) has as one of its priorities

to increase access to safe water supply and sanitation and improve hygiene practices. Some of

donors in the country have also financed investments to the sector, however these

investments are not well harmonized and not led by Government

5.2 The preparation of the National RWASH Program as proposed in the present study

will support and complement the Government’s efforts to review its sector policies and

strategies, and the constraints. The Program will enable the GoL to carry out an integrated

implementation plan and a capital expenditure program in order to ensure sustainable

development in the sector in the medium and long term periods. The implementation of the

study recommendations will promote coordination, harmonize the support of donors and

government, introduce sector efficiencies through reduced transaction costs, and lay the

ground for a sustainable development and management of the rural water, sanitation and

hygiene sector. The Program when ready will also attract financing. This outcome will lead to

increased access to drinking water supply, improved sanitation and hygiene practices by the

Liberians in rural areas. The Program will also contribute towards the institutional

strengthening and capacity building in the sector which is currently a major constraint to

sector development.

5.3 The Bank has previous experience in financing similar studies which led to

development of National Programs under Rural Water and Sanitation Initiative (RWSSI) in

other RMC, and has evidence of its demonstrable effectiveness in promoting transparency,

equity, decentralized implementation, and increased participation of women, amongst other

good principles. The study will support the development of these principles in Liberia.

6. GRANT PROTOCOL OF AGREEMENT

Upon approval of grant request, the Grant Agreement will come into effect on the date of

signature by the Government of Liberia and the African Development Fund.

7 CONCLUSIONS AND RECOMMENDATIONS

7.1 Conclusions

The proposed study constitutes a major element to support the existing sector policies

and development activities in Liberia aimed at rational development of the rural water and

sanitation sector. The study will provide as major outputs, program and an investment plan in

the rural water supply, sanitation and hygiene services to satisfy the projected future needs of

the population in rural areas. The study will also serve as a guide to the donors and authorities

13

responsible for planning, operation, and maintenance of water supply and sanitation services

as well as the allocation of investment resources.

7.2 Recommendations

It is recommended that a grant not exceeding Euro 677,347 (UA 583,644) from the

RWSSI TF resources be extended to the Government of Liberia in order to carry out the

development of a National Rural Water, Sanitation and Hygiene Program. The grant and its

entry into force would be subjected to the following conditions:

A. Conditions Precedent to entry into force of the Protocol of Agreement

The Grant Agreement shall enter into force upon its signature.

B. Conditions Precedent to First Disbursement

The obligation of the Bank to make the first disbursement of the Grant shall be

conditional upon entry into force of the Agreement and the following conditions,

namely, the Recipient shall have provided evidence in form and substance acceptable to

the Bank of having opened a foreign currency Special Account (SA) in a bank

acceptable to the Bank for the deposit of the proceeds of the grant.

ANNEX I: LIBERIA DEVELOPMENT INDICATORS

Social Indicators Liberia

Africa Developing

countries 1990 2011 *

Area ( '000 Km²) 111 30,323 80,976

Total Population (millions) 2.1 4.1 1,044.3 5,732.2

Population growth (annual %) -1.5 3.3 2.3 1.3

Life expectancy at birth, total (years) 48.5 59.1 56.0 67.1

Mortality rate, infant (per 1,000 live births) 138.4 91.3 78.6 46.9

Physicians per 100,000 People … 1.0 58.3 109.5

Births attended by skilled health staff (% of total) … 46.3 50.2 64.1

Immunization, measles (% of children ages 12-23 months) … 64.0 77.9 80.7

School enrollment, primary (% gross) … 96.0 100.4 107.2

Ratio of girls to boys in primary education (%) … 90.7 90.9 100.0

Literacy rate, adult total (% of people ages 15 and above) … 59.1 65.1 80.3

Access to Safe Water (% of Population) 57.0 68.0 64.5 84.3

Access to Sanitation (% of Population) 40.0 17.0 41.0 53.6

Human Develop. (HDI) Rank (Over 187 Countries) … 182 n.a n.a

Human Poverty Index (% of Population) … 35.2 34.7 …

Liberia

Economy 2000 2009 2010 2011

GNI per capita, Atlas method (current US$) 139 196 205 …

GDP (current Million US$) 661 879 1,300 1,409

GDP growth (annual %) 36.1 4.6 5.7 5.9

Per capita GDP growth (annual %) 29.8 -0.1 1.6 2.6

Gross Domestic Investment (% of GDP) 23.5 66.9 76.0 80.4

Inflation (annual %) 5.3 7.6 7.8 8.5

Budget surplus/deficit (% of GDP) 0.3 -1.6 1.3 -2.0

Trade, External Debt & Financial Flows 2000 2009 2010 2011

Export Growth, volume (%) … … … …

Import Growth, volume (%) … … … …

Terms of Trade (% change from previous year) … … … …

Trade Balance ( mn US$) -2 -410 -652 -717

Trade balance (% of GDP) -0.2 -46.6 -50.2 -50.9

Current Account ( mn US$) -93 -292 -532 -547

Current Account (% of GDP) -14.0 -33.2 -40.9 -38.8

Debt Service (% of Exports) … 352.4 168.8 0.8

External Debt (% of GDP) 625.2 191.1 8.1 8.5

Net Total Inflows ( mn US$) 631.6 1,663.2 … …

Net Total Official Development Assistance (mn US$) 67.4 505.0 … …

Foreign Direct Investment Inflows (mn US$) 20.8 217.8 248.0 …

External reserves (in month of imports)

0.0 1.8 1.8 …

Private Sector Development & Infrastructure 2000 2005 2010 2011

Time required to start a business (days) … … 20 6

Investor Protection Index (0-10) … … 3.7 3.7

Main Telephone Lines (per 1000 people) 2.4 0.6 1.5 …

Mobile Cellular Subscribers (per 1000 people) 0.5 50.3 393.4 …

Internet users (000) 0.2 6.3 0.7 …

Roads, paved (% of total roads) 6.2 … … …

Railways, goods transported (million ton-km) … … … …

Source: ADB Statistics Department, based on various national and international sources

* Most recent year

October 2011

ANNEX 2: DETAILED STUDY COST ESTIMATES (in Euro)

Units QTY Unit Cost Total Cost FC LC

1 Programe Development Experts

1.1 Expert Fees

WSS Engineer (Team Leader) M/M 9 11,900 107,100 107,100

Rural WASH Expert M/M 6 10,800 64,800 64,800

Institutional/Sector Governace Expert M/M 3 10,800 32,400 32,400

Sanitation/Environmental Expert M/M 4 10,800 43,200 43,200

Sociologist M/M 4 10,800 43,200 43,200

Public Finance Expert M/M 2.1 10,800 22,680 22,680

1.2 Reimbursables -

International travel Unit 12 2,200 26,400 26,400

Field Survey Project Vehicles No 2 26,500 53,000 53,000

Local Travel Unit 10 1,600 16,000 16,000

408,780 392,780 16,000

2 Technical Assistance, Workshops and exchange visits

2.1 Individual Consultant

2.1.1 Consultant fees MM 6 10,400 62,400 62,400

2.1.2 International travel (reimbursable) Unit 1 2,200 2,200 2,200

2.2 IT /Office Equipment

2.2.1 Laptops No 2 1,200 2,400 2,400

2.2.2 Printer No 2 1,025 2,050 2,050

2.2.3 Photocopiers No 1 5,165 5,165 5,165

2.2.4 Desk top computers/GIS software No 1 3,410 3,410 3,410

2.2.5 Office furniture LS 1 3,200 3,200 3,200

2.3 Workshops and Study visits

2.3.1 Consultation workshops LS 3 21,150 63,450 63,450

2.3.2 Donor Conference LS 1 8,000 8,000 8,000

2.3.3 PDT international travel Unit 1 5,000 5,000 5,000

Sub-Total 3 157,275 82,625 74,650

3 Audit Services

Audit Services LS 1 22,100 22,100 22,100

Sub-Total 3 22,100 22,100

4 Operating Costs

4.1 Transport operating costs PM 12 900 10,800 10,800

4.2 Office Supplies PM 10 400 4,000 4,000

4.3 PDT Performaanc related allowances PM 12 2800 33,600 33,600

4.4 Reports and Printing LS 1 2,900 2,900 2,900

4.5 Coordination meetings LS 5 1,500 7,500 7,500

4.6 Field allowances (PDT) day 61 265 16,165 16,165

4.7 Financial Mgt by PFMU Month 12 650 7,800 7,800

4.8 Procurement Support by IIU Month 6 655 3,927 3,927

4.9 Communication Month 12 208 2,500 2,500

Sub-Total 4 89,192 89,192

5 Government Contribution

Offices and utilities Month 15 4,800 72,000 72,000

Sub-total 5 72,000 72,000

749,347 497,505 251,842

RWSSI Trust Fund Grant 677,347 497,505 179,842

Description

Grand Total

Sub-Total 1

ANNEX 3: PROGRAM DEVELOPMENT IMPLEMENTATION SCHEDULE

ACTIVITY

S O N D J F M A M J J A S O N D J F

Month 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18

Board Approval and GPN

Grant Signature

Shorlist of Consultants and RFP

Technical and Financial Proposal

Bid Evaluation Report

Negotiation and Award

Mobilisation

NRWASH Development Study

RWASH Program and Operational Plan

Program Implementation Manual

O & M Framework

M&E framework

Draft Program Mobilisation Paper

Final Reports

Workshops/Meetings

Submissions

Inception Report

Situation analysis Report

Monthly Progress Reports

Completion Report

2012 2013 2014

ANNEX 4: STUDY AREA - MAP OF LIBERIA

STUDY: Rural Water, Sanitation and Hygiene Program

Development Study

COUNTRY: Liberia

TERMS OF REFRENCE

RWASH PROGRAM DEVELOPMENT STUDY AND TECHNICAL ASSISTANCE

July 2012

1

LIBERIA

Rural Water, Sanitation and Hygiene Program Development

Study

ANNEXES

Annex A Terms of Reference: National Rural Water, Sanitation and Hygiene Program

Development study

Annex B Terms of Reference for Technical Assistance to the Ministry of Public Works

in support of National Rural Water Sanitation Hygiene Program Development

Study

A: TERMS OF REFERENCE: NATIONAL RURAL WATER, SANITATION AND HYGIENE

PROGRAM DEVELOPMENT STUDY

1. BACKGROUND

1.1 The Government of Liberia has requested the African Development Bank for financial

support to develop a National Rural Water Supply and Sanitation Programme (the National Rural

Water, Sanitation and Hygiene Program (RWASHP)) and an accompanying investment plan. These

Terms of Reference describes the Consultancy Services required to undertake the task.

1.2 Liberia has an estimated population of 3.73 million people (LISGIS Census 2008), of which

about 2.23 million live in rural areas. The 2008 figure corresponds to an average density of 93

persons / square mile. Monrovia, the Capital is the largest city with a population of 970,824 million.

About 47% of the population lives in urban areas, with 53% in rural areas. Liberia is divided into 15

major administrative subdivisions called Counties. Civil war and mismanagement have destroyed

much of Liberia’s economy, especially the country’s infrastructure while international sanctions on

diamonds and timber exports limited growth prospects for almost half of a decade during 2000–2007.

1.3 Since emerging from civil conflict, Liberia has embarked on economic reforms and

reconstruction. The first Poverty Reduction Strategy (PRS) was implemented from 2008 to 2011

which has been followed a second PRS for 2012 – 2017 that was concluded at the end of 2011. Both

PRS included targets for water and sanitation. An integrated Water Resources Management Policy

(IWRM) as well as a Water Supply and Sanitation Policy were approved by the Cabinet in 2008 and

2009 respectively.

1.4 According to the JMP 2010 report, coverage of access to water supply and sanitation in

Liberia in 2008 was 51% and 17% respectively. A rural water point inventory survey conducted in

2011 indicates that 60% of the existing water points are fully functional, 10% partly functioning and

30% broken down. According to 2008 World Health Statistics, 20% of children were reported to have

diarrhea in a two week period and over 80% of diarrheal disease is associated with contaminated

drinking water and poor sanitation and hygiene.

Water supply and Sanitation in Rural Areas

1.5 Population projections by LISGIS Census indicate that Liberia’s population in 2011 was 3.73

million people; 1.37million lived in urban areas and 2.11 million (56.6%) lived in the rural areas. The

rural population is projected to rise to 4.08 million in 2015 and 4.27 million in 2015. Liberia’s rural

population is characterised by high levels of poverty; there is generally lack of employment, resulting

in low income, and low access to basic services including schools, health centres, safe water supply

and sanitation. Based on JMP Report (2010) the estimated coverage of access to water supply and

sanitation in Liberia was 68% and 17% respectively. A rural water point inventory survey conducted

in 2011 indicates that 60% of the existing water points are fully functional, 10% partly functioning

and 30% broken down.

1.6 Lack of access to safe water supply and sanitation in Liberia’s rural areas is a major

contributing factor to poverty in rural areas. There is relatively high incidence of water and sanitation

related diseases (particularly malaria and diarrhea), which result in high health costs to individuals

and communities. According to 2008 World Health Statistics, 20% of children were reported to have

diarrhea in a two week period and over 80% of diarrheal disease is associated with contaminated

drinking water and poor sanitation and hygiene. Furthermore, women and children spend a

disproportionate amount of time and effort in daily chores of water collection, and in caring for those

suffering from water and sanitation-related diseases.

1.7 Under its first PRS, Liberia aimed at increasing coverage to 50 % of the population by 2011,

from 25% baseline water coverage of 2008. For sanitation, the PRS initially targeted 40% of the

2

population but this was revised to 33% in 2008 owing to a sector assessment that pointed to slow

progress. The second PRS sets national targets at 77% for water supply and 56% for improved

sanitation. Rural targets are 67% and 57% respectively.

1.8 Government Capacity to lead, coordinate and deliver water and sanitation services was

severely compromised by the conflict, but is now re-emerging albeit slowly to make a full transition

to a country-led process in service delivery, data management, regulation and sector oversight.

Recognizing that the sector policies were not being operationalized, and that most donors financed

projects were stand-alone projects, the government and development partners negotiated the Liberia

WASH Compact. The Compact, agreed in 2011 as part of the Sanitation and Water for All (SWA)

initiative, sets out four joint commitments as follows: (i) institutional capacity, (ii) equity, (iii)

monitoring, and (iv), finance.

1.9 Furthermore, in view of the post-conflict environment, this study will look at sector

governance challenges and underlying drivers of the water supply and sanitation in Liberia. The

development of a national rural water and sanitation program will look at existing institutions and

structures to understand why the sector works as it does and how the sector works, what are the main

hindrances to success and what opportunities are there for improvements. The purpose of the sector

governance analysis is to develop a better understanding of the overall governance decision-making

process, the relations between the state, service providers and users as well as the interaction of state

and non-state actors at central and country or district levels. It will also review the power within

decision-making process at a sector level, and the accountability patterns between the state and non-

state actors in the delivery of potable water and sanitation services to the rural population in Liberia.

1.10 There are various factors that contribute to the performance of the sector that need to be

addressed if these targets are to be achieved. These include problems with implementation of policy

and institutional capacity building; marginalization of sanitation, unreliable data; severe financing

constraints and lack of coordination of sector aid, amongst others.

2. OBJECTIVES

2.1 Objectives

2.1.1 The Objective of the study is to provide the Government of Liberia with sufficient

information and justifications to make an informed decision on the most appropriate options for

delivering sustainable access to safe and affordable drinking water supply and basic sanitation and

hygiene services in rural areas. The study will develop a coherent National Rural WASH Program by

recommending and providing costs to ensure the long-term sustainability of water supply, sanitation

and hygiene services and by enabling Government to prioritize works and to develop an investment

program and implementation manual.

2.1.2 The outputs of the study will include a National Program for Rural Water, Sanitation and

Hygiene services for the rural areas of Liberia, a Rural WASH Program Implementation Manual, a

Monitoring and Evaluation Framework and a Framework for Operational and Maintenance of the

rural WASH facilities including sustainable supply chain for use during implementation..

Specific objectives

i) To undertake an assessment of the challenges facing rural beneficiaries in relation to

RWASH and a situation analysis of rural WASH disaggregated according to supply/demand

zones;

ii) To formulate a program concept paper on the components of the national program which will

take into account the various concerns and aspirations of the key actors;

iii) To outline a national program with detailed costs of the program components; and an

implementation plan;

3

iv) To outline a Program implementation Manual; and,

v) To draft a Resource Mobilisation Paper

The program will be developed with a view to harmonise the support of Development Partners (DP)

around one common programme and ultimately with one joint funding mechanism.

3. SCOPE OF ACTIVITIES

3.1 General Scope

The general scope of this study will be to analyse the current situation in the provision of water

supply, sanitation and hygiene education to the rural areas. The practices and constraints of the

various actors active in the sector will be detailed, drawing examples from typical representative areas

in different parts of the country. The study will address all the aspects of water supply, sanitation and

hygiene service provision, i.e., legal, technical, financial, institutional, social, economic,

environmental, climate change, coordination etc. The study will seek to identify key issues and build

consensus of stakeholders from policy makers, financiers, planners, implementers, service providers

(including private sector, NGOs, community based organisations and individuals) and the

beneficiaries/users on the key priority components to make up the Program.

Based on the consultations on key issues with stakeholders lessons will be drawn for development of

the various study outputs.

3.2 Detailed scope of Activities

Task 1: Situation Analysis

The Situation analysis will be informed by a rigorous literature review of the important decisions

about the sector that have been made in the recent past. Consolidation of information and a situation

analysis will provide a common understanding of the current sector status, its short-comings, and

serve to support the development of program components and their options. The situation analysis

will also reaffirm the relevance of a N RWASH programme and ensure a programme is designed to

meet the real needs and problems of target beneficiaries. The Consultants’ will confirm the

following:

the coherence of a NRWASH program within the overall framework of national development,

policies, the Long-term vision – Liberia RISING 2030 and the medium term economic

growth and development strategy etc.

the nature, number and type of beneficiaries and other stakeholders that the proposed program

will potentially affect;

all organizations and agencies affected by or involved in the proposed program;

all major problems experienced by the supposed beneficiaries of the program and by any

other parties likely to be involved, the causal interrelationships of these problems, and the

intersect oral links,;

the accountability relationship and power relations between key actors (the state, service

providers and users) in the water supply and sanitation.

the financial management capacity (budget formulation and execution, expenditure control,

and procurement) in the water sector and sanitation service delivery

other interventions or priorities by any national organization or donor which may be affected

by the proposed program;

Information from previous studies and evaluations relevant to the proposed program.

A list of essential documents is provided at the end of the TORs. An indicative list of issues for

verification and analysis is given below but this is not exhaustive and the consultant should develop

4

their own comprehensive list of issues and tasks and this will form part of the basis for the evaluation

of proposals:

Water Governance (Institutional, legal and Policy Arrangements): Assess and review water sector

governance through an analysis of the governance arrangements, institutions and actors that shape the

performance of the sector. In addition to the sector policy and regulatory framework, the water sector

governance assessment will cover:

Governance arrangement including the structure and capacity to deliver WASH programs

Identify and document the roles and responsibilities of various government institutions,

county entities and service providers under the new policy and decentralisation strategy;

Decentralization and effective structure for water supply and sanitation in rural areas

Water sector and decentralized governance arrangement (devolution, delegation and de-

concentration);

Citizen’s participation; ownership of assets etc.;

Transparency and accountability arrangements to improve the delivery of WASH services;

Water sector financial management and procurement; and

RWASHP budgeting and investment planning and the medium-term expenditure framework.

Community Participation

Ownership or management of facilities and assets

- levels of contribution towards scheme development

- level of community participation in design, implementation, management and M&E

- who owns assets and what role in management -direct, independent, indirect.

Planning for WASH activities by communities

Planning for good practice in citizens participation and transparency of the WASH programs

Roles and responsibilities of community based organizations.

Funding/Medium Term Expenditure/Financing Arrangements:

Review the existing financing mechanism and sources of finance for the sector. Identify the

financing flows from national to community levels;

Alignment of the sector policy priorities and the medium term expenditure frame work and

the annual budget cycle

In collaboration with the World Bank Sector Investment Plan preparation team establish

prioritized regional investment plans rolled up into the national investment plan that sets out

financing requirements in phases (Detailed Phase I - 2012 to 2015 and indicative Phase II -

2015 to 2017) for water supply, sanitation and hygiene separately to achieve the targets;

identify commitments made, financial gaps and possible sources of funding; the plan will

include an updateable (Excel spreadsheet) model for scenario development with identified

variables. The plan will verify and build on the provisional Sector Investment Costing of

which the first draft was developed by the government in August 2011.

Examine potential financing mechanisms such as sector Budget Support (BS) and

program/project funding, etc. in conjunction with relevant authorities and development

partners and make specific recommendations for a viable financing mechanism for the Rural

WASH sub-sector. The review shall include examination of the MOHSW Pool Fund

mechanism and a feasibility study on a WASH Pool fund.

5

Economic and social impact analysis; calculate ERR and Economic NPV of the program taking account

of the following with clear assumptions:

a) Benefits in the form of economic revenues from water services

b) Health sector savings, income gained due to diseases avoided

c) Time lost for illness and income from off work days avoided

Prepare Social Impact Analysis (SIA) to identify externalities and employ distributive analysis, which is

the allocation of the externalities among the project stakeholders. While some of the involved parties may

gain due to the project activities, the others may have to incur a loss.

Technology: Choice of - availability of options in relation to country skill availability for O+M,

market, supply chain, and role/process of decision making. The consultant shall also need to look into

standardisation issues and identify the most common technologies and strategy for adoption of

sustainable technologies.

Private Sector Participation

i) Identify and specify the role and contribution of the private sector, including general

organization and capacity, in the implementation, operation and maintenance of the water

and sanitation systems, including their potential roles in supply chain activities;

ii) With reference to supply chain liaise with potential business groups to identify existing

local capacity for delivery of goods, works and services on the basis of business

opportunities which will be created when the Program is launched. Rapidly assess the

procurement and disbursement procedures of the development partners in country against

the typical values of goods, works and services contracts which could be available to local

contractors, consultants and NGOs;

iii) Examine the situation on the ground and propose strategies, in line with the sector strategic

plan for ensuring regular and affordable access to equipment like pumps, pipes, spare parts,

etc.; also to explore the establishment of sani centers and;

iv) Examine the existing environment and prepare strategy to strengthen the private sector

engagement, including capacity building and business opportunity information and

operational knowledge dissemination.

Strategic Environmental Assessment and Climate change

i) Identify potential environmental and socio-economic as well as climate change issues and

impacts pertaining to the proposed program, and propose appropriate environmental and

social mitigation as well as climate adaptation measures;

ii) Prepare SEA report and climate change adaptation strategy in collaboration with the

Environmental Protection Agency (EPA), and integrate climate change adaptation as well as

environmental and social impact mitigation measures in the design of the RWASH program

Monitoring and Evaluation

This task will review the existing RWASH M&E framework, including the indicators, and develop

and define measurable indicators linked to ensuring development effectiveness and achievement of

the MDGs, Impact on health, poverty and gender, environment, climate change and other relevant

WASH benchmarking systems. It will also identify the various institutions and their mandates that

will be involved in M&E. Develop an outline of a RWASH performance monitoring and evaluation.

The framework should include monitoring and an evaluation instrument for tracking participatory

development activities at the community level and for assessing interactions between communities

6

and implementation agents as well as mechanisms for annual sector reviews and dissemination. This

will be based and build on work undertaken by the Water and Sanitation Program (WSP).

The M & E framework will set a viable M&E system for the sector, and should allow for scope to

widen the system to include establishment of modalities for sector-wide information management, i.e.

rather than establishing a “RWASH sector M&E system” as an end state, this would be a building

block to the establishment of a “sector information management and monitoring system”, with this

further development taking place incrementally once the core M&E is fully institutionalized and

operational. This approach will allow for a more holistic approach to sector information management,

which among other things would enable better horizontal integration of various sector information

management systems, of which the M&E system would be one. A wider sector information

management system could include the following features:

Sector M&E measuring effects/impact of sector interventions

Information database on GoL and donor programmes

Linkages between M&E at the program level and the sector-wide M&E system

Linkages between the sector-wide M&E system and the CPRGS and other cross cutting

planning/M&E frameworks

Linkages between the sector information management system and the proposed Matrix of

Affiliation (the Matrix is aimed at relating GoL/donor programme inputs to the strategic

sector interventions included in the strategic plan for the sector).

Sector Co-ordination and DP harmonization and alignment:

- Review existing coordination mechanisms within government, and between government and

non-state actors including development partners:

- Level of government leadership in coordination;

- Coordination between the key actors/agencies in central and local government/county

administration

Rapid Sanitation and hygiene baseline appraisal

Undertake a baseline data survey of the sanitation and hygienic health situation in the country and

establish the sanitation coverage by carrying out Sanitation Point Mapping and then producing a

sanitation point atlas. This can be done by organizing data through the MPW WASH Focal People,

the MOH Environment Health Technicians and the NGOs working in the counties. The survey should

include inventory where required and should cover WASH for all schools, all health and social

welfare institutions and public places i.e. markets and data should be gender segregated.

Task 2: Development of National RWASH Program (2013-2017)

Based on the agreed Program components, elaborate and develop a National RWASH Program for

2012-2017 along with an implementation Plan. All the Program components will be costed. The

program will include a monitoring and evaluation framework.

A sector based MIS system has been established in MPW with assistance from WSP. This system has

base-line information on sector coverage in terms of water points depicting the type of technology and

its location (using a Geographical Information System (GIS). There is a considerable challenge ahead

to combine the centrally run MIS with the County generated data on investments made and ensure

system updating.

As well as the MIS system there is a need to increase the level of information within the Rural WASH

sub sector as whole in order to increase the ability of the various different actors to learn and as an

essential element of the demand responsive approach which is based on informed decision making by

the communities.

7

Coordination, coherent sector development, transparency, downward accountability and the practice

of good governance also mean that MPW/RWD have the obligation to increase the level of sub sector

information so that all stakeholders can examine where the sector needs are, where the funds were

spent, the outcomes gained as a consequence and the plans and initiatives being taken by different

actors.

Sector performance standards and indicators; implementation monitoring, reporting and accounting

formats for use at community, county and national level will be determined as part of the program

development to be disseminated. Key Performance Indicators (KPIs), research and development and

system for dissemination of information will be developed. In line with the Sanitation for All

Compact for Liberia the RWASH Program development will include baseline data desegregated by

gender and will be designed such that bi-annually, the CSO scorecard will be used to turn input,

output and outcome data into information on how the sector is performing. The program development

study will also include a “randomized control evaluation study”, which would be used to measure the

impact of the program i.e. reduction of poverty among the rural population of Liberia.

Task 3: Prepare National RWASH Operational Plan (2013-2017)

This will entail a review of the RWASH Sector Investment Plan and Model under development by the

Water and Sanitation Program (WSP), and an elaboration/detailing of the financial plan/model and

proposed financing mechanisms in the NRWASHP. This task will also address financial sustainability

(and availability and sufficiency of sector finances), including criteria for allocation of resources to

local government administration, and will incorporate within the NRWASHP, key performance

indicators related to financial management in line with the PRSP2.

Task 4: Development NRWASHP Implementation Manual

This activity will develop the Program Implementation Manual (PIM). The PIM will contain the full

project cycle for implementing the various Program components. Further, the PIM will contain sets

of eligibility criteria for RWASH for investments; a methodology for identifying, preparing and

appraising community water projects; methodology for project implementation and monitoring;

technical and design aspects; training and capacity building; financial management, environmental

and social issues; climate change and gender, amongst others. The manual will encompass all of the

above and the following but not limited to:

a. a methodology for identifying, preparing and appraising community water projects by

communities with the assistance of local level government institutions and/or NGOs;

b. criteria for the review, screening and processing of ‘lowest level’ project proposals through

the appropriate levels of authority of local government to final approval;

c. roles of the different levels of government and/or civil society including NGOs in project

vetting, procurement, disbursement and supervision for sub-projects; and

d. ways of ensuring sustainable operation and maintenance of the water supply and sanitation

facilities by communities, government institutions, NGOs, or private sector depending on the

types and complexity of the facilities.

Task 5: Development of Operation and maintenance manual for Rural Water Supplies and

Sanitation Facilities

The O and M Framework will define the critical principles required in the sector and in all project

implementation that will ensure sustainability of the facilities. The O and M Framework will address

the following elements amongst others;

i. Operations and maintenance and facility management plans. Operations and maintenance

plans should not only list maintenance tasks, but also provide a detailed task schedule focused

8

on preventative maintenance and specifying responsibilities. The project operations manual

can provide guidance or models for such schedules, relying on, for example, color-coded

cards and other management techniques for regular maintenance and monitoring;

ii. Cost recovery mechanism. Outline an effective system for user payments for achieving

sustainable service delivery;

iii. Community-level training for operations and maintenance. Numerous methodologies have

been developed for community-level training in RWASH services. An excellent source can be

found in Operation and Maintenance of Rural Water and Sanitation Systems – A Training

Package for Managers and Planners (WHO);

iv. Performance-based service contracts. Where applicable, this approach, which aims to

remunerate a contractor for providing a service at a predefined quality standard, rather than

pay the contractor based on time, works, or materials, should be proposed.

Task 6: Development of a Monitoring and Evaluation Framework

This task will review the existing RWASH M&E framework, including the indicators, and develop

and define measurable indicators linked to ensuring development effectiveness and achievement of

the government targets,, Impact on health, poverty and gender, environment, climate change and other

relevant WASH benchmarking systems. It will also identify thevarious institutions and their mandates

that will be involved in M&E. The task will also develop an outline of a RWASH performance

monitoring and evaluation. The framework should include monitoring and an evaluation instrument

for tracking participatory development activities at the community level and for assessing interactions

between communities and implementation agents as well as mechanisms for annual sector reviews

and dissemination. This will be based and build on work undertaken by the Water and Sanitation

Program (WSP).

The M & E framework, harmonized with PRSP II indicators, will set a viable M&E system for the

sector, and should allow for scope to widen the system to include establishment of modalities for

sector-wide information management, i.e. rather than establishing a “RWASH sector M&E system” as

an end state, this would be a building block to the establishment of a “sector information management

and monitoring system”, with this further development taking place incrementally once the core M&E

is fully institutionalized and operational. This approach will allow for a more holistic approach to

sector information management, which among other things would enable better horizontal integration

of various sector information management systems, of which the M&E system would be one.

A wider sector information management system could include the following features;

Sector M&E measuring effects/impact of sector interventions

Information database on GoL and donor programmes

Linkages between M&E at the program level and the sector-wide M&E system

Linkages between the sector-wide M&E system and the CPRGS and other cross cutting

planning/M&E frameworks

Linkages between the sector information management system and the proposed Matrix of

Affiliation (the Matrix is aimed at relating GoL/donor programme inputs to the strategic

sector interventions included in the strategic plan for the sector).

Task 7: Preparation of Resource Mobilization Paper

A Resource Mobilization document will be prepared based on the emerging consensus in the sector,

in close liaison with GoL, for mobilizing financial resources to implement the NRWASH. The task

9

will also include facilitation of arrangements for a Donors’ conference and preparation of conference

materials (donor mobilization document).

4. IMPLEMENTATION METHODOLOGY

Program Development

The Government has created the National Water, Sanitation and Hygiene Promotion Committee

(NWSHPC) as a resource group made up of the Line Ministries and service agencies, civil society and

development partners. The committee plays the steering role for the sector, and is responsible for

operationalizing the NWSSP including the development of strategies, and coordinating all water

supply and sanitation activities. NWSHPC will be the steering committee of the study.

The Study will be executed by the Ministry of Public Works (MPW). MPW is in charge of

Infrastructure and Basic Services. It has also led the sector coordination at national level. The

Ministry is technically oriented, and handles among other tasks, the national rural water supply

program. The ministry implements directly, and/or through contractors and NGOs. The Rural Water

Supply Division (RWSD) in MPW will coordinate the study and will manage daily implementation

activities, including acquisition of services, monitoring of activities and reporting.

The MPW will constitute a Program Development Team (PDT) comprising a Study Coordinator from

RWSD and three other staff to ensure speedy execution of the study by liaising with all Government

organs for the purpose of facilitating the work of the study consultants. The staff, all to be seconded to

the project, will comprise a Water/Sanitary Engineer and a financial specialist from RWSD/MPW;

and a hygiene and sanitation specialist from the Ministry of Health and Social welfare.

Technical Assistance (TA) through an individual consultant will be provided to the government to

support in the management of the study. The TA will work closely with the consultant to ensure

timely delivery of project outputs.

4.1 Consultations and Consensus on Key Issues

Participatory Approach

During the implementation of the study, three workshops/seminars involving all stakeholders shall be

held. The consultant in collaboration with the Study Management Team/MoPW and the TA will make

all preparations necessary to carry out the workshops including names of the stakeholders, locations

of the workshops, and items to be discussed. The stakeholders would include government

departments, counties, donors, NGOs, representatives of the community-based organizations and the

private sector operators involved in the sector. The locations of the seminars would be spread over the

study area to ensure participation of all stakeholders especially the beneficiaries of the systems. Each

workshop shall have a duration of about two-days whereby institutional, organizational,

developmental, environmental, financial and cross cutting issues of the study will be discussed.

The consultant will propose the sequencing of workshops, but it will be expected that these will be

held to discuss the major outputs of the assignment. The consultant will also largely determine the

approach used in arriving at the draft situation analysis report, however it should include interviews

and getting responses from people on the ground. The consultant will prepare a proposal on the

approach to be used, which will be used in discussion with the CSB/RWSD for adoption.

One of the outcomes of the Stakeholders workshop on the Situation Analysis Report and PCN should

be an outline of the Program document (with agreed Program components) into which the Consultant

will feed details to be obtained from subsequent work.

10

Dissemination of the study outputs. The study workshops and other sector meetings will constitute

important dissemination outlets for the study outputs. In addition, the Consultancy Study will produce

a brief dissemination outline strategy targeting the important stakeholders.

4.2 Develop Program and Program Implementation Manual

After the consultant has received feedback from the stakeholders he will prepare a draft NRWASH

Program incorporating the key issues and other matters arising from the workshop. The draft Program

will be presented and discussed at a stakeholders’ workshop. The Final Program, Investment Plan,

and Implementation Manual reflecting consensus reached at workshop will then be prepared.

4.3 Timing

The total implementation period for the consultancy assignment is expected to be for 9 months..

Target dates for key activities by calendar months are shown in Table 1 below. The Consultant will

however, be free to suggest alterations to the work program.

Table 1: Implementation Schedule

Activity Time in Months Responsible Agency

Inception Meeting End of 1st month Consultants/ MPW

First Workshop 1.5 months after start up Consultants/ MPW

R WASH Program Concept paper 2.5 months after start up Consultants/ ADF/MPW

Second Workshop 3.5 months after start up Consultants/ MPW

Revised R WASH Investment Plan Month 5 Consultants/ AfDB/MPW

Third Workshop Month 6 Consultants/ MPW

PIM,O&M and M&E Month 8 Consultants/AfDB/MPW

Submission of final Reports End of 9th

month Consultants

4.4 Reporting

The consultant shall report to the Head of the Community Services Bureau.

5. Professional profiles and Inputs Required

It is envisaged that the Consultants’ core team with relevant water supply and sanitation experience

will be comprised of:

Rural Water and Sanitation Engineer (Team Leader/Co-ordinator)

Sociologist/Gender

Sanitation/environmental expert

Public Finance specialist (Development Economist/Financial specialist)

Sector Institutional/Governance Expert

Secondary competencies of core team are to include climate change, participatory techniques,

institutional analysis, gender analysis, private sector participation and policy planning.

Key Consultant Personnel Profile

Team Leader: The Team Leader will have a master’s degree in water/civil engineering, or

other relevant to this assignment with at least 15 years of experience (of which at least 5 years

should be in the developing world) in the field of rural water supply and sanitation sector

reform and specific experience in program development;

Rural WASH Expert: The expert will have a degree with specialization in water and

Sanitation/Environmental Engineering or other closely related field and at least 10 years of

11

relevant work experience in WASH development of which 5 years is in the rural WASH

sector. She/He should have a sound understanding of rural water supply and sanitation

program and project design and management, with experience in operation and maintenance

system of rural WSS facilities, community management approaches and working with

government institutions and NGOs.

Sociologist: The Specialist should have a degree in sociology/ related subject with at least 10

years of experience (of these at least 5 years in the developing world) in the field of rural

water supply. Knowledge of gender aspects of water, sanitation and hygiene development is

essential.

Sanitation/environmental Specialist: with relevant water quality and environmental skills.

The Specialist should have a degree in civil engineering – or relevant discipline – with at least

10 years of experience (of these at least 5 years in the developing world) in the fields of off-

site sanitation in rural areas.

Specialist in public finance: The Specialist (financial analyst/development economist)

should have a relevant degree with at least 10 years of experience (of these at least 5 years in

the developing world) in the field of public and utility finance and private sector participation

in the WSS sector.

Specialist in sector governance: The specialist (economist and public policy analyst) should

have expertise in government systems or core public sector reform agenda. S/he should have

knowledge and experience (of at least 5 years) in international good practice in public sector

governance, or voice and accountability agenda.

The Team Leader and relevant specialists should have excellent communication skills (verbal and

written) of the English language.

6. DELIVERABLES

- Inception Report and background literature review setting out detailed approach,

implementation schedule]

- Situation Analysis Report

- Program Concept Note

- Draft Program and Investment Plan

- Final Program Document and Investment Plan

- Operation and Maintenance Framework

- Monitoring and Evaluation Framework

- Program Implementation Manual

- Strategic Environmental Assessment Report and Climate Change Adaptation Strategy

- Draft Resource Mobilisation Paper

7. SERVICES AND FACILITIES TO BE PROVIDED BY THE CLIENT

To the extent possible the Client (Government of Liberia) shall provide the following:

Documents: access to all available data and reports relevant for carrying out the assignment. MPW

will also provide the consultant with a directory of institutions/firms/persons (at national, county and

community levels) with relevant information;

Attachment of staff: Three members of staff ; a Program Coordinator, WSS Engineer and Socio-

economist/Monitoring and Evaluation officer will work with the consultant on all aspects of Program

development.

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Facilities and Exemptions

The liability of the Consultant for the payment of taxes and duties and the granting of any

privileges of these by the government are included in the Letter of Invitation (LOI).

Office accommodation adequately equipped with basic furniture.

8. RESPONSIBILITIES OF THE CONSULTANT

The Consultant is responsible for the following:

Securing own equipment, materials and transport use during the assignment. The Consultant

shall also make necessary provision for secretarial services and necessary office equipment

for the duration of the assignment.

Local transport: Procurement of project vehicles under this support, which will be handed

over to the MPW at the end of the Project. During the assignment, he will be responsible for

managing the vehicles including all costs of fuel and driver, for all field trips outside

Monrovia required to carry out the assignment

At the end of the assignment all such equipment, materials and transport purchased with the project

funds shall be handled over to the Ministry of Public Works.

Production/reproduction of all reports, and stationery required for all participants in the

consultative meetings;

The copyright of all documents prepared by the Consultant in connection with this study rests with the

Government of Liberia. The Consultant may make copies of such documents but shall not use the

contents thereof for any purpose unrelated to the service without prior written approval of the

Government of Liberia.

LIBERIA RURAL WATER, SANITATION AND HYGIENE PROGRAM

DEVELOPMENT – ORGANISATION CHART

Technical Assistant

General Study Execution/

Supervision of Consultant

(procurement , review of study

reports, communication with

Bank)

NWSHPC & WSSC

Program Preparation studies and

Outputs (Ref TOR)

Consultancy Firm

Ministry of Public

Works

(Community Services

Bureau)

Partner Institutions (MLME,

MOHSW,MOE,MIA, MOF,

MPEA, MoGD, LISGIS,

LWSC, DPs, NGOs, CSOs

etc.)

MPW Study Team (Rural

Water and Sanitation

Division)

13

List of relevant policies, strategies, documents

1

A. National Policies and Strategies

GoL (2008) Poverty Reduction Strategy Paper http://www.liftliberia.gov.lr/doc/prs.pdf

GoL (Forthcoming). Poverty Reduction Strategy 2

GoL (2011). Liberia Rising. http://www.liftliberia.gov.lr/content.php?main=83&related=83

B. Sector Policies and Strategies

GoL, Ministry of Lands, Mines and Energy (2007). National Integrated Water Resources

Management Policy http://wash-liberia.org/Documents.html

GoL, Ministry of Lands, Mines and Energy (2009). Water Supply and Sanitation Policy. http://wash-

liberia.org/Documents.html

GoL, Ministry of Health and Social Welfare (2010). National Environmental and Occupational Health

Policy. http://wash-liberia.org/Documents.html

GoL, Ministry of Public Works (2010). The Guidelines For Water and Sanitation Services In

Liberia. http://wash-liberia.org/Documents.html

GoL, Ministry of Lands, Mines and Energy (2012). Water Supply, Sanitation And Hygiene (Wash)

Sector Strategic Plan For Liberia. http://wash-liberia.org/Documents.html

GoL (draft 2011). Liberia Wash Compact. Sanitation and Water for All: A Global Framework for

Action. http://wash-liberia.org/Documents.html

C. Sector Background Papers

AMCOW Country Status Overview on Water Supply and Sanitation (2011). Water supply and

sanitation in Liberia: turning finance into services for 2015 and beyond. Water and Sanitation

Program, Nairobi. http://wash-liberia.org/Documents.html

GoL (2011). Liberia Waterpoint Atlas. http://wash-liberia.org/Documents.html

1 WSP (2011). Liberia: Draft WSS Sector Investment Study TOR

14

B. TERMS OF REFERENCE FOR TECHNICAL ASSISTANCE TO THE MINISTRY OF PUBLIC

WORKS IN SUPPORT OF NATIONAL RURAL WATER SANITATION HYGIENE PROGRAM

DEVELOPMENT STUDY

1. Background

1.1 The Government of Liberia has submitted an application to the African Development Bank,

for funding the preparation of a program aimed at assisting the Government to review the current

implementation of Rural Water and Sanitation (RWSS) services and to prepare a Planning Framework

and Investment Plan (PFIP) for its RWSS program to meet national and MDG targets. Accordingly,

the Bank has allocated the required funds from the Rural Water Supply and Sanitation Initiative Trust

Fund (RWSSI-TF). These Terms of Reference describes the Technical Assistance to support the

Ministry of Public Works (MPW) to manage and supervise the preparation of the RWSSP and

associated activities.

1.2 The Liberian Government is taking the initiative to shape and drive the re-development of

water, sanitation and hygiene (WASH) services in the country. The Liberian Government adopted, in

2009, a new sector policy (2009) that incorporates IWRM principles and a Water Supply and

Sanitation Policy which focuses on sector governance, among other key components, for a full sector

wide approach. In addition, Water, Sanitation & Hygiene Sector Strategic Plan for the MDGs - 2012

to 2017 was completed in August 2011. The Liberian Government has committed to the eThekwini

Declaration and has also joined the Sanitation and Water for All (SWA) as a result of which a two

year road map WASH Compact has been jointly developed.

1.3 Liberia’s population is approximately 3.5 million people (LISGIS Census 2008) with an

annual growth rate of 2.1%. Monrovia, the Capital is the largest city with a population of 1.01 million.

About 40% of the population lives in urban areas and 60% in rural areas. Liberia is divided into 15

major administrative subdivisions called Counties. Civil war and mismanagement have destroyed

much of Liberia’s economy, especially the country’s infrastructure while international sanctions on

diamonds and timber exports limited growth prospects for almost half of a decade during 2000–2007.

1.4 According to JMP 2010 report coverage of access to water supply and sanitation in 2008 was

68% and 17% respectively. The rural water point inventory survey conducted in 2011 indicates that

60% of the existing water points are fully functional, 10% partly functioning and 30% broken down.

According to 2008 World Health Statistics, 20% of children were reported to have diarrhea in the past

two weeks and over 80% of diarrheal disease is associated with contaminated drinking water and poor

sanitation and hygiene.

1.5 The current Poverty Reduction Strategy (PRS 1) 2008-2011, plans to increase access to safe

water from 25% to 50%, and access to sanitation from 14% to 33% of the population. The draft

Water, Sanitation & Hygiene Sector Strategic Plan for the MDGs - 2012 to 2017 aims to achieve an

overall coverage of 78% and 70% for water supply and sanitation respectively by 2017. In the rural

areas the coverage is proposed to be 67% and 62% for water supply and sanitation respectively by

2017.

1.6 However, there are various factors that contribute to the performance of the sector that need

to be addressed if these targets are to be achieved. These include problems with implementation of

policy and institutional capacity building; marginalization of sanitation, unreliable data; severe

financing constraints and a lack of effective sector coordination of, amongst others.

2. Context

2.1 The AfDB is supporting the Ministry of Public Works to develop the RWSSP. This support

involves providing expert input and guidance in three specific areas that will lead to the definition and

preparation of the National RWSS Program. These include:

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i) Technical assistance for the development of the RWSSP (2012-2017) in line with the sector

strategic plan that was completed in August 2011 and the capacity building plan for all levels

of the WSS management ladder that will be completed in early 2012. Also supporting the

development and establishment of monitoring and evaluation mechanisms for keeping data

current, supply chain and the role of NGOs and private sector, and the appropriate

institutional arrangements for implementation of the Program, as well as the financial

requirements under the guidance of the sector investment plan that will be completed by WSP

in early 2012. Development of a Private Sector Investment/Public Private Partnership strategy

for Liberia and research into appropriate financing mechanisms for the sector, in particular

undertaking research regarding appropriateness of a WASH Pool Fund. The detailed TOR for

program development are attached.

ii) Technical Assistance to facilitate capacity building for Rural Water Supply and Sanitation

sub-sector management and implementation. This will mainly include support of

implementation of key general water sector legal and institutional reforms which are relevant

to rural water and sanitation.

Objective of the Assignment

The Objective of the Technical Assistance is to provide advice, assistance and training to the Ministry

of Public Works (MPW) to ensure successful management of the development of the National Rural

Water, Sanitation and Hygiene Program study and to provide general support to the sub-sector

management activities.

Specific Objectives of the TA will include the following:

To train counterpart staff on study management

To review consultant’s outputs;

To offer operational and administrative support

To support to program development/analysis

To support development and implementation of study monitoring and supervision program

Advice on Performance and operational improvement of the RWD

Scope of Work

The Technical Assistant’s primary function will be to assist the MoPW in ensuring that the

management of the study is efficiently conducted and that the Rural Water Supply Department in the

Ministry of Public Works builds the requisite capacity to enable it to effectively continue with

program implementation after the end of TA. The Tasks of the Technical Assistant will include but

not be limited to the following:

Task 1: Management of the RWASH Program Development Study:

The TA will assist and mentor counterpart staff in RWSD in effective management of the study to

ensure a timely delivery of quality and acceptable outputs. The TA will also offer operational and

administrative support to the department. This will entail:

Assisting the RWSD to prepare for the consultancy study with all requisite materials;

Assisting in the review of consultancy documents/outputs;

Provide expert guidance to the Rural Water Supply Division (RWSD)/Community Services

Bureau (CSB) of MPW with regard to management and supervision of the consultant;

Provide expert support to the management of the consultancy to ensure delivery of quality

work in accordance with the TOR and contracts and budgetary allocations, and on time.

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Review study planning material, progress reports and all other reports; assist in timely

mobilization of relevant stakeholder representatives and facilitating their due participation

and meaningful contribution to the program development process and products, as well as

ensuring due communication with the Bank regarding program progress

Task 2: Operational and Administrative Support

Assist and support in the procurement processes as well as in financial management of the

RWSSI-TF Grant in accordance with the applicable Bank’s rules and procedures;

Manage the ensuing relationships including communicating with the Bank, facilitating inter-

agency meetings, and with other stakeholders;

Coordinate with responsible government agencies and the RWSSP study consultancy firm to

ensure adequate and timely delivery of RWASH inputs for the GoL budget.;

Coordinate with study consultant, responsible government agencies and the Bank and

facilitate organization of resource mobilisation workshop/donors’ conference;

Undertake any other duties related to the proposed program that may be assigned in the

course of undertaking the assignment.

Obtain details of the scope and relevant outputs(draft and otherwise) of on-going studies

and/interventions including UNICEF-funded capacity building plan, WB-WSP funded sector

Investment Plan, Sanitation point mapping and national water quality sampling and AWF

funded Water Sector Reform Study (WSRS); and available building blocks including the

Water Point Atlas (rural and urban), Water, Sanitation & Hygiene Sector Strategic Plan for

the MDGs including preliminary Sector Investment Cost, Integrated Water Resources

Management Policy (IWRM), the Water Supply and Sanitation Policy (WSSP), the National

Environment and Occupational Health Policy, Guidelines for Water and Sanitation Services

in Liberia and the draft PRS II (2012–2017) and undertake consultations for an appreciation

of the issues pertaining to the rural WASH sector.

Task 3: Training, coaching and mentoring

Under this task, the TA will methodically and closely involve and work with RWSD staff when

undertaking his activities. This will entail including the RWSD staff in planning for the above TA

activities, attendance in all meetings with consultants, in the analysis of the consultant’s outputs etc,.

The TA will also facilitate together with the study consultant functional training of sector staff during

the program development (equip staff with skills in the management/conducting of participatory

meetings/workshops, study visits to countries like Ghana, Uganda and Ethiopia as part of the program

development through learning from others).

Deliverables

The following are the expected key deliverables:

TA’s work-plan within three weeks of commencement of assignment outlining the approach

and methodology for undertaking the prescribed activities/tasks and the expected outputs and

their timing

Monthly Reports including activities accomplished, monthly work plan, and

issues/impediments for redress, if any, and proposed actions for resolving the impediments.

The report is to give special focus on capacity building of the MPW counterpart team and

stakeholder mobilization and participation activities.

Comments and recommendations on reports from the study consultant produced within a

maximum of 3 working days of receipt/submission of the reports. Relevant stakeholder

review workshops conducted within 5 working days of receiving the consultant’s reports. The

shall take into account relevant comments from, the relevant national/local authorities and

other stakeholders and shall be responsible, in liaison with the CSB and Consultant’s study

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team, for ensuring the accuracy of all generated data and its analysis, observations, proposals,

conclusions and recommendations.

Comments and recommendations on various documents/requests submitted by the study

consultancy firm to the Executing Agency to be submitted to the Bank within 5 working days

of receipt of the documents/requests.

A Completion report documenting activities, achievements, best practices, lessons and

recommendations for improving the management of future of similar nature.

Reporting

TA shall report to the Director of RWSD

Qualification Requirements

The Technical Assistant should have the following minimum qualifications and competences:

A minimum of Master degree in Water Supply and/or Sanitation Engineering or equivalent

with demonstrated experience of strategic planning, with 15 years of experience of which &

must be in a developing country.

Competence in programming, planning, implementation and supervision of both water and

sanitation programs and projects.

Must also show strong knowledge and experience in water sector policy, governance,

planning and management and institutional development.. Knowledge and experience donor

funded programs and projects and a solid understanding of the work of Development Partners

in general is essential. .

Good track record of delivery and managing complex tasks, requiring sound technical

knowledge and experience, personal maturity and political judgment; demonstrated

experience and ability to work with clients and partners to positively advise and influence

collaboration as well as efficient implementation of projects and programs in a particularly

challenging environment; and proven ability in both delivering on own-managed work plans

and dealing sensitively with others in a multi-cultural context will be required

Proficient knowledge in the use of the computers (word, excel, MS Projects, Powerpoint)

7. Implementation of the Consultancy Assignment

7.1 Administrative Arrangements: The TA shall work closely with staff of the Ministry of Public

Works and report directly to the Assistant Minister for Community Services, who is the of the

Community Services Bureau. Quarterly performance targets based on the outputs outlined above and

the TOR for the program development consultant will be developed and agreed on commencement of

the assignment. The agreed quarterly targets will be used for performance review which will be

undertaken by the head of the Community Services Bureau. The outcome of the performance review

shall be communicated to the Bank within five days of the end of each quarter.

7.2 Duration and Timing of Assignment: The duration of the assignment for the TA will be Six

(6) months. The assignment is expected to commence by ……2012.

8. Responsibilities of the Government of Liberia

8.1 The Government through Program Coordinator shall furnish the TA with all documents

relevant to this assignment. Such documents shall comprise but not be limited to reports on previous

studies related to WSS in the areas to be covered by this study. The Program Coordinator shall also

facilitate the Consultant’s contacts with all relevant agencies. Ministry of Public Works will provide

a fully furnished office and transport for TAs activities.

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9. Responsibilities of the Consultant

9.1 In carrying out his/her work, the TA shall, through the Community Services Bureau of the

Ministry of Public Works cooperate and liaise fully with the local authorities in the respective

counties, and all relevant government institutions and other agencies on matters pertaining to the

assignment. The TA shall exercise all due skills and diligence in the performance of the services, and

shall carry out all his/her responsibilities in accordance with recognized professional standards.

9.2 The copyright of all documents prepared by the TA in connection with this assignment rests

with the Government of Liberia. The TA may make copies of such documents but shall not use the

contents thereof for any purpose unrelated to the service without prior written approval of the

Government of Liberia.