Enabling Environment for Sanitation in South AfricaJean de la Harpe
What’s this presentation about?
Enabling environment for sanitation in South Africa
5 main pillars
• Constitutional, policy and legislative framework
• Institutional framework
• Sector collaboration and support
• Financial framework
• Monitoring and regulation
Challenges
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Do we have an enabling environment?
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Police brought in to manage community protest over poor services in the Western Cape
South Africa’s poor renew a tradition of protest
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Protesters chant slogans in the township of Siyathemba. Such “service delivery protests” have become a regular occurrence in South Africa
Enabling Environment for Sanitation in South Africa5
Enabling environment
Constitutional, policy and legislative framework for sanitation
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Constitutional context
• Access to water and sanitation services are a basic human right
• “The state must take reasonable legislative and other measures, within its available resources, to achieve the progressive realisation of each of these rights”
• Water and sanitation services is assigned to local government
• National government is responsible for regulating the performance of local government in terms of water and sanitation services – it also is obliged to support and strengthen the capacity of local government to provide these services
• The Constitution contains strong elements of decentralisation and the need for co-operative governance
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Policy and Legislative Framework
Given the inequalities and failures of the apartheid government policy, new approaches were required to provide sustainable services and to dramatically increase service provision coverage
The 1994 Water Services White Paper set out policy for the water and sanitation services function and addressed issues of equity – some for all for ever
The Water Services Act was promulgated in 1997 and defined the municipal functions of water and sanitation
From 1998 to 2000, local government policy and legislation were finalised to pave the way for ‘developmental’ local government
In 2003 a Strategic Framework for water and sanitation was developed, providing a comprehensive approach to the provision of water and sanitation services – building on progress made towards establishing democratic local government and developments in the sector
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The Water Services Act, 1997 – some key points
Provides a flexible, developmental legislative framework for the provision of water and sanitation services
Promotes and aims to strengthen local government
Creates mechanisms for monitoring local government, by consumers, and provincial and national government
Sets national norms and standards and requires water services development planning
Distinguishes between the authority function (governance) and the service provision function
Establishes statutory bodies to support and assist local government and provides for the monitoring and regulation of these bodies
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Our Constitution, our local government legislation and our water services legislation creates a legal framework where service provision is decentralised to local government
Increasingly our institutional, planning, financial, support and regulatory frameworks are structured towards decentralization.
Local authorities receive financial support from the National Treasury in terms of capital grants for infrastructure, operating grants for free basic services, as well as capacity building grants to improve performance.
The Strategic Framework for Water Services provides an institutional vision that reinforces the executive authority of local authorities for water and sanitation services.
Decentralisation
The South African water and sanitation policy provides:
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• a 10 year vision for the sector
• the objectives and targets to be achieved within the sector
• the institutional, financial, regulatory, support and monitoring frameworks for the sector
• clarity on the roles and responsibilities of sector players
The policy:
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Is a comprehensive approach to the provision of water supply and sanitation
It sets out an umbrella framework to enable the sector vision to be achieved
It provides a clear set of targets with timeframes and who is responsible for achieving these targets
It clarifies institutional roles and responsibilities in the sector
Targets for sanitation
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Free basic sanitation policy implemented in all water services authorities by 2010
By-laws are promulgated in every water services authority area by 2005.
All water services authorities report annually on progress against their water and sanitation services development plans by 2005
All services providers are rendering services in terms of a contract by 2005
All people in South Africa have access to a functioning basic sanitation facility by 2010.
All bucket toilets are eradicated by 2006.
Investment in water & sanitation infrastructure in the sector totals least 0.75% of GDP.
70% of households with access to at least a basic sanitation facility know how to practise safe sanitation by 2005 (and 100% by 2010).
Free basic sanitation policy
• Purpose: to assist in promoting affordable access by poor households to at least
a basic level of sanitation service
• The challenges of providing free basic sanitation are threefold:
• Infrastructure provision. provision of the sanitation facility to poor households
(together with the necessary supporting infrastructure)
• Health and hygiene promotion must be provided and properly managed
between the municipality responsible for environmental health, the water services
authority and the water services provider.
• Subsidising the operating and maintenance costs for the poor using the
equitable share and/or through cross-subsidies within the water services authority
area. These funds must be paid to the water services provider or directly to the
households.
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Free basic sanitation policy – choice of technology
• The policy does not define the technology to be used in providing
free basic sanitation
• Technology selection is strongly dependent on settlement conditions
(urban, rural, peri-urban, density, financial viability, existence of a
WSP to ensure sustainable operation) and thus this is the decision
of the WSA – and is key to providing free basic sanitation services
in a sustainable manner
• Operating the service. In rural areas households need to manage
the sanitation facilities themselves as WSPs operating in these
areas lack the capacity to empty or relocate Ventilated Improved Pit
toilets (VIPs). Subsidy arrangements therefore take these factors
into account.
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Free Basic Sanitation Policy
• Subsidies for free basic sanitation cover hygiene promotion costs
and operating costs (calculated per household per month for each
settlement type and technology used)
• This subsidy is paid to the WSP or directly to the household.
• WSAs decide appropriate technical solutions based on the level of
subsidy (overall) they can provide on an ongoing and sustainable
basis for sanitation (from equitable share and cross-subsidies)
• The policy recognises that local circumstances vary greatly
between WSA areas – thus the application of the free basic
sanitation policy by WSAs is be flexible.
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Basic services – first step
• WSAs have to ensure the progressive realisation of the right of all
people in its area of jurisdiction to receive at least a basic level of
sanitation services (first step)
• They must ensure adequate and sustainable investments in
sanitation services infrastructure to realise this right
• The municipal infrastructure grant (MIG) is to ensure universal
provision of at least a basic sanitation facility within a reasonable
period of time. This is called a universal service obligation and is the
most important policy priority.
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Enabling Environment for Sanitation in South Africa17
Enabling environment
Institutional arrangements
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water services authority(local government)
local water services provider
consumer
constitutional responsibility for water services provision
consumer contracts
service deliveryagreements
water services sector
consumercharter
by-laws
regional water services provider
external agencies providing raw water
water resources sector
water resource supply contracts
operational responsibility for water services provision
nn Institutional framework water and sanitation
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Local government is the responsible authority
Since water and sanitation services are the responsibility of local government, the municipality is the water services authority
This means it has executive responsibility for
ensuring access
water services development planning
making bylaws and regulating
fulfilling the provider functions itself or entering into a contract / partnership with a water services provider
The water services authority is thus responsible for all the governance functions and it cannot delegate this responsibility to any other entity
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Service provision options The Water Services Act and the Local Government Systems Act
recognise that a municipality might not have the necessary capacity to provide the service to consumers
Therefore the authority can contract a service provider to fulfill the actual provision of services, including operations and maintenance, customer relations, revenue collection, administrative and financial management
A service provider can be:
Another municipality
A water board
A private entity
A public entity
A community based organisation
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Partnerships for provision One of the key reasons for differentiating between the authority
and the provider functions was to promote partnerships between authorities and providers
Another reason was to ensure good governance through promoting the role of the authority
Contract WSA - WSP
Contract WSA - WSP
WSA = municipality who contracts a water services provider
Enabling Environment for Sanitation in South Africa22
Enabling Environment
Sector collaboration and coordination
Sector collaboration
A major part of the enabling environment for water and sanitation in South Africa is the sector wide approach (SWAp) called Masibambane – meaning let’s work together
Purpose: to strengthen the water services sector; to support local government; to improve the quality of life of poor communities by improving their access to basic water supply and sanitation services
It is sector support programme led by the Department of Water Affairs and involving all players in the water sector
Collaborative structures were established at national and provincial level and in some cases at local level as well
A strong culture of consultation and finding consensus developed in the sector. Sector collaboration is the hallmark of Masibambane
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The SWAp
• The SWAp started in 2001 for a 3 year period as a pilot
– It focused on providing support to water and sanitation services only (i.e. not water resources)
– It targeted national and three of the nine provinces
• In 2004 it expanded to the entire country
• In 2007 it expanded further to include water resources
• The move towards a full sector wide approach in the sector was therefore incremental (not the entire country and not the entire water sector to start off with)
• The original budget was Euro 334 million – the final budget was Euro 4145 (with 82% from SA government and 18% provided by donors)
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Main achievements of the SWAp Strategic Framework for Water and Sanitation approved by Cabinet
National sanitation policy finalised and approved by cabinet
Joint policy on transfer of water and sanitation services finalised and implemented
National water and sanitation sector leadership group established
Provincial Sector Forums established in each region
Sector-wide concept rolled out to other provinces
Nearly 3 Million people served with water infrastructure
1 Million people served with sanitation infrastructure
Single planning, monitoring and reporting systems established through the spheres of government
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Achievements
• Joint support strategy developed and implemented across the sector
• Improved water and sanitation governance at the local level
• Greater collaboration as a single sector with co-ordination and joint decision making at national and provincial level
• Increased access to technical expertise
• Gender, appropriate technology, HIV/AIDS, the environment and civil society are addressed as part of service delivery from planning to service provision
• Water and sanitation plans are developed at local, provincial and national level
• Budgets and implementation plans are aligned to the policy objectives and targets
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Some areas of concern
• Sustainability of services, particularly operations and maintenance
• Success in decentralisation in some areas but not others
• Very time consuming getting all stakeholders on board
• Varying success with regards to efficiency and effectiveness
• Quality of sanitation services
• Monitoring system
• Dependency on consulting support
• Sustainability of the programme itself (dependent upon high level of political support – which changes over time)
Enabling Environment for Sanitation in South Africa28
Enabling Environment
Financial Framework
Financial Framework• Sanitation policies, targets and ongoing services are supported by the
financial framework where:
• The Municipal Infrastructure Grant (MIG) subsidises sanitation infrastructure for the poor
• The Equitable Share (ES) subsidises the operation and maintenance costs of sanitation services for the poor (free basic sanitation services)
• The Local Government Capacity Support Grant provides institutional support to municipalities to fulfil both their authority and provider functions
• Financial support is also provided against municipal action plans from Masibambane to ensure access to technical support and training
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Enabling Environment for Sanitation in South Africa30
Enabling Environment
Regulation
Regulatory framework – local regulation
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• determines local policies
• determines local standards
• promulgates by-laws
• plans to provide services
• determines investments
• sets tariffs
• manages contracts
water services authority provides services itself in conformity with
local policies, by-laws, standardsand business plan
external water services provider
contracts with other organisations
external water services provider provides service in conformity with
contract and business plan
water services authority
internal water services provider
local regulator of water services
sameorganisation
Regulation is a key part of the enabling environment
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Drinking water quality and waste water management certification
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• WSA’s receive Blue Drop Status (Drinking Water Quality) or Green Drop Status (Waste Water Management) if they comply with legislation and best practice requirements
• The onus is on WSAs to provide DWA with information
• Incentive system
• Blue drop or Green drop status provides citizen’s with information on the confidence the Department of Water Affairs has in the WSA to manage drinking water quality and waste water services
• Increasingly comprehensive and stringent criteria will be
introduced to facilitate a phased, continuous improvement
approach
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Constitutional, policy, legislationConstitutional, policy, legislation
Institutional FrameworkInstitutional Framework
Regulatory FrameworkRegulatory Framework
Financial FrameworkFinancial
FrameworkCollaboration and
coodinationCollaboration and
coodination
Enabling environment
Flush in South Africa - 2010
Presentation Title35
Main reason for providing toilets is about dignity …………
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Makhaza Toilets: An Affront To Human Dignity and a Threat to Safety & Security
Western Cape ‘toilet wars’ escalate with more mudslingin • 30 June 2010, 17:58:41 (South Africa)
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PROJECT POO
…. understanding the relationship between people and the toilet
Getting it right …
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“Flies and maggots are making my life a misery”
“The smell is bad and it looks bad.”
“The toilets are not private enough. Doors break easily, people steal
them and thugs hide inside because they do not lock.”
“It is too dark.”
“Toilets are too close to the house. We cannot cook freely and maggots creep inside.”
“Toilets fill too quickly. There are no chemicals to make them empty.”
“They don’t flush!”
“My dignity is compromised.”
The toilet, as a space, means many things to many people:
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Freedom, comfort, relaxation, smoking and just being oneself
Private space to be alone with thoughts
Prayer, meditation, reflection, being at peace with yourself
It is about escaping for a quiet moment to read or dream
Dodging employer, parent, teacher, guardian…
Represents your right to life and ensures personal dignity and pride
Prevents the spread of disease and is critical for society
Based on the research …
• Ethekwini made fundamental changes to their sanitation programme
• Shifted to urine diversion
• Overcame the pit emptying problems association with VIP
• Undertook awareness programmes on the benefits of the UD technology and gained community buy in
• 75% to 89% are now managing to empty the toilets themselves and have taken ownership of the toilets
• ….toilets are about dignity, status and privacy. They play a critical role - for example praying, resting, reading, relaxing, and enjoying time alone
• Success was about understanding this relationship, reaching the community, determining what needed to be communicated, and how best this should be done, as well as and follow up
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