Meeting with Charles and Johnson (8/1/2007)waterfund.go.ke/toolkit/Downloads/2. Evaluation...

Devolution Trust Fund

Evaluation of the Quality of Implementation of the Projects Financed by the Devolution Trust Fund (DTF) under the First Call for Proposals

May 2008

Table of Contents

1 Introduction....................................................................................................41.1 Methodology.............................................................................................41.2 Outputs of the Evaluation.........................................................................51.3 Organisation of the Report.......................................................................6

Part I: PLANNING OF DTF-FUNDED PROJECTS............................................72 Preparation of the Project Proposal...............................................................7

2.1 Main Findings...........................................................................................72.2 Recommendations...................................................................................72.3 Remarks Related to the Recommendations.............................................8

3 DTF Projects: Financial Ceilings and AccepTable Project Components........93.1 Main Findings...........................................................................................93.2 Remarks Related to the Main Findings....................................................93.3 Recommendations.................................................................................103.4 Remarks Related to the Recommendations...........................................11

4 Collection and Use of Data...........................................................................124.1 Main Findings.........................................................................................124.2 Remarks Related to the Main Findings..................................................134.3 Recommendations.................................................................................134.4 Remarks Related to the Recommendations...........................................14

Part II: IMPLEMENTATION OF DTF-FUNDED PROJECTS..........................155 Quality of Technical Works...........................................................................15

5.1 Main Findings.........................................................................................155.2 Recommendations and Proposed Solutions..........................................175.3 Remarks Concerning the Recommendations.........................................18

GTZ/DTF Evaluation of DTF-Funded Projects May 2008

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6 Organisation and Duration of Technical Works............................................196.1 Main Findings.........................................................................................19

6.1.1 Working with Contractors.................................................................196.1.2 Involvement of CU staff...................................................................196.1.3 Delays..............................................................................................20

6.2 Recommendations.................................................................................206.2.1 Working with Contractors.................................................................206.2.2 Involvement of CU Staff...................................................................21

7 Financial Management of DTF-Funded Projects..........................................227.1 Main Findings and Recommendations...................................................227.2 Financial Management and Accountability.............................................22

8 Training of Vendors......................................................................................239 The Taskforce Concept................................................................................24

9.1 Main Findings and Recommendations...................................................249.2 Remarks Concerning the Recommendations.........................................259.3 The Peri-Urban Departments/Units........................................................26

9.3.1 Achievements..................................................................................269.3.2 DTF-Funded Projects: Progress and Capacity Building..................269.3.3 Impact of Internal Reorganisation and Staff Transfers....................26

9.4 The DTF and its Framework Consultants...............................................279.5 Community Participation: Main Findings and Recommendations..........28

Part III: OPERATION OF DTF-FUNDED PROJECTS.....................................2910 Operational and Financial Management of the Kiosk Schemes................29

10.1 Main Findings and Recommendations................................................2910.2 Remarks Concerning the Main Findings and Recommendations.......3110.3 Operation of the Kiosks and Vendor Incomes.....................................3110.4 Remark Concerning the Main Findings and Recommendations.........32

11 Inspections and Technical Operation........................................................3212 The Customer Perspective........................................................................33

12.1 General Awareness of DTF-Funded Projects.....................................3312.2 Outcomes of the Customer Satisfaction (Household) Survey.............33

12.2.1 Kiosks and other Sources of Water..............................................3312.2.2 Reasons Why Households are not using Kiosks.........................3412.2.3 Impact of Distance........................................................................3412.2.4 Hygienic Condition of the Kiosks..................................................3512.2.5 Quality of the Service Provided by the Vendor.............................35

DTF/GTZ Evaluation of DTF-Funded Projects May 2008

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12.2.6 Daily Per Capita Consumption Levels..........................................3612.3 Recommendations based upon the Household Survey......................37

PART IV: GENERAL OBSERVATIONS AND RECOMMENDATIONS...........3813 Financing Water Supply and Sanitation.....................................................38

13.1 Shifting Emphasis...............................................................................3813.2 Piloting Pre-paid Water Meters...........................................................3913.3 Operation of the Kiosks: Quality of Maintenance................................39

14 After Commissioning: More Emphasis on Operation.................................3914.1 Not Enough Focus on Project Operation............................................3914.2 Recommendation: The Operations Consultant...................................40

14.2.1 Need for a Focus on Operation and Sustainability.......................4014.2.2 Timing of Support provided by the Operations Consultants.........4014.2.3 Tasks of the Operations Consultant.............................................40

14.3 Recommendation: DTF Facilitating Exchanges between CUs............4115 Technical Standards and Quality of Works................................................42

15.1 Water Supply: Adapted and Innovative Solutions...............................4215.2 Development of Prefabricated Kiosks.................................................42

15.2.1 Disadvantages of Onsite Construction of Kiosks..........................4215.2.2 Advantages of Prefabricated Kiosks.............................................4315.2.3 Disadvantages of Prefabricated Kiosks........................................4315.2.4 Technical Requirements...............................................................4415.2.5 Proposed Approach......................................................................4415.2.6 Various Technical Options............................................................4515.2.7 Transport, Assembly and Safety..................................................4615.2.8 More Prefab?................................................................................4615.2.9 Evaluation of the Prefabricated Kiosks.........................................46

15.3 Towards a Product-Oriented Approach...............................................4616 Outputs of the Evaluations Future Evaluations..........................................48

16.1 Facilitating Future Evaluations............................................................4816.2 Toolkit for peri-Urban Water Supply: Version 1.2................................4816.3 Use of Outputs....................................................................................48

Glossary and List of Abbreviations......................................................................48Bibliography.........................................................................................................49


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1

Devolution Trust Fund

Evaluation of the Quality of Implementation of the Projects Financed by the Devolution Trust Fund (DTF) under the First Call for Proposals

May 2008

2 Introduction

2.1 MethodologyA number of evaluation tools were developed by the Consultants for the evaluation of the first call for proposals:A set of questionnaires were designed to guide interviews with:

DTF staff. The Social Consultants. A Technical Consultant. Staff of the Peri-Urban Units/Departments of the Commercial Utilities

(CUs). Management of the Commercial Utilities (CUs). Members of the project Taskforces. Water Vendors. Residents of the project areas.

A set of data collection/recording tools were developed to collect data on: The quality of the works done, including of hidden structures. The management of DTF funds by the CU (accounting records, etc.). The quality of preventive and curative maintenance of the created

installations. The quality of kiosk management (Adherence to the standards set by the

“Toolkit for Peri-Urban Water Supply - Version 1.0”).A customer survey household questionnaire (included in the Toolkit for Peri-Urban Water Supply) was used to interview residents (households) in order to establish the impact of the DTF-funded projects. All data collection/recording tools were, at the request of the DTF, tested in Ndola in close cooperation with the Kafubu Water and Sewerage Company.


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Table 1.1 shows the interviews that were conducted by the Consultants.

Table 1.1: Interviews conducted

No. Respondent No.

1 Social Consultants interviewed 3

2 Technical Consultants interviewed 1

3 DTF-funded projects (1st call) visited : 8 (all projects)

4 Number of CU management interviewed: 8 (all projects)

5 Staff of Peri-Urban Units interviewed: 8 (all projects)

6 Staff of Billing Sections/Departments interviewed: 4

7 Number of Taskforces interviewed: 6

8 Number of Water Vendors interviewed: 19

9 Number of kiosks visited 23

10 Number of households interviewed: 450 (in 6 project areas)

In addition a large number of informal interviews were held with DTF and GTZ staff. 1

The household survey was carried out in 6 project areas. A total of 450 households were interviewed. The sample size was determined by the population of the area or by the number of potential beneficiaries (potential kiosk customers) and ranged between 10 and 100 households. The interviews were carried out by interviewers who were recruited and trained by the Consultants.

2.2 Outputs of the EvaluationIn order to keep the report concise all outputs of the evaluation are presented on a DVD-Rom disk. This DVD contains the following folders:

This Evaluation Report. The questionnaires and data recording tools that were developed by the

Consultants for the evaluation. The filled in data recording tools (this enables the DTF to review the

evaluation of each individual project). The picture folder contains pictures taken in the various project areas. The findings obtained with the customer survey.

2.3 Organisation of the ReportThis Evaluation Report consists of four (4) parts:

1 The Consultants would like to thank the DTF, the DTF Consultants, GTZ, the CUs, Vendors and residents for the assistance and support provided during the assignment.


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PART I: Planning of DTF-Funded Projects PART II: Implementation of DTF-Funded Projects PART III: Operation of DTF-Funded Projects Part IV: General Observations and Recommendations

PART I: PLANNING OF DTF-FUNDED PROJECTS consists of the following chapters:

Chapter 2: Preparation of the Project Proposal Chapter 3: Financial Ceilings and AccepTable Project Components Chapter 4: Collection and Use of Data

PART II: IMPLEMENTATION OF DTF-FUNDED PROJECTS consists of the following chapters:

Chapter 5: Quality of Technical Works Chapter 6: Organisation and Duration of Technical Works Chapter 7: Financial Management of DTF-Funded Projects Chapter 8: Training of Vendors Chapter 9: The Taskforce Concept

PART III: OPERATION OF DTF-FUNDED PROJECTS consists of the following chapters:

Chapter 10: Operational & Financial Management of the Kiosk Schemes Chapter 11: Inspections and Technical Operation Chapter 12: The Customer Perspective

PART IV: GENERAL OBSERVATIONS AND RECOMMENDATIONS consists of the following chapters:

Chapter 13: Financing Water Supply and Sanitation Chapter 14: After Commissioning: More Emphasis Needed on Operation Chapter 15: Technical Standards and Quality of Works Chapter 16: Outputs of the Evaluations Future Evaluations

This report also contains a glossary, a list of abbreviations and a bibliography.Each chapter presents the main findings and a set of recommendations based upon these findings.

Part I: PLANNING OF DTF-FUNDED PROJECTSThe evaluation of the planning of DTF-funded projects focuses on the following activities:

Preparation of the project proposal (Chapter 2).


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Financial ceilings and the activities and infrastructure that can or should be financed by the DTF (Chapter 3).

The collection and use of data (chapter 4).

3 Preparation of the Project Proposal

3.1 Main FindingsTable 2.1 shows the main findings relating to the preparation of project proposals for the DTF.

Table 2.1: Proposal preparation (main findings)

No. Finding and observations Observation made by Remark

1 Proposals are not based upon proper needs assessment and community consultation

SC (*) WSTF (Kenya) has observed the same problem

2 Practically no interaction with the community before the commencement of the project

SC, LWSC, KWSC, Consultants

-

3 Proposals do not contain an area map (to scale) showing the existing and the planned network

TC -

4 CUs face problems preparing a budget for the social component of the project

SC, LWSC, Consultants

Water Service Providers (WSPs) in Kenya face the same problem

5 Not enough funds are allocated for social/training activities

SC, LWSC, Consultants

-

*): SC = Social Consultant; TC = Technical Consultant; WSTF = Water Services Trust Fund; KWSC = Kafubu Water and Sewerage Company; LWSC = Lusaka Water and Sewerage Company (See List of Abbreviations)

3.2 RecommendationsTable 2.2 shows the main recommendations relating to the preparation of project proposals for the DTF.

Table 2.2: Recommendations concerning the preparation of proposals

No. Recommendation Recommendation made by

Remark


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1 DTF should develop and introduce a needs assessment/community consultation concept

SC, Consultants Such a concept is being developed by WSTF (Kenya)

2 CU should organize group discussion with RDC and residents to assess needs

SC, Consultants -

3 Proposals have to contain an area map (to scale) showing the existing and the planned network

TC, Consultants -

4 The DTF should check and double check if this map is correct. This requires involvement of the Technical Consultant before proposal approval

TC -

5 The DTF Consultants need to be in touch with the Company during the writing of the proposal.

TC, SC, LWSC, Consultants

DTF support will prevent revisions

6 The results of the needs assessment/community consultation have to be included in the Proposal

Consultants Proposal should include an area data sheet

7 DTF has to assess whether the Application Form needs to be adapted to accommodate needs assessment/community consultation

Consultants -

8 DTF should organise a workshop with the SCs & TCs to discuss the recommendations (see 1-7)

SC, TC, Consultants

-

9 DTF should prepare a guideline for the preparation of budget for the social component

Consultants Mentioning the various activities and cost per activity

10 The guideline could include a key (ZMK/kiosk) for the entire social component or for a specific activity Many community activities are organised at kiosk catchment zone level

Consultants Activities: public meeting, megaphone announcement, Vendor training, etc.

11 DTF-funded projects should not be based upon political considerations, but upon a careful assessment of the market for treated water

SWSC (with regard to Sinaseze)

The number of kiosks should reflect expected demand for water, Vendor incomes, etc.

3.3 Remarks Related to the RecommendationsWith regard to the recommendations presented in Table 2.2, the following remarks can be made:

Needs assessment and community consultation : this exercise should consist of the following steps: problem identification >> problem analysis >> identifying solutions >> selecting options >> planning for new facilities, community participation and behaviour change (proposed by the Social Consultant).

A group discussion organized by the RDC, a few residents living in various part of the area and the CU can be sufficient to assess needs.

Needs assessment and community consultation : The needs assessment should also be based upon quantitative data and indicators: population size, alternative sources of water.


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The DTF Consultant should be involved in the assessment of the demand for kiosk water (which is used to assess the number of kiosks required to adequately meet current and future demand)

The CU should collect information on the number of connections to be metered or disconnected (illegal connections) (this may have an impact upon the number of kiosks required).

CUs should include more funds for community mobilisation and sensitisation activities in the project proposal (especially in the low-cost areas where the resistance against kiosk system can be expected).

The budget for the social component should include allowances for Taskforce members, drama group members, etc.

4 DTF Projects: Financial Ceilings and AccepTable Project Components

4.1 Main FindingsTable 3.1 shows the main findings relating to the DTF ‘ceiling’ and the project components which can or should be financed by the Fund.

Table 3.1: Ceiling and project components

No. Finding and observations Made by Remark

1 Many CUs lack a strong presence in the peri-urban areas

Consultants No presence due to centralisation and (no office no staff responsible for a specific area)

2 Some CUs do not have a Peri-Urban Unit (or a similar unit/department)

Consultants -

3 DTF does not provide sufficient information on (1) the thresholds and ceilings and (2) the activities, items and infrastructure which it can finance

KWSC, LWSC, Consultants

-

4 The DTF ceiling forces the CUs to trim down their proposal by leaving out certain infrastructure

LWSC, KWSC, TC, Consultants

Applies mainly to large peri-urban areas and low-cost areas

5 Some CUs are able to carry out all technical works in-house

KWSC -

4.2 Remarks Related to the Main Findings With regard to the main findings presented in Table 3.1, the following remarks can be made:

According to a staff member of the peri-urban department of the LWSC: “At the end of a DTF project you remain with gaps. ….To make our proposal for John Laing fit the DTF ceiling, we divided our project into 3 portions and the Company decided to finance part of the cost (including


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the borehole, OM/HS). Initially we planned to use DTF funds to lay the main pipe from the pumping station to John Laing and to place a storage tank. But the DTF told us; ‘You need to construct kiosks so people actually can access safe water.’ So they suggested reducing the size of the tank. But the capacity is not sufficient. You see, the technical viability is sacrificed as a result of the financial ceiling. Many technical compromises were made in order to make the budget fit the ceiling. The network is not according to standard as we had to take out a number of valves. This creates operational inefficiencies. We have to shut down the whole area in case of a leakage repair. But I must say we were all under a lot of pressure, political pressure and social pressure, to get this project done. Most other compounds are easier and require fewer investments.”

According to the CEO of KWSC: “I think we need more information on financial thresholds and on what the DTF can and cannot finance. The DTF has cold feet when we ask them to finance the rehabilitation of our water tank which supplies peri-urban areas as well. …. The DTF insists on the use of contractors, but we can do many things in-house. The DTF argues that preferably the CU should work with an organisation which has construction as its core business. But some CUs have the capacity to carry out construction works.”

4.3 RecommendationsTable 3.2 shows the main recommendations relating to the DTF ‘ceiling’ and the components which can or should be financed by the Fund.

Table 3.2: Recommendations concerning the DTF ceiling and fundable project components


Remark

1 DTF should encourage and support the establishment of Peri-Urban Units

Consultants Computers, vehicles, furniture (if included in proposal)

2 DTF should finance measures and goods that can result in the CUs (Peri-Urban Units) establishing a stronger presence in the low income areas

Consultants Rehabilitation of CU office in project area, computer, furniture

3 DTF needs to provide more information on the thresholds and ceilings and activities and infrastructure which it can finance

LWSC, KWSC -

4 DTF should consider developing a concept for staged financing of projects that require large investments. Partial coverage of an area is also an option

Consultants Partial coverage is an option provided the scheme can be extended to cover the entire low income area

Table 3.2 (cont.) Recommendations concerning the DTF ceiling and fundable project components


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5 Large-scale infrastructural works/projects cannot and should not be financed by the DTF. The DTF should, however, be prepared to finance kiosk schemes which will be served through these works/projects

Consultants DTF has more expertise and a more holistic approach than many Consultants when it comes to water supply in low income areas

6 DTF should consider the rehabilitation of kiosks which were financed/constructed by NGOs/Cooperating Partners and which were/are managed by communities or by the CU (for example, the KfW-funded kiosks in Chipata)

Consultants Provided these schemes are operated by the CU and (therefore) regulated by NWASCO!

7 CUs should have the obligation to “top up” if (unforeseen) additional works are required

KWSC, Consultant -

8 Gradually the DTF will (have to) shift towards financing WSS projects in (planned) low-cost areas.

KWSC, LWSC, Consultants

The DTF should only support rehabilitation projects, if per capita costs are lower than ZMK 150,000

9 Metering should remain part of the DTF approach LWSC, SWSC, KWSC, NWWSSC, Consultants

Metering of unmetered connections in the project area and (if necessary) in a buffer zone

10 The DTF should fund activities which focus upon the long-term sustainability of the projects it is funding

LWSC, KWSC, Consultants

Activities such as the services of an Operations Consultant (see Chapter 14)

4.4 Remarks Related to the RecommendationsWith regard to the recommendations presented in Table 3.2, the following remarks can be made:

Although a large number of peri-urban areas and residents still lack adequate and sustainable access to safe water, the DTF should also consider other challenges. In the foreseeable future the DTF is likely to receive a large number of proposals targeting the low-cost areas. The WSS situation of these areas is often complex and adequate solutions tend to be more costly (higher per capita investment costs) compared to peri-urban WSS. The data stored in the Aquatis Information System and the experience obtained with the DTF pilot projects, allow us to describe the WSS situation in low-cost areas as follows:

o Most plots in low-cost areas have ablution blocks, yard taps and/or indoor plumbing.

o Lack of maintenance has resulted in dilapidated WSS infrastructure.

o Many low-cost areas no longer receive piped water and residents depend on alternative sources (yard wells, springs, rainwater, etc.).


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o In many low-cost areas toilets and sewers, although in poor technical and hygienic condition, are still used. Toilets are flushed once or twice a day.

o Most low-cost areas can be classified as low income areas.o Although low-cost areas were well planned and constructed (most

of them between 1950 and 1975), the construction of cabins within existing yard has resulted in a process of peri-urbanisation.

o The construction of cabins has had an impact upon water demand and upon the accessibility of the installed WSS infrastructure as some cabins were built in service lanes.

o Many residents are renting their accommodation (especially families living in cabins).

o Many residents have high expectations when it comes to WSS service levels.

o Kiosks are perceived as an effort to downgrade the area. The DTF can only finance feasible rehabilitation programmes. It is the Zambian Government (MLGH) which has to develop a policy and a strategy aimed at targeting the low-cost areas. The DTF should also consider funding kiosk schemes rehabilitation programmes. Many kiosk schemes constructed by CUs and NGOs are in poor technical and hygienic condition and the CUs lack the financial resources to carry out proper rehabilitations. In order to ensure that the populations served by these kiosks will continue to access safe water, the rehabilitation of these schemes is necessary.

5 Collection and Use of Data

5.1 Main FindingsTable 4.1 shows the main findings relating to the collection and use of data.

Table 4.1: Collection and use of data


1 Most CUs use data stored in Aquatis to prepare their proposals

Consultants -

2 CUs also make use of other data sources (CSO, Council, RDC)

Consultants No problem as long as data is reliable

3 No data is collected by the CU at community level on expressed needs

Consultants -


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Table 4.1 (cont.): Collection and use of data


4 Data on alternative sources is not taken into consideration when calculating the number of kiosk required

Consultants -

5 CUs are not collecting data for the NIS using the tools stored in the Toolkit for Peri-Urban Water Supply

Consultants -

6 Updated area data is not stored in a systematic way at national level)

Consultants -

7 Some of the population area data stored in Aquatis are not correct

SC, Consultants Population data on two areas in Siavonga is not correct

5.2 Remarks Related to the Main Findings With regard to the main findings presented in Table 4.1, the following remarks can be made:

Data should be collected for the preparation of the project proposal. Data on population, existing sources of safe and unsafe water (number

distance, ownership and right of access, informal tariffs) are important.

5.3 RecommendationsTable 4.2 shows the main recommendations relating to the collection and use of data by CUs.

Table 4.2: Recommendations concerning the collection and use of data by CUs


Remark

1 The DTF should liaise with NWASCO regarding the collection of data for the NIS. NIS data should be used by the CUs to prepare their proposals

Consultant -

2 NIS data should be used to update Aquatis Consultant Requires the input of the NWASCO/DTF Database Expert

3 A Social Consultant can assist the CU in identifying potential project areas (using Aquatis and the knowledge of local conditions CU staff members have)

SC, LWSC, Consultant

A needs assessment concept is being developed by the WSTF

4 If deemed necessary, a Social Consultant can assist the CU with the collection or updating of data on potential project areas

SC, LWSC, Consultant

-


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5.4 Remarks Related to the Recommendations There is need for the CU to go to the field in order to collect/update,

together with residents and the RDC, data and to assess the need for a water supply or sanitation project.

According to two Social Consultants, CU staff sees no point in the Social Consultant undertaking a data collection exercise with them if they already undertook collected data before writing their proposal. They feel looked down upon and this has been one of the causes of conflict between the CU and the Consultants. The Consultants, therefore, recommend to involve the Social Consultants in the initial needs assessment/data collection. Data collection carried out before proposal writing improves the quality of proposals, reduces (Framework Consultant - CU) tensions and shortens the project implementation period. The Social Consultant should assist the CU is designing a well-structured questionnaire which allows for the easy analysis of the collected information. This questionnaire should focus upon: need for a water supply intervention, expected demand for treated water, current public health situation, sensitisation and education requirements, existing constraints and required technical works (number of kiosks). The information collected and the data stored in Aquatis can be used during the First Public Meeting to ascertain the findings from the data collection exercises (proposed by Nora Chansa).

The DTF should consider the possibility to make Aquatis data available to Google Earth/Google Maps.

Google Earth is a very useful tool which is already used by some CUs as it facilitates the allocation of tasks and problem identification and as it can assist in solving logistical problems. WSTF Kenya has already met the Google team to discuss the possibility of storing baseline data on low income areas in Google Earth/Maps.


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Part II: IMPLEMENTATION OF DTF-FUNDED PROJECTSThe evaluation of the implementation of the DTF-funded projects focuses on:

Quality of technical works (Chapter 5) Organisation and duration of technical works (Chapter 6) Management of project funds (Chapter 7) Training of Vendors (Chapter 8) The Taskforce concept (Chapter 9)

6 Quality of Technical Works

6.1 Main FindingsTable 5.1 presents the main findings with regard to the quality of the technical works. A distinction is made between:

Shortcomings in technical design. Quality of the materials used. Quality of construction work.

Table 5.1: Shortcomings in technical design and quality of materials used

No. Finding and observations Observed at Remark

Kiosk

1 Quality of the drawings: Not enough detail A number of (small) setting mistakes Size of drawing difficult to use in peri-

urban areas (wind, no table)

All CUsMany CUs made this observationResulting in kiosks not constructed according to drawing

2 Poorly designed drain and drain cover Most CUs Resulting in blocked drains

3 Concrete mix not specified All Resulting in poor quality slabs, etc.

4 Poor quality taps!!! All CUs, TC, SC, Consultants

DTF should finally address the is issue, once and for all

5 Some kiosks equipped with 2 taps only NWSC DTF should not accept deviations

6 Poor quality valves All CUs DTF should never accept the use of poor quality materials 7 Use of old valves KWSC

8 Drain covers not secured KWSC Resulting in blocked drains

9 Poor quality hinges Some CUs Facilitates theft and vandalism

10 Roof slope insufficient /use of water proof cement not specified All kiosks

Resulting in leaking roofs 11 No bitumen on roofs Most CUs


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Table 5.1 (cont.): Shortcomings in technical design and quality of materials used


Distribution network12 Pipes are not laid at the right depth Most CUs Leaking pipes , risk of vandalism

13 Valves/fire hydrants are not properly secured Most CUs Many unsecured valves

14 No bulk meters installed Most CUs Resulting in operational problems

Table 5.2: Shortcomings in construction works


Kiosk 1 Leaking roof Most CUs No use of waterproof cement & bitumen

2 Cracks in roof, walls NWWSSC Poor cement mix and workmanship

3 Very poor quality paint work Most CUs Uncured concrete is being painted, no primer is used

4 Leaking internal plumbing NWWSSC No reason for poor quality work

5 Poor quality hinges Few CUs Facilitates vandalism and theft

6 Rough casting under taps (fetching bay) KWSC Difficult to clean, unhygienic

7 Fetching bay is too low (not to drawing) NWSC Not user friendly

8 Cover of meter box is too heavy to lift SWSC (only) Sinaseze open kiosk

9 Some kiosks equipped with 2 taps only NWSC Why only 2?

10 Poorly constructed fetching bay NWSC Poor concrete mix

11 Grooves are missing or poorly constructed KWSC, MWSC Resulting in poor drainage and unhygienic kiosks

12 No angle bars NWSC Why did the Technical Consultants accept this?

13 Poorly constructed slab (wrong mix) NWSC Poor concrete mix/thin slab

14 Poorly constructed drain cover and drains KWSC Drain pipe not accessible

15 Too many surfaced are painted Most CUs Kiosk looks dirty and poorly maintained

16 Poorly quality internal paint work Plastic (emulsion) paint should be used

17 Landscaping is not done properly Many CUs No attention given to impact of erosion and run-off water

Distribution network18 Leaking pipes (network) Many CUs Poor workmanship

19 Pipe depth is insufficient Most CUs Lack of standards/don’t care attitude

20 Valves not properly secured Many CUs Lack of standards

21 Insufficient number of valves installed Most CUs CUs try to remain under the financial ceiling 22 No bulk meters installed Most CUs


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6.2 Recommendations and Proposed SolutionsTable 5.3 show the recommendations and proposed solutions related to the (quality of) technical works. A distinction is made between the kiosk and the network.

Table 5.3: Recommendations concerning the quality of technical works


Remark

Kiosks1 DTF should improve the quality of technical

monitoring. Deviation from drawings and poor workmanship are unaccepTable

TC, SC, Consultants

Technical Consultants should be more critical and always present during critical works

2 DTF should clearly specify concrete mix for each part of the kiosk (walls, slab, fetching pillars, etc.)

TC, SC, Consultants

Quality of concrete works is often unaccepTable

3 DTF should improve the kiosk drawing. This should include an increase in the roof slope

TC, SC, Consultants

Increase amount of details and show clearly the sequence of activities/works

4 DTF should introduce pre-fabricated kiosks Consultants Concept being developed by WSTF, Kenya

5 DTF should consider equipping kiosks with overhead tanks in areas with irregular supply

Consultants Drawings can be obtained from WSTF, Kenya

6 CUs which have the technical capacity should be allowed to construct kiosks in-house

KWSC, Consultants

Encourage capacity building at CU level

7 DTF should pilot pre-paid meters in low-income areas (kiosks and domestic connections)

Consultants Concept being implemented in Kampala, Uganda2

Network8 DTF should prescribe pipe depths, materials and

pipe connection standardsTC, Consultants Network extensions are not of

good quality

9 DTF should develop technical standards for valve chambers and fire hydrants

Consultants DTF could contribute to overall standardization

10 Valves and fire hydrants should be properly secured

TC, Consultants DTF could contribute to overall standardization

11 Installations (and inclusion in the budget) of bulk meters should be encouraged

Consultants DTF could contribute to overall standardization

All works (kiosk, network, etc.)12 The CU should procure (and include in the project

budget) the services of a qualified ForemanTC, SC, Consultant

-

13 The Technical Consultant and the Foreman should not be local persons

TC, SC Emphasis of a local TC: wanting to keep a good relationship with a

2 DTF could contact Kent SA, Beller Consult or National Water and Sewerage Corporation


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potential client/a friend, etc.

6.3 Remarks Concerning the RecommendationsThe following remarks can be made with regard to the recommendations presented in Table 5.3.

Need for technical standards :

Although it is the CU which is implementing the DTF-funded project and although the community is involved, the DTF can and should insist that technical/quality standards are met; that kiosks are constructed according to drawing and that only high quality materials are used. This is in the interest of all stakeholders; the CU, the Vendors, customers and the DTF. Poor workmanship, the use cheap materials, theft of cement (etc.) indicate that individual objectives are considered to be more important.

Quality of the drawings : It will be necessary to improve the quality of the drawings by:

o Increasing the amount of detail (door frame, window frame, protection and installation of the taps, internal plumbing, installation of the water meter, drain grooves, etc.).

o Linking the drawings to (1) a sequence of activities/works and (2) the Bill of Quantities.

o Specify concrete mixes for each part of the kiosk.

The DTF should ensure that the Technical Consultants improve the quality of their monitoring work!!

CUs should be told to improve the quality of supervision and/or of construction work. Improved monitoring and supervision should result in:

o Kiosks being constructed according to drawing.

o High quality works (especially cement works), is improved.

Companies should not work with a local Foreman and with a local Technical Consultant. One of the Social Consultants described the disadvantage of having a local team as follows:

o “When I was doing the project in Chavuma, the Technical Consultant asked me once: ‘Mr. Manda can you talk with these people here (CU staff, O.M./H.S.). You know Mr. Manda I live here and we stay together here, it is difficult for me to put pressure on them.’’’

The DTF should consider having civil works included in the list of materials.

Observation :


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Nkana Water and Sewerage Company did not install a number of valves as the company feared these items might get vandalised or stolen.

Observation :

In Kenya the WSTF will place all kiosk meters inside the kiosk in a lockable meter box. This is deemed necessary as Vendors are known to tamper with the meter. Is this a development we may see in Zambia as well?

Question for the DTF :

Are all discrepancies between approved proposal and budget and the constructed infrastructure/installation accounted for? Do the CUs offer explanations if they install used valves?

7 Organisation and Duration of Technical Works

7.1 Main Findings

7.1.1 Working with Contractors Table 6.1 presents the main findings with regard to the (procurement of) services provided by Contractors.

Table 6.1: Working with contractors

No. Finding and observations Observed by Remark

1 Contractors do not prepare their bids on the basis of a DTF bidding document

TC -

2 Some Contractors do not know how to price TC -

3 Some CUs lack the capacity to procure the service of a Contractor

TC Procurement guidelines issued by the DT are not used

4 The CUs are not supervising the Contractor in a professional manner

TC Contractors are given to much freedom (room for manoeuvre)

5 Contractors face problems reading the drawings TC, Consultant New concept being developed by WSTF, Kenya

6 Some Contractors lack technical expertise and qualified staff

TC Resulting in poorly constructed kiosks and deviation from the drawings


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7.1.2 Involvement of CU staff Table 6.2 focuses upon the involvement of CU staff during the implementation of the DTF-funded project.

Table 6.2: Involvement of CU staff

No. Finding and observations Observed by Remark

1 It was foreseen that the CU PM would be full time on the project

TC This never happened, mainly due to the duration of the project

2 CU management not being interested in the project TC, SC, PUU

7.1.3 Delays The DTF-funded projects are not only faced with serious shortcomings as far as the quality of technical works is concerned, but technical works also are the main cause of the long duration of projects. Delays are caused by several factors (see Table 6.3).

Table 6.3: Main causes of delays in construction works


1 Long procurement procedures and practices All CUs -

2 Delayed delivery of materials All CUs Main cause

3 Mobilisation of the Contractor All CUs -

4 Poor communication between CU and Contractor All CUs -

5 Rectifications needed due to poor quality works All CUs -

6 Team of the contractor lacking skills All CUs -

7 Contractor is working at a slow pace All CUs -

8 Poor supervision by the CU All CUs Main cause

9 Technical Consultant is a local person -

The delays have a negative impact upon: The social component (many activities are delayed and in some cases the

period between Vendor training and commissioning is too long.


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The perceptions residents have with regard to the project (It takes too long, another white elephant?).

The DTF project cycle >> overall DTF operation.

7.2 Recommendations

7.2.1 Working with Contractors Table 6.4 presents the main recommendations with regard to the (procurement of) services provided by Contractors.

Table 6.4: Working with Contractors

No. Recommendations Proposed by Remark

1 The DTF/CU should prepare a bidding document to be used by contractors

TC, Consultant -

2 The DTF should prepare detailed BoQs TC, Consultant Detailed BoQ can prevent variations

3 The CU should only procure the services of registered certified contractors

TC The National Council for Construction (NCC) has a list of certified and registered contractors

4 Bids should be evaluated by the DTF and the CUs (independently)

TC The “engineers estimate” is compare with the contractor’s bid

5 CU should be told to use DTF procurement guidelines. The DTF could include this topic in the next workshop with the CUs

TC, Consultant -

7.2.2 Involvement of CU Staff

Table 6.5 shows the recommendations with regard to the involvement of CU staff in DTF-funded projects.

Table 6.5: Involvement of CU staff

No. Recommendations Proposed by Remark

1 The DTF should consider signing a MoA with the CU which regulates the appointment and work of the Project Manager

TC -

2 The Project Manager should be appointed and facilitated for

TC -


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3 The DTF should encourage CU management to become more interested and involved in their projects

TC Sensitisation during workshops. NWASCO should be asked to point out to CU management that they have the obligation to serve all residents living within their service area


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8 Financial Management of DTF-Funded Projects

8.1 Main Findings and Recommendations Table 7.1 shows the main findings as well as the recommendations related to procurement and reporting.

Table 7.1: Procurement and reporting: main findings and recommendations

No. Findings Recommendations Proposed by

1 Procurement (by CUs))

1a A number of CUs have a Procurement Officer but according to the peri-urban Department of the LWSC: procurement takes too long and is rather cumbersome

Project Manager could procure project materials

TC

1b CUs should prepare a Procurement Plan which is linked to the Project Implementation Plan

TC

2 Reporting (by CUs)

2a Reporting is considered to be rather cumbersome by the CUs

Revise the format of the Progress Report in consultation with the framework Consultants (by a DTF Task Team)

Consultant

2b Progress Reports should contain a bar schedule which shows progress on the basis of planned activities, completed works, DTF disbursements and amounts spent

TC, Consultant

2c A distinction should be made between various types of activities/progress:

- Technical works- Social/training component- Financial management

TC, Consultant

8.2 Financial Management and AccountabilityTable 7.2 shows the main findings and recommendations with regard to financial management of DTF-funded projects and accountability.


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Table 7.2: Financial management and accountability


1 Need for proper accountability procedures

The DTF should prepare clear financial guidelines and standards for the entire sector CWSC

CWSC

2 Large variations between projects when it comes to:- The percentage of labour

cost- Budget for the social

component being a percentage of overall project budget

- Labour costs can assessed by the DTF and the CU on the basis of the labour requirements & costs per unit (kiosk, meter of pipe, etc.)

- The DT should consider calculating unit costs for activities that constitute the social component (unit cost for Vendor training, public meeting. These unit costs can be linked to the number of kiosks in order to estimate the total number of activities or participants

SC

3 CUs delay when remitting payment vouchers

- The DTF should consider a product-oriented approach. Instead linking disbursement to the submission of payment vouchers and reported progress, the DTF only monitors progress made and the quality of works/activities. This requires: Clear and detailed BoQs Carefully prepared unit cost-based budgets Careful monitoring by the Framework Consultants (is

DTF getting value for money?)

9 Training of VendorsTable 8.1 shows the main findings and recommendations related to the training of Vendors.

Table 8.1: Training of Vendors: findings and recommendations


1 Not all relevant CU staff are participating in the training of Vendors

All members of the Peri-Urban Unit and all relevant field staff (including the Kiosk Supervisor, meter reader, etc.) should participate

Consultant

2 Vendor training programme does not make use of latest health and hygiene education methods

Vendor training programme should include education/sensitization techniques such as “Johari’s Window”, “Story with a Gap”, etc.

SC

3 - Many Vendors are not selling groceries at their kiosk

- Vendor training programme does not focus upon the development of entrepreneurial skills

Training programme should focus more on the sale of groceries, the development of entrepreneurial skills

SC, Consultant, several PUUsDTF should consider the development of a rotating

credit and savings association (ROSCA) for Vendors

4 Vendors are not sufficiently trained/guided/supported after the commissioning phase

The Operations Consultant should assist Vendors with the management of their kiosks (including the sale of groceries) after commissioning (training-on-the-job)

Consultant


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10 The Taskforce Concept

10.1 Main Findings and RecommendationsTable 9.1 present the main findings and recommendations relating to the Taskforce concept as well as the performance of project Taskforces.

Table 9.1: The Taskforce concept: main findings and recommendations


1 The Taskforce concepts works as various stakeholders and disciplines are members

Taskforce needs clear structure TC, SC, CUs, Consultants

2 A lean but well composed Taskforce works best as it is efficient and cost effective

The duties of the various Taskforce members should be clearly defined

SC, Consultants

3a The current composition of the Taskforce is good (CU, DTF, Council, RDC, public health, police, etc.)

The Taskforce composition should allow for a good fieldwork/office work balance

LWSC

3b A financial person of the CU (Procurement Officer) should be member of the Taskforce

CWSC, LWSC

3c The Contractor should be member of the Taskforce, or be present during Taskforce meetings

TC, SC, Consultants

4 The Taskforce lacks a clear focus and task list and programme

The Taskforce needs clear terms of reference. The Taskforce needs a kick-off meeting during which the programme is prepared

SC, Consultants

5 Lack of cohesion and efficiency and poor communication because the technical and the social Consultant did not work at the same time

There is need to reduce the duration of the DTF-funded projects!

TC, SC, CUs, Consultants

6 Communication between Taskforce and the CU needs improving

There should be a Taskforce communication protocol

CWSC

7 Heads of Department (of the CU) can slow down a project: (1) by delaying decisions and (2) by being absent (mainly in provincial CUs, such as SWSC)

Heads of Department should not be directly involved in the day-to-day running of the project (routine project activities). Project staff on the ground should be able to take decisions

SC, TC, Consultants

8 The Taskforce (with the exception of the TC) is not involved in monitoring the use and quality of project materials

DTF could consider giving the Taskforce a more active role in monitoring the use and the quality of materials

TC, SC, Consultants

9 According to a staff member of the LWSC: “The spirit of voluntarism go lost as the RDC members started pushing for personal benefits”

The DTF should not move towards paying for community works, but lunch allowances for community-based Taskforce members should remain included in the Project Proposal

SC, Consultant


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10.2 Remarks Concerning the Recommendations The following remarks can be made with regard to the recommendations presented in Table 9.1:

Composition of the Taskforce : The composition of the Taskforce cannot be uniform as CUs differ in size, organisation and degree of decentralisation and because CUs have different capacities and constraints. Some CUs have a well established PUU, other have not.

Composition of the Taskforce : In areas where there is an active Neighbourhood Health Committee or an active Water and Sanitation Committee (for example in New Kanyama, Lusaka), the Taskforce should include one or two of its members.

Terms of Reference for the Taskforce : The WSTF is developing terms of reference for the Task Teams it will be working with.

Kick-off meeting : The kick-off (team building) meeting, which should be attended by CU management, has to answer the following questions:

o What is the project? (objectives, scope of works, constraints, etc.)o Who are on the Taskforce?o What are the tasks?o What are the responsibilities of the various individuals and

organisations that constitute the Taskforce?o How will the Taskforce operate and communicate (internally)?o How will the Taskforce interact with the CU, the community and DTF?o How will the community participate in the project?o What are the next activities and when are they to take place (including

the next Taskforce meeting)?

During the kick-off meeting (or during the next meeting) the Taskforce should develop a project work programme.

Duration of the project, coordination and keeping momentum : According to a number of respondents the duration of the project tends to make it difficult to keep a momentum as far as the Taskforce and Taskforce activities are concerned. According to a staff member of the Peri-urban Department of the LWSC: “DTF projects take too long. That’s why Company staff and the DTF provide the continuity.”

The involvement of the CU : According to a staff member of the Peri-Urban Department of the LWSC: “We need key staff to be on the project. But these persons have other tasks as well. Hiring a contractor would be better. A Contractor supervised by the Company.” Although hiring a Contractor may solve some problems relating to the availability of CU staff, the Companies should demonstrate their commitment by actively participating in the project. In Lusaka, for instance,


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the Company admitted being absent during Taskforce meetings and during meetings with the community.

10.3 The Peri-Urban Departments/Units

10.3.1 Achievements Five years ago many CUs did not have a section, unit or department responsible for water supply and sanitation in low income areas. Staff of the existing Peri-Urban Units often felt neglected an undervalued by management and by other sections and departments. Peri-Urban Units (PUUs) were often perceived as unnecessary and as being donor driven initiatives. A lot has changed and nowadays staff members of most PUUs feel supported by their management and have access to the services and materials they require.3

The LWSC sees the strengthening of the Peri-Urban Department as a necessary element of the decentralisation policy of the Company (brining services closer to the customer). In some cases (LWSC, KWSC, NWSC) the efforts of the peri-urban team is seen as contributing to increased revenue. However, some CUs, such as the CWSC, still lack, a clear pro-poor focus.

10.3.2 DTF-Funded Projects: Progress and Capacity Building According to the DTF Consultants and CU staff and management, the DTF-funded projects can be regarded as an important capacity building exercise which has an impact well beyond the project itself. According to the CUs staff and management with whom we discussed this issue, the DTF-funded projects have developed the capacities of CU staff in a number of ways:

Ability to prepare proposals. Interacting and working with peri-urban communities. Working together with other stakeholders (Council, RDC, residents, public

health, police, etc.) in a multi-disciplinary Taskforce. Obtaining a more detailed knowledge of the distribution network and the

service area. Seeing the need for a pro-poor focus. Becoming aware that peri-urban areas can contribute to CU revenue. Implementing projects. Operating kiosk schemes and managing Vendors.

10.3.3 Impact of Internal Reorganisation and Staff Transfers Unfortunately, the impact of capacity building and the development of local knowledge and relationships are often lost as a result of frequent internal reorganisations and staff transfers. In North-Western Province, for example, a number of very competent staff members, who turned out to be excellent project implementers, were transferred

3 One could argue that they face the same constraints as the other sections and departments.


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to other locations and given new functions that do not require the skills they developed and used during the implementation of the DTF-funded project. The DTF cannot and does not have the intention to interfere in the management of the CUs. However, the Fund can and should approach the CUs - especially if the staff member(s) involved have expressed the wish to continue working on DTF-funded projects - if it feels that required capacities will be lost.

10.4 The DTF and its Framework ConsultantsTable 9.2 shows the main findings and recommendations with regard to the DTF Framework Consultants (FCs) and their functional relationship with the DTF and the CUs.

Table 9.2: The Framework Consultants, the DTF and the CUs


DTF Consultants and DTF Office Staff

1 Relationship and communications between the DTF Desk Officers and the FCs are good. Desk Officers respond quickly and effectively. Desk officers know the situation on the ground and the CUs are aware of that

Keep it up! Consultants

2 Communication between the SC and the TC is not always good. Communication (exchange of information between the FC) is through the Desk Officer instead of in the field. Main cause: long duration of project

A significant reduction in the duration of the DTF projects will improve planning and coordination between the social and technical project component


DTF Consultants and the CU

3 Social FC isolated as the Project Manager, in most cases a person with an engineering background, has a tendency to focus his or her attention on technical works

Improve communication within the Taskforce

TC, SC, Consultants

4 The CU often contact the DTF Desk Officer if there is a problem

- Desk Officers should inform the CUs that problems should be discussed within the Taskforce or between the FC and the Project Manager.

- Proposal: Coordination meetings : TC, SC, Project Manager, PUU, (solve problems in-house) instead of reporting problems to the DTF)


5 DTF Framework Consultants should indeed be perceived by the CU and CU management as a Consultant. In other words, as a coach, facilitator auditor an advisor a monitor and as someone who can build capacity

The DTF should do more to clarify the role of its Framework Consultants. Proposal: organise a workshop with CU management, Peri-Urban Units, and the Framework Consultants



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6 DTF Consultants are often pushed in the role of project implementer

TC, SC, Consultants

10.5 Community Participation: Main Findings and Recommendations The 2 framework Consultants that were interviewed agreed that it is important to involve the community during all phases of the project. Community participation increases the sense of ownership and responsibility and therefore reduces the risk of vandalism and theft. In other words community participation contributes to the sustainability of the kiosk scheme. The community participation concept of the DTF focuses upon:

Inclusion of the RDC and relevant CBOs in the Taskforce. Finding appropriate sites for the kiosks. Community mobilisation and sensitisation (main messages: public health

and the kiosk system). Identification and recruitment and training of Vendors. Customer complaints.

However, according one of the Social Consultants the community participation concept is too basic. She made the following recommendations:

Residents of potential project areas are not involved in the needs assessment. The market for treated water and the preferences of residents are not being assessed.

The Vendor training programme should include modern health and hygiene education methods such as Johari’s Window, Story with a Gap, etc.

DTF should prepare a set of posters which can assist project Taskforces to visualise certain issues such as health and hygiene education, vandalism, kiosk design, etc.

During all phases of the project cycle there should be more emphasis on gender and the role of women in domestic water supply.

Part III: OPERATION OF DTF-FUNDED PROJECTSPart III of this report focuses upon the following issues:

The quality of kiosk management (Adherence to the standards set by the “Toolkit for Peri-Urban Water Supply” Version 1.0).

Quality of preventive and curative maintenance of the DTF-funded installations.

Impact of the kiosk system and the views of residents (customers and non-customers).


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11 Operational and Financial Management of the Kiosk Schemes

11.1 Main Findings and RecommendationsTables 10.1 and 10.2 present the main findings related to the operational and financial management of the DTF-funded projects.

Table 10.1: Main findings and recommendation related to operational and financial management of the DTF-funded kiosks (1)

No. Findings Recommendations Proposed by:

1 - Vendor incomes are low- NWSC and MWSC are still selling at ZMK 20/20-

litre container

DTF should sensitise NWASCO and the CUs on the need to introduce realistic tariffs which allow for financial/commercial sustainability

Consultants

2 An over-emphasis on hierarchical relationships within the CU prevents effective internal horizontal communication (for example meetings between the PUU and the Billing Section)

The Operation Consultant (see row 3) should - Encourage management to

improve internal communication. - Introduce a number of kiosk

system performance indicators (see Toolkit)

Consultants

3 - CUs have no detailed insight into collection efficiency

- CU management has no insight into the performance of its kiosks

- Performance monitoring tools included in the Toolkit are not used by all CUs

- The Operations Consultants should provide assistance to the CUs (PUUs) after commissioning of the DTF-funded project.

- This assistance should focus upon sustainability and the use of tools to monitor performance

SC, Consultants

4 Vendors pay the CUs. Collection efficiency is high (with exception of NWWSSC) but it is difficult to obtain detailed information on the performance of the kiosk schemes

SC, Consultants

5 The contracts of Vendors who do not pay water bills are not terminated. Some CUs (NWWSSC in particular) allow accumulation of Vendors debts

Sanctions specified in the CU-Vendor Contract should be implemented (no soft touch approach)

SC, Consultants

6 Some CUs (PUUs) have no proper work plan and kiosk visiting and inspections plan

Operation Consultant should assist the PUUs in developing and implementing a strong presence in the low income areas


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Table 10.2: Main findings and recommendation related to operational and financial management of the DTF-funded kiosks (2)


1 - Some CUs do not have a clear cut approach towards the peri-urban areas (the NWWSSC in particular)

- The efficient operation of water kiosks is hampered as a result of poor internal communication, low commitment levels and poorly defined roles and responsibilities (of CU staff)

- Operation Consultants should assist the CU in streamlining and mainstreaming kiosk systems

- This may require considering the internal communication and delineation of roles and responsibilities with regard to the kiosks and the peri-urban areas

Consultants

2 - Some items (vehicle, computers, printers, toolkit) purchased with DTF funds are not always used for the intended purpose (vehicles, printers, computers)

- All items purchased with DTF funds should have rivets and/or engravings

- Management of the CUs should ensure that items purchased with DTF funds are used for the intended purpose: supplying water and sanitation to the urban poor

- Memorandum of Agreement between the DTF and the CU on the use of materials

SC, Consultants

3 - Many PUU computers are poorly managed, poorly organised (no proper folders, mixing of private files and work files) and poorly protected (many contain a large variety of viruses)

- PUU printers are poorly managed (no use of econo-mode setting, they are used by all CU sections, etc.)

- DTF Operations Consultants should assist the CUs in the management of office materials purchased with DTF funds

Consultants

4 DTF-funded projects tend to put an end to illegal connections and unmetered connections. It is up to the CU to ensure, through a strong presence, that the situation remains under control

- DTF Operations Consultants should assist the CUs in establishing a strong presence in the low income areas

- The DTF should organise a workshop on peri-urban WSS system management for PUUs and CU management

Consultants

5 The Social Consultant lacks the capacity (knowledge) to assess the financial performance of the kiosk system

- DTF should appoint Operations Consultants whose focus will be the (financial/commercial, technical and public health) sustainability of the DTF-funded schemes

- DTF Operations Consultants should assist the CUs in establishing a strong presence in the low income areas

- Operations Consultants provide continue after commissioning

- Operations Consultants provide on-the-job training to Vendors and PUU field staff

Consultants

6 PUUs and Vendors feel that the project finished soon after commissioning and that matters concerning operation and sustainability are not given sufficient attention

Consultants

7 PUUs, Vendors and residents (RDCs) feel that the project finished soon after commissioning and that matters concerning operation and sustainability are not given sufficient consideration

Consultants


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11.2 Remarks Concerning the Main Findings and RecommendationsNeed to demonstrate the performance of the kiosk schemes & importance of establishing a presence in the peri-urban areas: According to a staff member of the peri-Urban department of the LWSC:

“The others in the Company always ask us ‘How much money are you guys making?’ But we argue; ‘Allow us to improve the service first before we talk about revenue’. You need a good infrastructure and organisation to make things work in the peri-urban areas. It is a struggle to get recognition within the company but things are improving. Last year we increased our revenue with 30%. You have to talk to customers, you have to motivate them to pay their bill, instead of just disconnecting them. You have to be on the ground as a company. In new Kanyama we are working with the community. In fact 5% of revenue is ploughed back into the community.”

11.3 Operation of the Kiosks and Vendor Incomes Table 10.3 shows the main findings and recommendations relating to the income levels of Water Vendors.


1 - Both CU and Vendors agree that Vendor incomes are low

- NWSC and MWSC are still selling at ZMK 20/20-litre container

- The DTF should sensitise NWASCO and the CUs on the need to introduce realistic tariffs which allow for financial/commercial sustainability

- The Operations Consultants should implement a on-the-job training concept for Vendors (based on the Toolkit)

- This concept should also focus upon customer care

Consultants

2 High Vendor drop out levels are caused by low incomes from water sales

Newly recruited Vendors do not receive sufficient training

3 A minority of Vendors are selling groceries - Vendors should be trained in entrepreneurial skills by the Operations Consultant

SC, Consultants

4 Some Vendors are selling health products at their kiosk (condoms, Clorin, soap, etc.) (see Glossary)

- DTF should explore the possibility of providing incentives to Vendors who are selling health products (contact the Society for Family Health)

Consultants

5 Some CU-Vendor Contracts do not comply with DTF standards

- The Operations Consultant should assist the Cu in the preparation of CU-Vendor contracts

Consultants

6 Some CU-Vendor contracts do not specify which groceries cannot be sold at the kiosk

Consultants

7 Some Vendors area asked to reports complaints to the RDC instead of to the CU

- CWSC Consultants

8 Some Vendors do not respect business hours

Sanctions specified in the CU-Vendor Contract have to be implemented

Consultants


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11.4 Remark Concerning the Main Findings and Recommendations The Consultants can avail the reports that were prepared for the Lusaka Water and Sewerage Company. These reports can be used by CUs wishing to establish a sustainable presence in the peri-urban areas.

12 Inspections and Technical Operation Table 11.1 presents the main findings and recommendations with regard to the technical aspects of sustainable kiosk operation.

Table 11.1: Inspections and technical operation: findings and recommendations


1 Meters are read every month - -

2 Vendors are charged according to meter readings

- -

3 Operational problems due to leaking taps DTF has to solve the poor quality taps issue All CUs, TC, Consultants

4 Kiosk inspections, Vendor management and customer care: - CU staff do not visit the peri-urban

areas (project areas) on a regular basis (some CUs)

- Vendors observe a gradual reduction in the inspection visits frequency

- The DTF should sensitise the CUs on the need to keep a strong presence in the peri-urban areas

- This presence is needed for inspections of kiosks, early detection of repair and maintenance work, customer care, identification of leakages, illegal connection, etc.

Consultants

5 - Gradual neglect of maintenance - No proper inspection and maintenance

schedule in place

CUs should develop a more decentralised M&R concept

Consultants

6 Slow response to customer and Vendor complaints 4

CUs should develop and implement an effective and efficient rapid response procedure which includes the low income areas

Consultants

7 Slow response to reported damage Consultants

9 Lack of sufficient spare parts Operation Consultants should assist the PUU in developing a M&R concept

Consultants

10 Lack of sufficient (M&R) tools Consultants

11 Low pressure due to ZESCO load shedding - -

4 The KWSC operates 45 water kiosks. On average the Company receives 3 complaints from Vendors per week.


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13 The Customer Perspective

13.1 General Awareness of DTF-Funded ProjectsMany residents living in areas that have benefitted from DTF-funded projects seem to be aware that the project is implemented by the CU together with the RDC and other local organisations.

13.2 Outcomes of the Customer Satisfaction (Household) Survey

13.2.1 Kiosks and other Sources of Water Table 12.1 shows the percentage of households using a water kiosk.

Table 12.1: Kiosks and other water sources (percentage of Households using kiosks)

No. Provider Area HHs using kiosk (*) Main other sources of water used

Name Name % Source %

1 Chipata WSC Chiparamba 82

2 Kafubu WSC Chipurukusu 71

3 Nkana WSC Kawama 51 Yard wells 50

Mulenga 49 Yard wells 51

4 Mulonga WSC Kasompe 57 Domestic conn./wells (*) 17/22

5 NWWSSC Chiyeke 67 Wells 27

6 SWSC Sinaseze 92

7 LWSC New Kanyama 87

*): HHs = Households; Conn. = connection

Kiosks and other sources of waterMain observations:

Kiosks have captured a large share of the market for drinking water. Many households use kiosks in combination with other sources. Water from less reliable sources is used for such usages as bathing,

laundry, construction work, etc. (Private) Yard wells continue to compete with the kiosks (Kitwe, Chingola). A majority of well users treat their water (domestic chlorination and, to a

lesser extent, boiling).


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13.2.2 Reasons Why Households are not using Kiosks Table 12.2 shows the main reasons household members provide for deciding not to fetch water at the kiosk.

Table 12.2: Why households do not fetch water at a kioskNo. Provider Area Reason:

DistanceReason:

PriceReason:

Waiting timeName Name % % %

1 Chipata WSC Chiparamba 752 Kafubu WSC Chipurukusu 30 20

3 Nkana WSCKawama 48 20Mulenga 28 21

4 Mulonga WSC Kasompe 24 145 NWWSSC Chiyeke -6 SWSC Sinaseze -7 LWSC New Kanyama 17 10 14

Why households do not fetch water at a kiosk Main observations:

Distance is the main (but not the only) reason for not using the kiosk. Price remains a constraint (we assume it mainly affect access among the

poorer households). There may be a need to construct additional kiosks in New Kanyama (the

time one has to wait at the kiosk is the reason why some households do use consume kiosk water).

13.2.3 Impact of Distance Table 12.3 shows the distances between dwellings and the nearest kiosk.

Table12. 3: Distance between dwellings and the nearest kioskNo. Provider Area Less than 500 metres Less than 100 metres

Name Name % %1 Chipata WSC Chiparamba 78 432 Kafubu WSC Chipurukusu 87 82

3 Nkana WSCKawama 92 86Mulenga 100 97

4 Mulonga WSC Kasompe 87 765 NWWSSC Chiyeke 100 606 SWSC Sinaseze 66 667 LWSC New Kanyama 88 72


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Distance between dwellings and the nearest kioskMain observations:

Kiosk systems have been well planned. Distances are longer in areas with low densities (mainly found in smaller

towns with rural characteristics).

13.2.4 Hygienic Condition of the Kiosks Table 12.4 presents the opinion of householders with regard to the hygienic condition of the kiosks.

Table 12.4: Hygienic condition of the kiosksNo. Provider Area Very clean/clean Hygienic condition

Name Name % %

1 Chipata WSC Chiparamba 652 Kafubu WSC Chipurukusu 86

3 Nkana WSC Kawama 87

Mulenga 98

4 Mulonga WSC Kasompe 95

5 NWWSSC Chiyeke 89

6 SWSC Sinaseze 99

7 LWSC New Kanyama 37 Fair/dirty 51/13

Hygienic condition of the kiosksMain observations:

CUs and Vendors manage to keep the kiosks clean (according to residents).

The evaluation shows that almost all CUs carry out regular inspections. Many New Kanyama residents do not consider their kiosks to be clean

(another indicator of the number of kiosks being insufficient?).

13.2.5 Quality of the Service Provided by the Vendor Table 12.5 presents the views of the interviewed households with respect to the service provided by the Vendor.


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Table 12.5: Quality of the service provided by the Vendor:No. Provider Area Very good/good Quality of service provision

Name Name % %

1 Chipata WSC Chiparamba 100

2 Kafubu WSC Chipurukusu 86

3 Nkana WSC Kawama 64

Mulenga 72

4 Mulonga WSC Kasompe 46 Very poor/poor 36

5 NWWSSC Chiyeke 66

6 SWSC Sinaseze 83

7 LWSC New Kanyama 38 Fair/poor 31/10

Quality of the service provided by the VendorMain observations:

Most customers are satisfied with the quality of the service provided by the Vendor.

A majority of the residents of New Kanyama and of Kasompe are not satisfied with the service they receive at the kiosk. In New Kanyama this could be explained by the insufficient number of kiosks.

13.3 Recommendations based upon the Household SurveyRecommendations:

We may have to increase the kiosks/residents ratio in urban areas where residents do not have access to alternative sources of water (daily per capita consumption in Kanyama was 24 litres in 2005).

We should reduce the kiosks/residents ratio in urban areas where residents use wells in combination with domestic treatment of water. Note: WHO intends to put more emphasis on domestic chlorination.

Should the DTF, in order to keep dwelling-kiosk distances short, finance the construction of cheaper (precast and removable) open kiosks in areas where per capita consumption is low?

Training of Vendors and regular inspections by CU staff remain important activities which cab ensure that kiosks are kept clean and that customers receive the attention they deserve.

CUs should develop proper customer care concepts and carry out easy to use and analyse customer satisfaction surveys. The Consultants will simplify the questionnaire in order to facility the analysis of the collected data (improved questionnaire will be included in the “Toolkit for Peri-Urban Water Supply: Version 1.2”).


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PART IV: GENERAL OBSERVATIONS AND RECOMMENDATIONSIt is important to mention that according to the Technical Consultant, the Social Consultants and staff and management of the CUs, the First Call for Proposal projects were characterised by a number of problems and weaknesses:

Poor communication between stakeholders (CU, DTF, community, etc.). Delays in technical works and duration of the project. Poor quality of technical works.

However, all our respondents mentioned that the situation is improving as all stakeholders are learning from their mistakes. As the CEO of one of the CUs put it: “DTF projects are also a learning process we have to go through. And we are making progress.” This evaluation has to be seen as being part of this process.

14 Financing Water Supply and Sanitation

14.1 Shifting EmphasisAlthough there will be need to improve water supply in many peri-urban areas through the construction of kiosks and mixed systems, the DTF should gradually place more emphasis on:

Funding the rehabilitation of existing kiosk schemes. Many kiosk schemes constructed by CUs and NGOs are in poor technical and hygienic condition and many CUs and community managed schemes lack the financial resources to carry out proper rehabilitations.5 For example, the old kiosks in Chipata which were constructed more than 10 years ago. In order to ensure that the populations served by these kiosks will continue to access safe water, the rehabilitation of these schemes is necessary.

Improved public and household-level sanitation (Ecosan, biogas) . In addition to the implementation of the existing public sanitation concept, the DTF should start piloting, together with one or two CUs, the household level sanitation concept which was developed in 2006.

The installation of (metered/pre-paid) yard taps (in low-cost areas). Addressing the urgent WSS situation in the low-cost areas . The DTF can

only finance feasible rehabilitation programmes. It is the Zambian Government (MLGH) which has to develop a policy aimed at targeting the low-cost areas. The DTF should emphasise that within the framework of the National Programme, a strategy is developed which specifically targets the low-cost areas.

Financing the rehabilitation of larger WS infrastructure such as storage tanks provided they are used to supply the low income areas.

5 The DTF should only consider the rehabilitation of schemes which are regulated by NWASCO.


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14.2 Piloting Pre-paid Water MetersPre-paid meters have been and are being installed – at household level and at public stand posts – in a number of countries outside South Africa. 6 A large project is currently undertaken in Kampala, Uganda (in the Kisenyi and Ndeeba settlements).7 The WSTF is preparing the piloting of pre-paid mixed systems (kiosk and house/yard connections) in Kenya. If the DTF wants to remain in the forefront of technical developments, it will have to pilot prepaid systems. In this context it is important to remember that during the launch of the Baseline Study in 2004, a number of CUs on the Copperbelt proposed that the DTF support the piloting of prepaid systems. The DTF could approach Kent South Africa for more details. Kent is implementing the pre-paid system in Kampala. The WSTF team intends to visit Kampala in the coming weeks. Maybe one of two DTF staff members could join the WSTF team.

14.3 Operation of the Kiosks: Quality of Maintenance The DTF should consider the rehabilitation of the first call for proposal

kiosks in order to bring them up to standard. The proper maintenance and operation of existing schemes should be a

condition for further funding.

15 After Commissioning: More Emphasis on Operation

15.1 Not Enough Focus on Project Operation According to some of the Framework Consultants, the DTF-funded project basically ends a few days after commissioning. Even the Vendors and staff of the PUU feel that a DTF project and the support provided by the DTF end rather abruptly. Too much emphasis is put on project preparation and implementation and not enough on project operation. The challenges faced by CUs and the observed weaknesses during the operations phase indicate that Commissioning should not mark the end of the project. The CUs, Vendors and residents tend to share the opinion that the DTF project cycle should have a phase which focuses upon the sustainable operation of the infrastructure. This phase should focus upon the following activities:

Embedding of the kiosk in the operations of the CU (billing, performance monitoring, M&R, inspections, implementation of sanctions, etc.).

6 The Bamba-Manzi public stand post prepaid meter system was developed specifically for South Africa’s low income areas. 7 The Consultant and one of the DTF Framework Consultants, Mr. Mudala Chisenga, were involved in the feasibility study of this project.


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Support to the Peri-urban Unit. Strengthening the presence of the CU in the peri-urban area. For example

through the retraining of plumbers (in customer care skills) who become Customer Services Assistants (CSAs).

On-the-job training of Vendors through capacity building at PUU level (training of trainers).

Customer care and communication with residents/communities (strengthening the sense of project ownership among residents).

Train the PUU to carry out needs assessments and customer satisfaction surveys.

The Toolkit contains an entire module devoted to the operation of the WS infrastructure, but during the projects there is not enough time to transfer this knowledge to the PUUs.

15.2 Recommendation: The Operations Consultant

15.2.1 Need for a Focus on Operation and Sustainability In order to fill this gap the Consultants believe there is need for the DTF to sign contracts with specialised Framework Consultants whose main focus will be the operation and sustainability of the DTF-funded WSS infrastructure (integration into the billing system, collection efficiency, reporting on kiosk performance, supervision of Vendors, presence of the CU in the peri-urban areas, identification of illegal connections and metering of legal connections, etc)

15.2.2 Timing of Support provided by the Operations Consultants These “Operations Consultants” can provide their input:

o Before the start of project implementation.o During the implementation of the project.o After commissioning.

In other words, the Operations Consultant is more flexible (less tied to the project cycle) and can even address the problems the CUs are facing with their other DTF-funded and non-DTF schemes. Once a CU is able to operate one kiosk system it can easily accommodate new kiosk schemes. The DTF would probably require 3 to 4 Operations Consultants

15.2.3 Tasks of the Operations Consultant The Operations Consultant would be responsible for the following tasks:

Bring water supply and sanitation in low income areas to the attention of management (Should the Regulator insist that each CU develops a pro-poor strategy?) and convince management and other staff that peri-urban and low-cost areas are a growth market for the CU. A growth market in terms of kiosk consumption and (metered) for domestic connections.


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Advice management on the need to introduce realistic tariffs at water kiosks.

Advice the CU on how to strengthen the Peri-Urban Unit/Section/Department (functions & responsibilities, structure, staffing, linkages within the organisation, reporting). The main functions of a Peri-Urban Unit are: data collection, implementation of projects, operation and maintenance of the system, customer care, conducting customer satisfaction surveys, enabling the development of mixed systems (kiosks and private connections).

Bring (if deemed necessary) the low-cost areas under the umbrella of the Peri-urban Unit.

Adapt the customer care concept of the CU to the needs of the low income areas.

Focus on the improvement of the technical capacity of the unit as well as the tools and spares situation (include in procurement).

Develop and integrated rapid response procedure in case of reported damage.

Advice the CU on how it can establish a real presence in its peri-urban and low-cost areas. This will involve looking at: creation of pay-points, creating zones for CSAs, analysing the tasks/job descriptions of the CSAs (customer care, receiving applications for domestic connections, inspection of kiosks, monitoring Vendors, identifying illegal connections)

Embed the kiosk system in the operations of the CU (using the Toolkit). Ensure that customers pay for the water they fetch, that Vendors pay the

CU (collection efficiency) and ensure that there is a transparent flow between revenue collection and accounting (depositing and accounting procedures).

Design and formulate sanctions. Ensure that the CU/Unit responds quickly to reported damage. Train Vendors in entrepreneurial skills (or assist NGOs in this process). Develop, together with the CUs and NWASCO a reporting system (for the

NIS) focusing on kiosk systems (a one-sheet monitoring tool).

15.3 Recommendation: DTF Facilitating Exchanges between CUsAlthough the Zambian water sector still faces numerous challenges, one has to acknowledge that significant progress has been made during the last 15 years. The sector now boasts a large number of qualified and committed personnel and the yearly Sector Report shows that many CUs are improving their overall performance as well as their performance in the low income areas. A number of companies, however, are clearly lagging behind.


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The Consultants and one of the Social Consultants (Charles Manda) believe that weaker Companies can benefit from the capacities and experience of CUs that have Peri-urban Units which are successfully operating water supply schemes in low income areas.

The DTF should promote and facilitate exchange programmes between CUs. The Consultants believe that the peri-urban staff of Chambeshi WSC could benefit from a visit to their colleagues of Nkana WSC.

Facilitating these exchanges will require developing the framework of a CU exchange programme which subsequently has to be communicated to the CUs. The DTF Consultants can play a role identifying staff members of CUs who would benefit from a visiting another CU.

16 Technical Standards and Quality of Works

16.1 Water Supply: Adapted and Innovative SolutionsThe DTF currently has standard designs for:

Closed kiosks (for areas with high levels of vandalism and areas where operator incomes have to be supplemented by the sale of groceries).

Open kiosks with and without shelter (in areas with high average temperatures, or in case the WSP wishes to keep per capita investment cots low).

If the DTF intends to offer a broader range of solutions, such as social domestic connections/yard taps or communal taps used by a relatively small (up to 100 persons) number of persons, it has to develop technical standards for:

(pre-paid) Yard taps (enabling the CUs to reach small low-income areas).

Mobile (pre-cast) kiosks that can be removed and transported to areas where they are needed.

The DTF should also consider developing technical standards (designs) for valve chambers, fire hydrants, network extensions (materials used, depth of the pipes, trenching and trench bedding, etc.).

16.2 Development of Prefabricated Kiosks

16.2.1 Disadvantages of Onsite Construction of Kiosks The onsite construction of kiosks by CUs or by local Contractors has a number of disadvantages:

The quality of construction works does not meet DTF standards. Construction works determine the overall duration of DTF projects. Delays in construction works have a negative impact upon the functioning

of the Taskforce (loss of momentum) and upon the coordination of activities (social component and technical component).


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16.2.2 Advantages of Prefabricated Kiosks The Consultant discussed the possibility of introducing prefabricated kiosk kits. Using pre-fabricated kiosks kits have a number of advantages:

Reduces the overall project duration (project implementation period). The total duration of a DTF project should not exceed 3 months.

Facilitates planning at DTF level. Reduces the input by the DTF Technical Consultant who can now focus

his or her attention on the quality of the network extension and additional works.

Facilitates disbursement, procurement and financial management (both at CU and at DTF level).

Simplify reporting requirements by the CU. Reduces the delays which are caused by the procurement process. Guaranteed quality and standards (according to drawing). Reduces theft of materials (mainly cement). Reduced workload for CU staff. The CU can focus upon one of its core technical activities: network

extension. No need to engage a local Contractor. Prevents the project from losing momentum. Increases the cohesion within the Taskforce. Improves the coordination between social component activities and

technical component activities. Facilitates community participation (the project is not dragging on and,

therefore, is not perceived as another “white elephant”). No delays between the training of Vendors and the commissioning of the

kiosks. They can be transported to other areas if they are no longer needed. Is more compatible with a product-oriented approach (see paragraph

15.3).

16.2.3 Disadvantages of Prefabricated Kiosks Using pre-fabricated kiosk kits also has a number of disadvantages:

Less capacity building (technical, organisational) at CU and/or local level. Less use of local labour. CUs may perceive the project as a DTF project and as their own project. Transport costs may be considerable. Kiosks are no longer built with (cheap and suiTable) local materials. Nonuniformity is lost, uniformity can be boring. DTF cannot benefit from local innovations. It may be difficult to transport the materials to the construction site.

16.2.4 Technical Requirements In order to develop a successful pre-fab concept the following issues have to be considered:


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The foundation of the kiosks has to be construction by the CU. It is important that measurements and quality standards are followed carefully.

It is important that prefabricated kiosks can be assembled and dissembled (and reassembled elsewhere).

It has to be possible to assemble the kiosks onsite. Dissembling the kiosk can only be done from the inside (to prevent

vandalism and theft). The kiosk should be equipped with an integrated wooden poster bar

(integrated in one of the side walls). The integrated poster bar/board can be used for announcements (community activities) and for community sensitisation (for example on HIV/AIDS).

The internal plumbing (pipes, taps, meter, etc.) should be part of the Kiosk Kit.

Taps of high quality are part of the kit. The front slab, including drain grooves, is also prefabricated. A special tap for 200-litre drums can be considered. Taps have to be protected. The kiosk roof has to be absolutely water proof (proper slope, bitumen,

water proof concrete). Fetching bay with integrated angle bars. Minimal painting (no inside painting) Integrated shield with Company logo and on the façade. There can be room for kiosks customisation (local school children or a

local artist can be given washable paints (4 colours) to paint one or 2 side walls.

Avoiding the technical defects of the current kiosks (choice of materials, design errors).

Sufficient attention to ergonomic requirements. Making the kiosk vandalism proof (a kiosk can only be disassembled from

the inside). Kiosk hygiene is crucial; Is it easy to keep the kiosk clean? Specific issues such as: can kiosks windows open completely?, is the

drain accessible safe and easy to clean?, can surfaces (the fetching bay in particular) be cleaned easily?, etc.

16.2.5 Proposed Approach The further development and implementation of the pre-fab concept will require the following activities:

1. The DTF should, together with an experienced Contractor and on the basis of the existing drawings, develop a Kiosk Kit. 8

2. A Kiosk Kit has to consist of:

8 The Austrian contractor JR (Joseph Riepel) has acquired considerable experience with the construction of prefabricated kiosks in Southern Province. The person to contact is Mr. Rauschenberger (e-mail: [email protected]) The DTF could also contact the Pövry Consultant in Choma, Mr. Manfred Bussler (e-mail: [email protected], tel: 0977-873780).


mailto:[email protected]

mailto:[email protected]

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Strong and relatively light components (4 wall panels, a grooved floor slab, a grooved roof slab (walls are fitted in the grooves). The pillars can be integrated in the front wall (as is done in Southern Province).

A fetching slab with drain grooves (to be placed in front of the kiosk and to be attached to the kiosk floor slab).

A durable and accessible (cleanable) drainage system. A kiosk assembly/disassembly manual which contains a section with

detailed safety instructions. A set of assembly/maintenance tools. Protective clothing, helmets and shoes for the assembly team. A set of spare parts (taps). Detailed drawings and BoQ for the foundation and connecting pipes. Instructions for landscaping. Maintenance instructions. Each kit has to be certified by the DTF. The design should allow for the installation of a 3 or 5m3 roof tank,

prepaid meters and a UV installation (costing U$ 140). Assuming the Kiosk Kits are to be constructed in Lusaka and Kitwe, the transport cost will be significant if a set of kiosks are to be transported to Nakonde, Mongu or Livingstone. The transport costs will also depend on the weight of the Kiosk Kit and its volume (capacity of the deep loader). The DTF has to enquire if the transport costs are accepTable. The cost of the kiosk will depend on the technical option chosen but the BoQ of the SWSC prefabricated kiosk indicates that the cost of such a kiosk is below Euro 4,000.

16.2.6 Various Technical Options The Consultant proposes the pilot the new concept as soon as possible. The WSTF in Kenya will also develop Kiosk Kits. The WSTF is considering 2 technical options:

A Kiosk Kit consisting of concrete walls. A Kiosk Kit consisting of a concrete floor slab and a steel frame with

walling blocks that fit in and protect (considering structural and vandalism protection requirements) the steel frame.

16.2.7 Transport, Assembly and Safety In addition to having the kiosk Kits prepared by a Contractor, there will be need to assemble the kiosks. This could be done by the CU (with advice from the Technical Consultant) or by a special team (of the Contractor or of the transport company). In any case, special consideration has to be given to safety (clear instructions, risk minimisation, protective clothing and shoes, etc.). During the development of the concept it is advisable to prepare a scale model of the kiosk (including window, door plumbing works). A very small model can be used during community mobilisation and sensitisation.


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16.2.8 More Prefab? If the pilot is successful, the DTF should consider the development of technical standards and the prefabrication of:

Open kiosks. Yard taps. Valve chambers.

16.2.9 Evaluation of the Prefabricated Kiosks The pre-fabricated kiosk pilot scheme will have to be evaluated. To carry out such an evaluation, the WSTF (Kenya) will develop a guideline/tool for the customer-aided evaluation (technical, hygienic, ergonomic) of the kiosks. The following stakeholders should be involved in the customer-aided technical evaluation:

The DTF. Technical staff of the CU. The Kiosk Operator. Kiosk customers. The Environmental Health Technologist (EHT). The kiosk assembly team (in case of pre-fabricated kiosks). The Contractor. The architect who prepared the kiosk drawings.

This guideline/tool will include a set of recording sheets. These sheets should enable the evaluators to record the observations and proposals of all stakeholders.The technical evaluation should be carried out 3 months after commissioning. The WSTF will develop and implement a similar approach and tool.

16.3 Towards a Product-Oriented Approach The DTF’s primary objective is to get a sustainable product at a reasonable cost. A product-oriented approach relieves the CUs form the obligation to submit payment vouchers to the DTF. Instead disbursements are based upon progress made and upon the quality of works, which are monitored by the Framework Consultants. The DTF simply expects good quality, good value for money.9

9 Whilst the obligation for providing a quality, fit for purpose, product would rest firmly on the CU it would remain incumbent on the DTF management to be satisfied (on behalf of the Trustees and donors) that money has been properly utilised.

Instead, monitoring activity would look more specifically at value for money issues, not as an issue related to the current product as the price for this is contractually agreed, but more as a self assessment exercise of the DTF to learn if the contractual price agreed was appropriate.

Detailed financial record keeping would be the sole responsibility of the CU and the assessment of its appropriateness would be a matter for its own internal and external auditors. However, the DTF might retain the right to receive copies of some records to aid their own internal abilities to assess developments in the industry.


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Such an approach is compatible with the used of pre-fabricated kiosks. The evaluation shows that most delays, quality issues, financial management constraints are linked to the construction of kiosks. Kiosks are also a significant part of the overall budget. Instead of asking the CUs to account for the money they spent, the DTF should:

Have kiosks pre-fabricated, transported and assembled on site. Ask the CUs to include additional works (foundation, landscaping, network

extensions, vales, protected valve chambers, etc.) in the proposal, based on BoQs and DTF quality requirements (choice and quality of materials, pipe depth; 90 cm, etc.).

Ask the CUs to calculate the budget for the social component on the basis of activity unit costs which are linked to the number of kiosks to be constructed (for example, a project will construct 5 kiosks, this will require one Vendor training workshop, 200 A4 size posters, 5 PA message rounds, 10 public meetings; a single public meeting consists of the following activities, such a meeting costs ZMK...., etc.)

Placing the whole exercise on a commercial basis is seen as a significant move towards empowering the CUs.

Under a product-oriented approach it will be the responsibility of the DTF to see if the social component meets the objectives of community mobilisation, sensitisation and training. It will be the task of the Social Consultant to monitor whether the CU is actually implementing the proposed activities.

17 Outputs of the Evaluations Future Evaluations

17.1 Facilitating Future EvaluationsIn order to facilitate future DTF-funded evaluations the Consultants have made the necessary changes in the evaluation tools that were developed and used during this evaluation.

17.2 Toolkit for peri-Urban Water Supply: Version 1.2One of the outcomes of this he evaluation and of the ongoing cooperation between the DTF and the WSTF (Kenya), will be an updated version of the “Toolkit for Peri-Urban Water Supply”. Version 1.2 of this toolkit will have:

An improved user interface. Improved planning (needs assessment) tools which considers demand for

treated water. Terms of Reference for the Taskforce. An improved Application Form which is closely linked to the drawings and

BoQs.


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A new approach to technical drawings. The Kiosk Kit concept. Tools for the Operations Consultant.

17.3 Use of Outputs The Consultants believe that the findings and recommendations of this evaluation have to be discussed with the following stakeholders:

The Framework Consultants. The CUs (management, peri-urban staff and billing staff).

The Consultants also propose that the final version of this report is sent to the CUs (management and PUUs).

Glossary and List of Abbreviations

Budiza: A white transparent water storage container equipped with a tap.Clorin: Liquid chlorine, produced and marketed by the Society for Family

Health, which is used for domestic chlorination of drinking water.________________

AIDS: Acquired immune deficiency syndromeBoQ: Bill of quantitiesCBO: Community-based organisationCEO: Chief Executive OfficerCSA: Customer Services Assistant (LWSC)CSO: Central Statistical OfficeCU: Commercial (water and sewerage) Utility (company)CuAD: Customer-Aided DesignCWSC: Chipata Water and Sewerage CompanyDTF: Devolution Trust Fund (Zambia)Ecosan: Ecological sanitationFC: Framework ConsultantGTZ: German Technical CooperationHIV: Human immunodeficiency virusKWSC: Kafubu Water and Sewerage CompanyLWSC: Lusaka Water and Sewerage CompanyMDG: Millennium Development GoalMLGH: Ministry of Local Government and HousingMoA: Memorandum of AgreementM&R: Maintenance and repairNGO: Non-governmental organisationNWASCO: national Water Supply and Sanitation Council


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NWSC: Nkana Water and Sewerage CompanyNWWSSC: North-Western Water Supply and Sewerage CompanyO&M: Operation and maintenanceOM/HS: Obed Mbuzi and Han SeurPA: Public address (system, such as a megaphone)PUU: Peri-Urban UnitRDC: Residents Development CommitteeSC: Social ConsultantTC: Technical ConsultantWS: Water supplyWSS: Water supply and sanitationWSTF: Water Services Trust Fund (Kenya)ZESCO: Zambia Electrical Supply Cooperation

BibliographyChansa, N. (January 2008) Proposed Suggestions and Participatory Methodologies for the Implementation of the Kiosk System under the Devolution Fund Projects, Lusaka, Zambia

DTF (December 2007) Terms of Reference for a short-term mission for the evaluation of the quality of implementation of the projects financed by the Devolution Trust Fund (DTF) under the first Call for Proposals – General Fund, Lusaka, ZambiaWSTF (March 2008) Project or Product? – A Discussion (prepared by Tony Green), Nairobi, Kenya


Meeting with Charles and Johnson (8/1/2007)waterfund.go.ke/toolkit/Downloads/2. Evaluation...

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