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• UNDP/WORLD BANK/ UNICEF PROJECT PAK/90/013

I GOVERNMENT OF PAKISTAN

MINISTRY OF LOCAL GOVERNMENT AND RURAL DEVELOPMENT

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INCEPTION REPORT

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•II•I| FEDERAL SUPPORT UNIT May 11. 1992

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UNDP/WORLD BANK/ UNICEF PROJECT PAK/90/013

GOVERNMENT OF PAKISTANMINISTRY OF LOCAL GOVERNMENT AND RURAL DEVELOPMENT

INCEPTION REPORT

FEDERAL SUPPORT UNIT May 1 1 . 1992

LIBRARY, INTERNATIONAL REFERENCECENTRE FOV OGMVUJNiTY WATt i ? SUPPLYAND •'S/-.N!"! A ! i-V.' ! ;i-fO)

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INCEPTION REPORT

TABLE OF CONTENTS

FOREWORDEXECUTIVE SUMMARY

Section A

1. Background

1.1 Introduction 11.2 Sector Institutions ,. 21.3 Current Coverage 51.4 Targets for the 7th and 8th FYP 51.5 The Strategic Investment Plans 61.6 Sectoral Activities 71.7 Role of the Federal Support Unit 81.8 Role of M&E Adviser 81.9 Role of Community Participation and Health/Hygiene 8

Education Adviser

Section BMonitoring & Evaluation

2. Monitoring and Evaluation of RWS&S Programs:Current situation 6

2.1 Introduction 92.2 M&E in PHE Department 92.3 M&E in LG&RD Department 102.4 M&E in P&D Department 102.5 Major Weaknesses of the Current M&E System 102.6 Institutional Constraints in Developing an 11

M&E System

3. Outline of the Proposed MIS for Monitoringand Evaluation of the Sector 9

3.1 Objective of M&E of RWS&S Projects/Sector 123.2 Structure of the M&E System 13

3.2.1 Project Level M&E 133.2.2 Sectoral Level M&E 163.3.3 Mechanism of Data Collection and Storage 17

3.3 Role of P&D 183.4 Strategy for Developing & Operationalizing the SystemlS3.5 Towards an Integrate^aNSystem for M&E of RWS&S 193.6 Integrating CESI-plus inNational MIS 20


3.8 Hardware and Institutional Constraints 21in Developing M&E System

4. Sectoral Newsletter 22

4.1 Background 224.2 Objective of the Newsletter 234.3 Contents and Target Recipients 234.4 Production of the Newsletter 25

5. Proposed Plan of Action of the M&E Adviser 26

Section £t<LCommunity Participation and Health/Hygiene Education

6. Introduction and Background 29

6.1 Community Participation 296.2 Human Resource Development 336.3 Hygiene Education 34

Outline of the Proposed strategy for Addressing theCommunity Management/ Human Resource Development andHygiene Education Needs of the RWS&S Sector

7. Plan for Support Activities 377.1 Seminar on Community Management 377.2 Study of People's Participation in the

Provision of Water and Sanitation Servicesfor the Poor 38

7.3 Training Workshops 39

8. Institutional Action Planning 40

8.1 PROWWESS National Strategy 408.2 Strategy to Support Participatory Development within

the Water and sanitation Sector in Pakistan 418.2.1 Phase I: Catalytic Demonstration 428.2.2 Phase II: Large Scale Replication 44

8.3 Key Areas of Focus 448.3.1 Participatory Training 448.3.2 Innovation in Communication Techniques 458.3.3 Women, Credit and Enterprise 458.3.4 NGO Collaboration 458.3.5 Environment and the Role of the Community 458.3.6 Institutional Framework 46

9. Human Resource Development: The ITN Concept 48

9.1 Justification 489.2 Brief Outline of Proposed Activities 49


Annexure

I. Revised Workplan of M&E Adviser 62II. Revised Workplan of the Community Participation

Adviser 65III. Terms of Reference for the PROWWESS National Team

LIST OF TABLES

Table 1.1 Water Supply Coverage in Rural Pakistan 7Table 1.2 Sanitation Coverage in Rural Pakistan 7

LIST OF FIGURES

Figure 1 Structure of the Proposed Provincial LevelMIS for M&E of RWS&S Projects 15

LIST OF ABBREVIATIONS

A/XEN Assistant Executive EngineerADP Annual development PlanAKRSP Agha Khan Rural Support ProgramBHU Basic Health UnitCE Chief EngineerCESI+ Country External Support Information (system)CIDA Canadian International Development AgencyHRD Human Resource DevelopmentITN International Training NetworkLG&RDD Local Government & Rural Development DepartmentM&E Monitoring and EvaluationMIS Management Information SystemMLGRD (Federal) Ministry of Local Government & Rural

DevelopmentNGO Non-Governmental OrganizationO&M Operation and MaintenanceOPP Orangi Pilot ProjectP&D Planning and Development (Department)PHED Public Health Engineering DepartmentPROWWESS Promotion of the Role of Women in Water & Environmental

Sanitation ServicesRWS&S Rural Water Supply and SanitationSDO Sub-Divisional OfficerSE Superintending EngineerSRSC Sarhad Rural Support CorporationUNICEF United Nations Children's FundUNDP United Nations Development ProgramWHO World Health OrganizationXEN Executive Engineer


FOREWORD

This report is the first major output of the Federal Support Unitas identified in the main workplan of the project PAK/90/013, Thereport is divided into three sections. The first section presentsa background of the sector and discusses the institutions,coverage, activities and future targets for coverage of rural watersupply and sanitation (RWS&S) in Pakistan. The StrategicInvestment Plans and the role of the Federal Support Unit are alsopresented in this section.

Section B of the Inception Report focuses on monitoring andevaluation activities in the sector. The current situation ofmonitoring and evaluation of RWS&S sector in Pakistan is discussedin chapter 2 of the Section and is based on the findings of fieldvisits of the M&E adviser. Chapter 3 of Section B presents anoutline of an MIS for monitoring and evaluation of the sector. Theobjective and the structure of the system is discussed. Thestrategy for developing and operationalizing the system isdescribed and an approach towards an integrated MIS for M&E ispresented. The objectives and production of the quarterly sectoralnewsletter is explained in chapter 4. A proposed plan of actionfor the M&E adviser is suggested in chapter 5.

Section C of the report concentrates on community participation,health and hygiene education aspects of the water and sanitationsector. A review of the current sectoral activities in communityparticipation, human resource development and hygiene education ispresented in chapter 6 of Section C. The review is based on thefindings of provincial level field visits and meetings with keyofficials. Chapters 7, 8 and 9 present a detailed outlinedescribing both short term and long term initiatives and proposeoperational recommendations for promoting people's participation,human resource development and hygiene education in the sector. Aplan for support activities is discussed in chapter 7. Theinstitutional action planning is explained in chapter 8. The lastchapter of Section C presents the ITN concept of human resourcedevelopment.

Revised workplans of the M&E adviser and the communityparticipation adviser are presented in Annex I and Annex IIrespectively. Annex III includes the Terms of Reference developedfor the PROWWESS National Team.


EXECUTIVE SUMMARY

A. BACKGROUND

I. The Inception Report is prepared with the objective of:presenting a situation analysis of the rural water supply andsanitation sector; addressing the needs of the sector with respectto key areas including monitoring and evaluation, communityparticipation, human resource development and health/hygieneeducation; and proposing an outline for strengthening the sectoralagencies in the key areas. The Report provides a background of thesector with particular emphasis on monitoring and evaluation,community participation, human resource development andhealth/hygiene education. A conceptual framework for strengtheningthe Federal and Provincial/State governments capacity to monitorand evaluate RWS&S sector programs is presented. The report alsoproposes an outline of a national strategy for involvement ofcommunity in the planning, execution and management of water,sanitation and health/hygiene education projects.

II. The project was operationalized in September 1991 afterthe appointment of the Chief Technical Adviser. The first outputof the FSU was the Workplan Document prepared in January 1992. TheDocument described the activities and outputs of the Unit envisagedfor the accomplishment of project objectives. The first activitydescribed in the Workplan was a series of visits to provinces forpreparation of the Inception Report. Subsequently visits toprovincial agencies (PHED, LG&RDD, P&D and Health Departments) inPunjab, Sindh, NWFP, Balochistan and Azad Jammu and Kashmir wasconducted and discussions were held with the staff of theseagencies. The Inception Report is based on the findings of thefield visits.

III. A number of issues, constraints and activities related tothe objective of the Project were identified during the fieldmissions. Some of the activities are additional to those envisagedin the original project documents and in the initial Workplanespecially those around MIS development for monitoring andevaluation and ITN related activities. In view of their importanceto project objectives it was considered necessary to redefine theworkplan and incorporate the additional activities in the Workplan.These are discussed in the Report and a revised Workplan ispresented in Annex I and Annex II.

B. ACTIVITIES UNDERTAKEN BY FSU:

1. Prepared workplan for the project.

2. Field trips to provincial PHED, LG&RDD, P&D, Health andSocial Welfare departments in Punjab, Sindh, NWFP,Balochistan and AJ&K.

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3. Participation in following workshop/seminar and meetings:

i. Workshop on SARAR techniques held in Saidu Sharif, Swatin November 1991.

ii. Seminar on 'Involvement of Beneficiaries in Rural WaterSupply and Sanitation Program' held at MTRI Karachi onNovember 25-26, 1991.

iii. Fifth PIRC meeting held in Mirpur in December 1991 .

4. Developed a conceptual framework of an integrated MIS formonitoring and evaluation of rural water supply andsanitation program. The framework is presented in theInception Report.

5. Developed an outline of a national strategy formobilization of community in RWS&S programs, for humanresource development and hygiene education in the sector.The strategy is presented in the Inception Report.

6. Prepared and finalized the Inception Report.

7. Arrangement of fellowships for the Joint Secretary (R),Director (R) and Deputy Director Community Participationand Hygiene Education.

8. Arranged and conducted the study tour of Bangladesh andNepal for PHED and LG&RDD staff.

9. Prepared TORs for the quarterly sectoral newsletter andfinalized selection of consultants for assisting theMinistry in its production.

10. Prepared proposals for a seminar on Community Managementin RWS&S Schemes and for Development of Modules forTraining of PHED and LG&RDD Staff.

11. Reports and articles on sectoral issues prepared for theSecretary and Ministry of LG&RD.

12. Preparing database for storing information on sectorprojects.

13. On-job training of the project counterpart staff.

14. Collaboration with the RWSG-SA and donor agencies in thesectoral programs.

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C. MONITORING AND EVALUATION SECTION

Main Findings

IV. The system of M&E of RWS&S Programs of the two mainagencies (PHED and LG&RD) was reviewed. At present only thephysical and financial progress of under-implementation projects ismonitored by the PHED and the LG&RD departments. The later twodepartments send quarterly progress reports to P&D where theprogress is reviewed and funds are released accordingly. Theprimary reason for this monitoring is to satisfy the requirement ofP&D department. Major weaknesses of the current system aresummarized below:

1. Incompatible format for information collection is used byPHEDs and LG&RD Departments. Different proformas forcollecting information are used by the two departments inthe four provinces.

2. Inadequate information for monitoring and evaluation isbeing collected. Limited data on physical and financialprogress is collected.

3. Lack of proper and systematic method of storinginformation. Data is stored manually on files.

4. Limited manpower resources for data collection.5. Lack of computer facilities in the PHE and LG&RD

departments.6. Lack of staff trained in computer and M&E skills.

Outline of the Proposed Strategy

V. Development of a comprehensive and integrated ManagementInformation System for monitoring and evaluation is a gradual andlong term process and has to be achieved in several steps. Giventhe time and resource constraint of the Project the most feasibleand effective strategy is to work on a pilot scale and concentratein one province, facilitate the sector agencies in development andoperationalization of an MIS for monitoring and evaluation ofsector program in the province and then to propose for replicationof the system in other provinces/state. Once similar systems areoperationalized in all the provinces/ these can be linked to theM&E system at the Federal Ministry of Local Government and RuralDevelopment and data from the provinces can be fed into the centralsystem at the Federal Ministry. Together the provincial and thefederal sub-systems will form an integrated MIS for M&E of sectorprograms.

VI. Field visits to provincial PHEDs and LG&RDDs and ananalysis of the existing situation has led to the conclusion thatat present NWFP offers the maximum potential for successfuldevelopment and operation of an MIS for monitoring and evaluationof RWS&S programs. The two main departments (PHED and LG&RDD) have

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the hardware facilities and trained manpower to operate the system.In view of this it is proposed that NWFP should be selected for thepilot phase of the project. Once a system is developed in NWFP itcan be replicated in other provinces.

VII. Briefly the following steps are planned for developingand operating the system in the selected province:

1. Eliciting the interest, active cooperation andparticipation of the provincial P&D, PHED and the LG&RDDin developing and installing the system in the respectivedepartments. This will be achieved through seminars,workshops and discussions.

2. Establishment of a small M&E cell in PHED and the LG&RDD.

3. Study of the requirements of M&E of RWS&S sector in thethree departments by conducting a systems study.

4. Development of the M&E system. This will include designof proformas, formats of databases and reports andidentification of mechanism of information flow from thefield to the M&E cell. This is the system designcomponent.

5. Installation of the system on computers.

6. Training and orientation of M&E cell staff.

7. Test run and operation of the system.

8. Linkage of the (PHED and the LG&RDD) systems with the M&Esystem at P&D.

VIII. As mentioned earlier the development of a comprehensiveMIS is a long-term process and will require several years; a shortterm arrangement has been suggested to keep the Federal Ministryposted with information on projects and the sector. Thearrangement calls for establishing direct links between the FederalMinistry and the provincial departments (PHED, LG&RDD and HealthDepartments). It is suggested that copies of the monthly andquarterly progress reports of these departments should be obtained.The Ministry will be facilitated in developing a database to storerelevant information of the progress reports. Similar databaseswill be developed at the Ministry for storing information onprogress of sectoral projects: WATSAN, ACWATSAN, IDA AssistedProjects and activities under the Master Plan of Operation. Thesedatabases will be designed according to the requirements of theMinistry and will be updated regularly and strengthened to form aManagement Information System for monitoring the progress ofsectoral programs and for producing monitoring reports.


Newsletter

IX. The Federal Support Unit is also assisting the Ministryin the production of a quarterly sectoral newsletter. Services ofa publication consultant will be hired to assist the Ministry inproducing the newsletter. A consulting agency has been identifiedand Terms of Reference for its production has been developed. Thefirst issue is planned to be published in June 1992.

D. COMMUNITY PARTICIPATION & HEALTH/HYGIENE EDUCATION

Main Findings

X. Operation and maintenance costs accounts for nearly 80%of the funds allocated to PHEDs and LG&RDDs. Cost recovery is lowand users are in general not involved in planning, execution andmanagement of schemes.

XI. Increase in demand for water and sanitation facilitiesand shortage of development funds have made the federal andprovincial line agencies more sensitive to the need of promotingcommunity involvement in the sector.

XII. New and innovative methodologies with strong emphasis oncommunity participation, human resource development, hygieneeducation and cost recovery mechanisms are being planned by sectoragencies for implementation. AJK followed by NWFP have taken leadinitiative in integrating new concepts in water and sanitationprograms. However these efforts need to be reassessed for largescale replication in the country.

XIII. Integration of new concepts in water .and sanitationprojects and their effective implementation requires trainedmanpower. At present there is a need for human resourcedevelopment through training of PHED and LG&RDD staff especially inthe areas of hygiene education and community outreach methods.

XIV. The network of training institutes (NCRD, MTRI, PARD andProvincial Rural Academies) established by the government isprimarily catering to training needs of mid-level managers involvedin rural development. Most of the training is either technicalwith focus on engineering aspects. Generally training programs arebroad based and focus on rural development as a whole withoutspecifically addressing the training needs for water and sanitationsector. The Institutes should also concentrate on development oftraining materials for projects. Shortage of proper trainingequipment and skilled staff are some of the major problemscurrently faced by the Institutes.

XV. Hygiene education has received limited attention within

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the sectoral activities. Some initiatives have been taken bydonors and NGOs (Save-the-Children Fund, HERC, ABES) to strengthenthis component in sector program. Strong linkages need to beestablished between field operators and line departments toaccelerate hygiene education program. Furthermore, communicationmaterials based on local needs should be developed to enhance theefficacy of the hygiene education program.

Outline of the Proposed Strategy

XVI. The strategy is developed with the objectives of:promoting participatory development within water and sanitationsector in Pakistan and; strengthening of hygiene educationcomponent in sector program. Human resource development throughsector specific training is defined as a major component forachieving the strategy objectives.

XVII. A learning phased approach is suggested in the strategyto promote participatory development within the sector. This willfirst involve the testing of different modules of participation,which can then be adapted on a larger scale. In the initial threeyears a phased approach will be adopted for 'CatalyticDemonstration1 and the module project will be consolidated,institutionalized and address the issues relating to its largescale replicability. The module on a provincial level will dealwith shortage of skilled personnel and materials, practicalprocedures for two way communication between managers and extensionstaff and between extension staff and community, methods to enhancewomen's involvement in the process for sustainability of watersupply systems and NGO collaboration in the sector.

XVIII. Punjab and AJK have been selected for the testing thefirst phase of the strategy. The purpose of the exercise is toframe viable options for the delivery of sustainable water andsanitation system. It is proposed that two UN volunteers be placedwithin the LG&RD and two district be identified as focal areas forimplementation of demonstration phase. 3-4 villages will beselected to demonstrate the efficacy and the viability of theapproach developed.

XIX. The second phase is of large scale replication and willcover a period of two years. The approach developed in the firstphase will be consolidated and refined to extend it on a largescale. A comprehensive national strategy based on thedemonstration phase will be framed and delivery mechanisms will befinalized for each province,

XX. Keys areas of focus of the approach are a) ParticipatoryTraining, b) Innovation in Communication Techniques, c) Women,Credit and Enterprize, d) NGO Collaboration, and e) Environment andthe role of Community.

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XXI. A PROWESS team comprising of a training coordinator,communication specialist, WID specialist and UN volunteers isproposed in the strategy and with the establishment of the ITNcentre in Pakistan the PROWESS strategy will be integrated with theCenter to enhance activities in participatory training and tocombine the water and sanitation, and hygiene educationinitiatives.

E. STUDY TOUR OF NEPAL AND BANGLADESH

XXII. A study tour of Nepal and Bangladesh was arranged by theProject for staff members of PHEDs and LG&RDDs engaged in the IDAassisted projects in Sindh, Balochistan and AJK. The purpose ofthe tour was to study sectoral programs and activities designed andimplemented on the concept of community participation. The tourcontributed in developing an appreciation and understanding ofcommunity based sector projects.

XXIII. The group spent five days in Bangladesh and visited theGrameen Bank, NGO Forum, Mirzapur Community Based Water &Sanitation Project and the Duck-weed project. The operationalmethodology of Grameen Bank was examined with the objective ofreplicating the system in Pakistan. Participants from AJK showedkeen interest in implementing the idea. The NGO Forum was anotheruseful concept for establishing linkages among NGOs, communitiesand private sector. The Forum can provide a platform for launchingcoordinated activities for sector development. The MirzapurProject was planned and is being managed successfully by the localcommunity; women have major responsibility in operation andmaintenance of the project. Actual involvement of women in O&M ofschemes was a new experience for the group to observe.

XXIV. The group visited the Butwal Water and Sanitation Projectin Nepal. This was another successful attempt in community basedwater scheme in the country. The Project was partially funded bythe Finnish Development Agency (FINNDA) and involved the localcommunity in all stages of decision making and execution.

XXV. The group was also introduced to the ManagementInformation System developed to support sector activities in Nepal.It is suggested that the M&E adviser and his counterparts from thegovernment and RWSG-SA should visit Nepal and Bangladesh and studyin detail the MIS in operation and under development in the twocountries respectively.

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SECTION A

1. BACKGROUND

1,1 Introduction

At present coverage of rural water supply and human waste disposalfacilities in Pakistan are nearly 59% and 11% respectively[Economic Survey of Pakistan 1990-91]. The government hasestablished ambitious targets for extending water supply andsanitation coverage during the Seventh Five Year Plan (1988-1993)and the Eighth Five Year Plan (1993-98). The target to be achievedby the end of the 7th FYP was 75% coverage with safe and adequatewater supplied and 32% sanitation coverage.

The Strategic Investment Plans (SIPs) were developed with theassistance of the World Bank and CIDA to achieve these targets.Donor investment increased substantially in the sector as a resultof the SIPs and an eight year IDA-funded project valued at Rs4,530.17 million will be started in Sindh, Balochistan and AJK in1992. In NWFP, three projects will be implemented under SIP by theprovincial government with financial assistance of GTZ, KFW and theDutch. The Asian Development Bank has shown interest in funding aportion of SIP projects in Punjab; similar projects are alsoplanned for the Northern Areas.

The Strategic Investment Plans proposed more cost effective andsustainable water, sanitation and hygiene initiatives maximizingcommunity involvement. One of the needs emerging from the SIPs wascapacity building and institutional development to increase theeffectiveness of the sector agencies particularly of PHEDs andLG&RDDs in the areas of monitoring and evaluation, cost recovery,O&M, hygiene education and community mobilization capability. TheFederal Water Supply and Sanitation Sector Support Unit (FSU) wasestablished with the objective of strengthening the Federal andProvincial/State Governments capacity to monitor and evaluate ruralwater supply and sanitation sector programs and to providetechnical support for applied research, particularly in the areasof health education and community mobilization for operation andmaintenance of systems.

The Federal Support Unit is located in the Ministry of LocalGovernment and Rural development, Islamabad and comprises of threeprofessionals; a chief technical adviser, one monitoring andevaluation adviser and a community participation/health educationadviser. The Unit became functional in September 1991 after theappointment of the CTA.


1.2 Sector Institutions

The involvement of government institutions in rural water supplyand sanitation sector is at the federal, provincial and locallevels. Private sector is also involved in the sector. Provisionof rural water supply and sanitation facility is the responsibilityof provincial governments through the ADPs.

Federal Agencies Involved in the Sector

Physical Planning and Housing (PPH) Section, Planning Commission,Ministry of Planning and Development. The PPH Section of thePlanning Commission is responsible for processing water supply andsanitation investments as part of the ADP. Health and hygieneeducation affairs are dealt with by the Health Section. The PPHassesses the PCls for projects or programs above a minimum size andthen seeks approval by the Central Development Working Party. TheSection is also required to seek approval from the ExecutiveCommittee of the National Economic Council (ECNEC) for the sectorAnnual Development Program (ADP) and to coordinate its executionwith the provinces.

Federal Ministry of Local Government and Rural Development (MLGRD).The responsibilities of the Federal Ministry of Local Governmentand Rural Development include coordination among theprovinces/state. Projects concerning rural water and sanitationsubmitted by various Federal and Provincial agencies arescrutinized by MLGRD and comments are sent to the P&D Division orECNEC. The Ministry has a Rural Development Wing which isresponsible for rural works program in cooperation with theprovincial/state line agencies. Under the Strategic InvestmentPlans the MLGRD has been given lead responsibility for Federallevel planning and coordination of the rural water supply andsanitation sector. It is engaged in coordinating theimplementation of the IDA assisted projects, the UNICEF and otherdonor assisted projects.

Provincial Agencies Involved in the Sector

Planning and Development Department (P&D) The P&D department is anadministrative and coordination body. It is mainly responsible forpreparation of the Annual Development Plan for provinces and formonitoring the execution of all developmental activities undertakenin the province and liaison with Donor Agencies. In essence itcoordinates the development activities of all other linedepartments. Funds to line agencies including PHED and LG&RDD arereleased through P&D. Except for NWFP, P&D department has aMonitoring and Evaluation section in the remaining three provinces.The PHE and the LG&RD departments send monthly and/or quarterlyprogress reports of the execution of on-going projects to P&D.These reports are reviewed by the department and funds are releasedaccordingly to the respective executing agencies.


Public Health Engineering Department (PHED) The Public HealthEngineering Departments are the main sector implementing agenciesat the provincial/state level. They are responsible for design andconstruction of water supply, sanitation and drainage schemes.Their major activity has been water supply followed by sanitationand drainage. In rural areas PHEDs have focussed on medium andlarger settlements leaving the smaller ones for LG&RDD. PHEDs aremainly concerned with physical engineering and execution of works.Operation and maintenance of schemes is also a major responsibilityof PHEDs and accounts for almost 60% of their ADP allocation. TheO&M cost has been increasing rapidly and with low cost recoveryrate is proving to be a major burden on the department. Thedeficit between allocation and requirements are met by reducing O&Mactivities and by redirecting ADP from new project allocations. Asa consequence service level is deteriorating and coverage expansionhad slowed down. Given the low financial resources of thegovernment it is envisaged that governmental grants for the sectorwill be reduced substantially in the future. The need forcommunity operation and management of schemes including payment ofoperating and maintenance cost has become extremely vital. Forimproved performance PHED needs strengthening in cost recovery,community outreach and mobilization capability, operation andmaintenance and monitoring and evaluation.

The department is headed by a Chief Engineer who reports toSecretary Public Health. Punjab and Balochistan due to their largesizes have two chief engineers each; the remaining provinces/statehave one CE. Next in hierarchy is the Superintending Engineer (SE)who looks after a circle (of one or more division) and is assistedby Executive Engineers (XEN) placed in district office. Executiveengineer is supported by Assistant Engineers and Sub-engineers.

Local Government and Rural Development Department (LG&RDD) TheLG&RD departments are community-focussed and responsible forcoordination and supervision of the functions of District and UnionCouncils which include basic services such as water supply,community health, drainage and education. The LG&RDD staff worksthrough community at village level and are required to providemulti-discipline infrastructure services.

The LG&RDDs are involved in rural development projects whichinclude water supply and sanitation schemes in small and mediumsized villages, construction of primary schools, basic healthcenters and field to market roads.

The administration of LG&RDD operates at provincial, divisional,district and tehsil levels. The main office is the Directorateheaded by the Director General. At the division level there is aDivisional Director assisted by Assistant Directors. The lowestlevel is the district. Each district has an Assistant Directorsupported by an Assistant Engineer (with sub-engineers workingunder the AE). The AE is responsible for project feasibilities,


site inspection and certification of payments. In addition thereare supervisors who oversee the work of the secretaries of UnionCouncils.

Health Department The Health Departments headed by the SecretaryHealth are responsible for providing preventive and curative healthcare. For the rural sector there is a Divisional Headquartersupervising the district network consisting of District hospitals,Tehsil hospitals, Rural Health Centers, Basic Health Units andMobile Health Units. The RHCs and BHUs are providing mainlycurative health services while preventive content is almostnegligible. The RHCs act as a referral points for BHUs and providea higher level of service. Activities of the Health Departmentsrelevant to the sector include control of diarrheal diseases,maternal and child health care and training of traditional birthattendants who form the link for reaching the villages.

Local Agencies Involved in the Sector

Local agencies involved in the sector are the District Councils andthe Union Councils. District Councils are responsible for:disbursement of ADP grant funds and their own resources forprojects; promotion of excreta disposal and public health;infectious disease control; and water supply and drainage works.Union Council is the lowest level in the two-tier local governmentwith each council covering some 10-18 villages (14,000-21,000people). Their main responsibilities include provision andmaintenance of water supply schemes, prevention of contamination ofdrinking water sources and regulation of water use. They havelimited financial and administrative capacity.

Private Sector

The private sector is playing a vital role in the provision ofwater supply facilities at household level in rural areas whereabundant ground water supplies are available. It has been mainlyinvolved in sinking of tubewells and installation of handpumps.The private sector includes manufacturers of equipment,construction contractors, well drillers, local artisan's andmasons. In addition sanitation facilities in rural areas areinstalled by household owners themselves; they too are consideredpart of the private sector.

Non-Governmental Organizations

The NGO experience in water supply and sanitation in rural Pakistanis very minimal. With the exception of AKRSP in Northern areasthere are very few NGOs involved in water and sanitation activitiesin rural areas. However in the last 5-10 years individual workershave gained substantial experience in the sector by working in theAfghan refugee camps where water and sanitation schemes have beenlaunched by international and national agencies. Experiences of


BUSTI and Orangi Pilot Project in the slums of Karachi and of AKRSPand Mansehra District Planning Program in northern parts of thecountry had positive influence in encouraging NGO involvement inthe sector. NGOs can play an important role in extending water andsanitation coverage in Pakistan particularly in rural areas.

External Support Agencies (ESAs)

A number of external agencies have been actively involved insupporting rural water supply and sanitation programs. UNICEF isthe single largest external agency in the sector. It has supportedthe WATSAN, ACWATSAN and BIAD programs. UNICEF is also developinga Master Plan of Operation (MPO) for activities in the sector. TheMPO will be launched from the next financial year (1992-93). TheWorld Bank is funding an umbrella project in Sindh, Balochistan andAJK under the SIP. UNDP is also supporting activities in ruralwater supply and sanitation. KFW and GTZ of Germany are focussingtheir programs in NWFP. GTZ is involved in the Pak-GermanPromotion of PHED, NWFP Project. The Swiss Development Corporation(SDC) is financing a project in the arid zone of Sindh. Otheragencies involved in the sector are CIDA, ODA, DGIS, WHO and theDutch Government.

1.3 Current Coverage

According to the Economic Survey 1990-91 the present urban andrural coverage of water supply in Pakistan is 85% and 59%respectively and the respective figures for sanitation coverage is62% and 18%.

In 1981 only 6% of the rural population of Pakistan had access topiped water facility. This figure increased to 16% in 1986.Latest figures on the distribution of water coverage by source andsanitation facility are available only for 1986; these are shown inTables 1.1 and 1.2. Table 1.1 shows the percentage distributionof population with and without safe drinking water facility.Distribution of sanitation facility in rural areas is shown inTable 1.2.

1.4 Targets for the 7th and 8th Five Year Plans

The target envisaged in the 7th FYP (1988-93) was to increase thecoverage of potable water supply in rural areas from 40% to 75% ofthe population. The government also aimed to expand seweragefacilities from 10% to 30% of the rural population by the end ofthe 7th Plan.

The Targets in the Perspective Plan (1988-2003) are to provide theentire population with access to clean water and atleast 60% of therural population with access to sanitation facilities.


Table 1.1: Water Supply Coverage in RuralPakistan: 1986

Estmd Hand Total1986 Piped Pumps Pop TargetPop Water Working Covered Pop

PunjabSindhNWFPBaloch.

Total

58.9%18.6%16.2%6.3%

12.0%2.9%

45.0%18.3%

27.0%13.2%2.0%0.3%

100.0% 16.1% 18.7%

39.0%16.2%47.0%18.6%

3 4 . 8 %

61.0%83.8%53.0%81.4%

65.2%

Source: Pakistan Rural Water, Health and SanitationSector Review, World Bank Document 1988.

Table 1.2: Sanitation Coverage in RuralPakistan: 1986.

Latrine inDwellingArea

FacilityOutsideDwelling Coverage

PunjabSindhNWFPBaloch.

21%31%4%19%

Total 11%

14%12%2%22%

7%

35%33%6%39%

18%

Source: Pakistan RWH&s Sector Review,World Bank Document, 1988.

1.5 The Strategic Investment Plans

The Strategic Investment Plans (SIPs) were developed to bringimprovement in the effectiveness of the sector programs and tomaximize the coverage of water supply and sanitation facilities.Government of Pakistan with the assistance of the World Bank andCIDA developed the SIPs for each province, Northern areas and AzadJammu & Kashmir. The SIPs envisage nationwide investment from1991-98 of about US$ 1.22 billion at 1989 constant prices, whichwith the projected levels of domestic resource availability andinternational donor assistance would increase the coverage of watersupply to an estimated 75% of the rural population providing for anadditional 30 million people or a total of 62 million people.

The Strategic Investment Plans identified several major problems ofthe sector. These problems relate to: a) rising expenditure of


operation and maintenance of schemes1; b) low cost recovery; c)poor sustainability of schemes due to non-involvement of communityin planning, execution and management of schemes; and d) lack ofinstitutional capacity and human resources required forimplementing an effective program for rural water and sanitationservices.

The SIPs have proposed a major shift in sector development strategyto address the above listed problems. The Plans call for greaterintra-sectoral coordination between the line agencies in thesector, full recovery of operation and maintenance costs (andcapital costs beyond a basic level of service) for water supply andsanitation systems, enhanced involvement of communities and womenin planning and managing projects and a greater role for hygieneeducation within the program.

The SIPs have two phases; activities during the first phase woulda) strengthen the institutional capacity and* develop humanresources in the sector; b) rehabilitate existing schemes; c)devolve management and O&M cost recovery mechanisms; and d) buildin delivery mechanisms which ensure system sustainability in thefuture, while generally maintaining the rate of investment atunchanged levels. During the second phase the rate of investmentwould increase, expanding coverage as fast as resources permit,achieving 75% coverage of rural water supply by the end of 1998.

1.6 Sectoral Activities

There has been a significant increase in activities in the ruralwater supply and sanitation sector during the 7th Five Year Plan.Several new projects were initiated since 1988; these include theUNICEF assisted WATSAN, ACCWATSAN and VLOM Program, the UNICEFMaster Plan of Operation 1992-96 and the IDA assisted projects inSindh, Balochistan and AJK. Negotiations for funding of SIPprojects in Punjab, NWFP and Northern Areas are underway and it isexpected that implementation of the Plan will start in the currentfiscal year. In addition there are ADP projects and those underthe MPA/MNA program.

There has been a major shift in the implementation strategy and inthe operation and maintenance policy of RWS&S schemes funded bydonor agencies. The new strategy focuses on involvement ofcommunities in planning, execution and O&M of schemes. The shifthas been viewed necessary because of the increasing expenditure onO&M and the inability of PHED departments to meet these expenses.Involvement of community in O&M will substantially reduce the

*It is estimated that if PHED schemes are implemented asplanned under the 1986-90 Investment Program, the O&M cost wouldincrease to Rs 600 million by 1992-93.


financial burden of the government departments (PHEDs) which couldbe spent on development of new schemes. It will also improve thesustainability of schemes.

The activities in the sector are experiencing significanttransformation to incorporate the concepts of communitymobilization, greater role of women and inclusion of hygieneeducation in the sector. Most of the new activities and projectsespecially those funded by international donors are being plannedwith the new concepts.

1.7 Role of Federal Support Unit

The Federal Support Unit has been established to provide technicalsupport to the MLGRD and the provincial line departments in theareas of M&E of RWS&S programs, community mobilization for waterand sanitation schemes and health and hygiene education related tothe sector. The unit will be involved in institutional buildingand human resource development of the Federal Ministry and linedepartments. It will assist the MLGRD in developing acomprehensive MIS for sector monitoring and evaluation and willalso provide guidelines for a national strategy for communitymobilization and health/hygiene education for the sector. The Unitwill identify and prepare sector pilot and research projects.

1.8 Role of the N&E Adviser

The M&E adviser will be responsible for facilitating the Federaland Provincial/State Government's activities in monitoring andevaluation of rural water supply and sanitation sector programs.The adviser will assist the Ministry in developing and testing acomprehensive MIS for continuous monitoring and periodic evaluationof water supply and sanitation sector. He will liaise with sectoragencies (P&D, PHED and LG&RDD) in the provinces to strengthentheir M&E capacities and to develop techniques and tools to ensureconsistency in data collection and management. In the process hewill work closely with his government counterpart and staff fromthe concerned departments. He will also assist the MLGRD in theproduction of a quarterly sectoral newsletter to enhancecommunication and cohesiveness between various sector agencies.

1.9 Role of Community Participation and Hygiene Education Advisor

The community participation and hygiene education advisor will beresponsible for facilitating the federal and provincial/stategovernments to: enhance community participation; foster the role ofwomen, promote human resource development and hygiene education inrural water supply and sanitation sector.

8


The adviser will primarily be responsible for developing anintegrated national strategy to expand and make more effective thehealth education and community mobilization components ofprovincial and federally based WSS projects. In the process, stafffrom government agencies will be trained to carry out the proposedactivities in future.

SECTION BMONITORING & EVALUATION

2. MONITORING AND EVALUATION OF RWS&S PROGRAMS: CURRENT SITUATION

2.1 Introduction

The M&E adviser visited the P&D, the PHED and the LG&RD departmentsin the four provincial capitals and in Muzaffarabad (AJK). Theobjective of the visits was to examine the system of monitoring andevaluation of rural water supply and sanitation programs currentlyin use in these departments and to identify specific areas whereinputs can be provided by the FSU to strengthen the M&E capacity ofthe departments. The following sections are based on the findingsof the visit and discuss the current situation of monitoring andevaluation of the sector.

2.2 Monitoring in the PHE Department

The department is presently engaged in project monitoring withfocus on implementation progress; the element of sectoralmonitoring is almost absent in the current setup. The effects andimpact of projects are also not being investigated and the processof evaluation is non-existent.

The purpose of project monitoring by the PHE department is tosecure the release of funds from P&D. As a consequence the scopeof monitoring has never expanded beyond data collection of a fewindicators of physical and financial progress.

The monitoring of RWS&S schemes/projects is done on a limited scaleby the department. Physical and financial progress of only the on-going schemes are examined by PHED. Once a scheme is executed nosystematic record on its operation, maintenance, coverage, impactor other important variables are maintained by PHED.

The department collects information on a monthly and quarterlybasis on standard proformas developed by P&D. The proformaincorporates information on physical progress, total cost of theproject and expenditure incurred till the date. The departmentsends monthly and quarterly progress report to P&D where theprogress of the projects are reviewed and the remaining portion of


project funds are released to PHED. The data storage and reportingfor the purpose of monitoring is done manually on files; use ofcomputers for this task has not been initiated by the department.

2.2 Monitoring in the LG&RD Department

Similar to PHED, the LG&RD department also follows the monitoringrequirement of P&D and collects information on the physicalprogress and expenses incurred on projects under execution. Thisinformation is provided monthly and/or quarterly to the P&Ddepartment where the progress of the projects are reviewed andfunds are released subsequently.

The concept of sectoral monitoring and of project evaluation isabsent in the department.

2.3 Monitoring in the P&D Department

Except for NWFP the P&D department in all the provinces have aseparate M&E section in their respective provincial headoffices(Lahore, Karachi and Quetta). This section is responsible formonitoring and evaluating programs of different sectors includingwater supply and sanitation.

The department has designed a few proformas forcollection of information on RWS&S projects. These proformas aresent to the PHE and the LG&RD departments for collection ofinformation. The two departments are required to report theprogress of on-going projects on these proformas to P&D department.Monthly and quarterly progress is reported to P&D and thedepartment solely relies on this information for its monitoringrequirements. No site visits are made by P&D to gauge the physicalprogress of projects.

The Planning and Development Department prepares quarterly reportsfor all the sectors concerning the department including water andsanitation. These reports are discussed in quarterly meetings heldat Chief Ministers office and attended by the CM, Secretaries,Chief Engineers PHED, Chiefs of P&D and Director LG&RDD. The mainpurpose of the meetings is to apprise the Chief minister of theprogress of projects. These meetings are held more regularly inNWFP and Balochistan.

2.4 Major Weaknesses of the Current System

The major weaknesses of the current system are briefly discussedbelow:

1. Incompatible format for information collection There is

10


a considerable lack of consistency in data collected byrespective departments in the four provinces and AJK.For example the proforma used by PHED Punjab is differentfrom the one used by the same department in Sindh orNWFP. Similar problem exists in LG&RDD. The result isan absence of effective coordination for informationsharing and for monitoring. There is a need to make thedata collection within and also between the departmentsmore consistent in the provinces and throughout thecountry.

2. Inadequate information for monitoring and evaluation Thepresent system is more concerned with collectinginformation on physical progress and expenditure incurredand exclude data on other aspects of project such ascoverage, usage, impact, operation, maintenance etc. Aset of indicators should be identified which can reflectthe sectoral position and also provide information on theprogress or lack of progress towards project objectives.

. *3. Lack of proper and systematic method of storing

information Most of the information is stored manuallyon files. Although some of the offices of the threedepartments have computers however they remainunderutilized for data storage and report generation. Ithas been observed that the departments do have theirsystem for information management; these may not be uptomodern day standards but can be built upon andstrengthened gradually. For better and continuousmonitoring of programs there is an urgent need tostrengthen the Management Information Systems (MIS)atleast at the provincial offices of the P&D, the PHEDand the LG&RD departments so that monitoring andevaluation can be carried effectively.

2.5 Institutional Considerations in Developing an M&E System

The major steps in developing an M&E system are identification ofindicators, designing of formats for information collection anddeveloping databases for information storage; these are part ofSystems Analysis. Once data is collected and stored on computersthe task of monitoring is simply reduced to the analysis of data.It is relatively easy to identify indicators and develop formatsand database for an M&E system, the complexities arise inoperationalising the system.

For effective and sustainable operation of an M&E system thechannel of information collection should be clearly identified andthe role of agencies, sections and staff involved in the task ofdata collection, its storage and monitoring must be defined. Theseare some of the considerations essential for institutionalizing the

11


M&E system within the concerned department.

During discussions with officials of the three departments (P&D,PHED and LG&RDD) they acknowledged the need for a M&E systemhowever they also referred to the lack of manpower resource as themajor constraint to data collection. In all the four provinces itwas repeatedly asserted that even if a system is developed it wouldbe almost impossible for the departments to collect and store dataregularly unless more resources are provided.

Another major constraint in developing a modern and efficient M&Esystem and its operationalization is the lack of computer skillsand facilities in the departments. The district or tehsil leveloffices of LG&RDD and PHED have not been provided with computers;even the provincial headoffices of these departments and of P&D areat present inadequately equipped with computers.

3. OUTLINE OF THE PROPOSED MIS FOR MONITORING AND EVALUATION OFTHE RWS&S SECTOR

3.1 Objective of Monitoring and Evaluation of RWS&S Project/Sector

A number of schemes of RWS&S are under implementation in thecountry and more are scheduled to start in the near future.Monitoring involves keeping track of progress in the implementationof the scheme and its various components in relation to targets,timely removal of constraints and corrective action if required.

In addition there are completed schemes which also requiremonitoring though the scope and requirements of monitoring in thiscategory is different. It is more concerned with operation,maintenance, usage and cost recovery.

Now that new concepts such as community managed water supply andsanitation systems are being introduced in Pakistan, the need forcontinuous and reliable feedback from the fields to line agencieswill be even more critical. Ideally the solution to therequirements of monitoring and evaluation in the sector can beachieved by developing a comprehensive Management InformationSystem (MIS) which in addition to other requirements can also caterto the need of M&E. However MIS appears to be a long term goal, asa first step we should strive to develop an effective MIS for M&Eand gradually merge it into a more comprehensive MIS.

12


5

3.2 Structure of the Monitoring and Evaluation System4

Broadly monitoring and evaluation is of two types: 1) Project levelM&E and 2) Sectoral level M&E. Though their scope is differentboth are related and essential to gauge the overall progress of theproject and the sector.

3.2.1 Project Level M&E

The purpose of project level monitoring is to check whether theproject is being implemented as planned by ensuring that inputdeliveries, work schedules, expenditure, targeted outputs and otherrequired actions are proceeding according to plan. The objectiveis to examine if there are delays or constraints that need to beresolved immediately.

I. Methodology for improvement in project level M&E in PHED andLG&RDD

At present the two executing agencies - PHED and the LG&RDDare involved in project level monitoring. As mentionedearlier there is considerable inconsistency in the format ofproformas used by PHED in the four provinces and AJK. Similarinconsistency is followed by the LG&RD departments and this isa major impediment in developing a national level database onsectoral projects.

It is suggested that the process of developing acomprehensive, efficient and sustainable M&E system shouldstart with minor modification of proformas to make themconsistent throughout the country. A set of one or twostandardized proformas should be designed for the PHE andLG&RD departments for monitoring the implementation of theirRW&SS schemes. These proformas should be developed keeping inview the requirement of P&D departments of the four provinces.Henceforth in addition to catering to the requisites of P&Dthe proformas should also include information on the type ofproject, its component and coverage and other usefulindicators. Needless to mention that any attempt to capturemore information will result in poor quality of data being fedback from the field. The aim should be to reduce informationneeds to the most essential, and to choose relevant,meaningful and objective indicators.

Although the size of RWS&S projects implemented by PHED is ingeneral larger than those executed by LG&RDD the objectivesand the execution process of the projects remain almost

2 Management Information System (MIS) has a broader scope ascompared to an M&E system. It includes all the areas concernedwith management e.g. accounting, personnel, inventory, M&E etc.

13

IIIIIIIIIIIIIII1IIII

similar. This provides the rationale for suggesting the sameproformas for project monitoring by the two departmentsthroughout the country. If any department in a particulararea has some extra requirements for monitoring, these shouldbe met separately in addition to the above. The idea is thatthere should be atleast one complete set of basic informationon all the on-going projects in the RW&SS sector. Astandardized proforma used for monitoring of RWS&S projects byPHED and LG&RDD throughout the country would facilitate thedevelopment of a national M&E system.

Once information is collected on a consistent format in thefour provinces it can be easily linked and compiled to form anational database and a national monitoring system.Evaluation will follow once the monitoring system isoperational, the information collected in the monitoringsystem will form the basis for evaluation.

II. Monitoring of Completed Projects

Currently there is no system at PHED or LG&RD departments tosystematically monitor the operation of completed projects.For a complete picture of RW&SS projects it is essential tohave a system of information on projects which have beenimplemented and operationalized. Their monitoring isprimarily concerned with operation, maintenance, usage,failure or breakdown, cost recovery and communityparticipation.

A proforma should be designed to collect information pertinentfor monitoring the operation of completed projects. The PHEDand the LG&RD departments should collect this type ofinformation and develop databases of completed projects whichcontinuously display their status.

The two databases (of on-going and completed projects) will beused for M&E and will form the central part of the system.Figure 1 illustrates the structure of the proposed provinciallevel system for monitoring RWS&S schemes. Similar systemsdeveloped in each province/state and linked to the FederalMinistry or P&D Division will form a comprehensive andintegrated M&E system for the sector.

III. Frequency of data collection for project monitoring

The current practice of data collection in the two departmentsis to collect monthly information on the implementationprogress of projects. This information is sent to P&Ddepartment after every quarter. For project monitoring thesame frequency of data collection should be followed. Anyattempt to increase the frequency is both unnecessary andimpractical because of the inability of the departments to

14


Figure 1: Structure of the Provincial Level MIS for M&E of RWS&S Projects

PADDapt

PHE Dapt(H&E call)

1\

Chief Engineer'sOffice

LG&R0 Dept(M&E Cell)

DirectorateOffice

Monitoringof On-GoingRWS&SSchemes

/\

Monitoringof CompletedRWS&SSchemes

/

Sat* onIndicatorsforMonitoring

Data onIndicatorsforMonitoring

Monitoringof On-GoinqRWS&SSchemes

t


Monitoringof CompletedRWS&SSchemes

/\


15


cope with the extra burden of data collection and storage.

3.2.2 Sectoral Level M&E of RWS&S

The sectoral monitoring is mainly done to review the progress inthe sector at the provincial and national levels with the objectiveof streamlining policy level decisions. It shows the status ofsectoral position in provinces and in the country. The purpose ofthis exercise is a) to keep track of the overall progress in thesector; and b) to assess aggregated result of projects in terms ofoutputs and impact on a larger scale.

Sectoral monitoring shows the provincial and national position of:service coverage and type of service, investments in the sector,O&M expenses, cost recovery, number and type of sector projects andimpact of service on beneficiaries in terms of health indicators.The scope of sectoral monitoring is broader and also significantlydifferent from project monitoring. However some overlap existsbetween the two particularly in the area of coverage data which canbe obtained from the project monitoring system.

The M&E system should be designed in a way that the indicators oncoverage, O&M expenses and cost recovery which are required forsectoral monitoring should also be included in project monitoringsystem as well so that the later feeds in to the former. This willfacilitate the task of sectoral monitoring.

The PHED and the LG&RD departments should collect data on coverage,investments, O&M expenses, cost recovery and sector projects anddevelop databases in their respective provinces on sectoralposition. It is suggested that data on impact in terms of healthindicators should be collected by the Health Department and be madeavailable to the Public Health and Local Government Departments.

Frequency of data collection for sectoral monitoring

The sectoral review should be done at the end of the financialyear. This would reflect the change in the sector experiencedduring the preceding 12 months by showing the variation in thecoverage, expenses, cost recovery and activities (projects) inthe sector.

PHED and LG&RDD should compile the information required forsectoral monitoring and send it to P&D for yearly review.

16


3.2.3 Mechanism of Data Collection and Storage

PHE Departments

The sustainability of an M&E system can only be ensured if themechanism of data collection and its storage are clearlydefined and are workable.

Unlike LG&RDD which is involved in several sectors the majorinvolvement of PHED is in water supply and sanitation and itwould be relatively easier for them to identify a mechanism ofinformation flow and storage and to develop and maintainproject/sectoral databases.

In the Public Health Engg. Department the project and sectoraldatabases should be located on computers at the provincialheadoffice i.e. the Chief Engineers office. There should bea small M&E cell headed by an Executive Engineer (XEN) whoshould be responsible for ensuring that the data required formonitoring is being sent from the field every month. Heshould also supervise the validity of data collection and thedata reporting and storage operations.

The XEN should identify persons in each district forcollecting data from field on predesigned proformas and fortransmitting them to the M&E cell. These persons shouldliaise with sub-division/tehsil staff to obtain informationfrom each tehsil. Thus the information will flow from tehsilto district and finally to the CEs office at the provincialcenter. It is important that each person involved in thisprocess should be identified and his/her responsibilities mustbe clearly defined.

Ideally each tehsil or atleast the districts should have theirproject and sectoral monitoring databases, however to startwith the databases should be located at Chief EngineersOffice. The computing facilities at chief engineers officesin the four provinces and AJK are very limited and need to beupgraded to accommodate an effective M&E system.

LG&RD Department

The Local Government and Rural Development Department isinvolved in several sectors which in addition to water supplyand sanitation include construction of primary schools, fieldto market road and basic health centers. This heavy and widerange of involvement is an impediment towards developing andoperationalizing an M&E system specifically for the water andsanitation sector. The department in all the four provinceshave complained of excess of work and manpower scarcity.

However a mechanism similar to PHED (described above) can be

17


suggested for collecting and storing data for project andsectoral monitoring of water supply and sanitation. Theestablishment of a small M&E cell at the provincial headoffice of LG&RDD is essential for operationalization of M&Esystem. The cell should be headed by an Assistant Director oran officer of higher grade. The cell incharge should havelinks with district and tehsil offices and ensure timelyinflow of information required for the M&E system. Theinformation can be obtained from the field on proformas andforwarded to the provincial headoffice for storage andsubsequent analysis.

The computing facilities at LG&RDD are very limited. Only inNWPP the department has a separate computer section with fivecomputers. In Punjab the Community Development Directorate ofLG&RDD has a computer. The department offices inBalochistan, Sindh and AJK do not have any computer.

3.3 Role of P&D Department

The P&D departments have a major role to play in development andinstitutionalization of M&E systems in PHED and LG&RD departmentsin their respective provinces. They enjoy the privilege ofinitiating policy level changes in the later two departments, henceany recommendation for establishing an M&E cell in PHED or LG&RDDor for change in proformas used for monitoring must come from P&D.The FSU must work in close collaboration and with active guidanceof provincial P&D departments.

Once the recommendations for developing an M&E system are acceptedand enacted by the two executing departments, the projectmonitoring information collected by them should be reported to theM&E section of the P&D department on a quarterly basis. Thesectoral level information should be transmitted yearly. P&Dshould have databases for storing the project and sectoralmonitoring information. The sectoral position on water supply andsanitation should be reviewed by P&D before developing the ADP.

Although P&D departments in the four provinces and AJK have threeto four computers installed in their offices their usage forstoring data and for the purpose of M&E is minimal. Most of themonthly or quarterly information is stored manually in files. Themain reason for this underutilisation is lack of trained staff andthe absence of a proper system of M&E based on the concept of aManagement Information System.

3.4 Strategy for Developing and Operationalizing the M&E system

Development of a comprehensive and integrated M&E system for thesector is a gradual and long term process and has to be achieved in

18


several steps. Given the time and resource constraint of theProject the most feasible and effective strategy is to work on apilot scale and concentrate in one province and start the processof strengthening the M&E capacities of the PHE and the LG&RDdepartments in the selected province. The aim is to develop andoperationalize a system in one province/ test the results and thenpropose for replication of the system in other provinces/state.

After selection of province the FSU should direct most of itsefforts in developing M&E systems in the two executing departmentsand in linking them to the provincial P&D department. The completeM&E system will include the sub-systems of the P&D, the PHED andthe LG&RDD. Together the three sub-systems will provideinformation for monitoring and evaluation of RWS&S in the province.Once the pilot system is developed and successfully operationalizedit can be replicated in other provinces/state.

The selection of a particular province should be made afterconsidering the demand for a system from the concerned departments.The province where the management is aware of the need for an M&Esystem, is more receptive to the idea and where sufficienttechnical skills and hardware facilities are available should begiven priority for selection.

The efforts in developing an M&E system in a selected province willinvolve the following steps:

1. Eliciting the interest, active cooperation andparticipation of the provincial P&D, PHED and the LG&RDDin developing and installing the system in the respectivedepartments through seminars, workshops and meetings.

2. Establishment of a small M&E cell in PHED and LG&RDD.3. Study of the requirement of M&E of RWS&S sector in the

three departments by conducting a systems study.4. Development of the M&E system. This will include design

of proformas, formats of databases and reports andidentification of mechanism of information flow from thefield to the M&E cell. This is the System designcomponent.

5. Installation of the system on computers.6. Training and orientation of M&E cell staff.7. Operation of the system.8. Linkage of (the PHED and the LG&RDD system) with the M&E

system at P&D.

3.5 Towards an Integrated System

The ultimate objective of an efficient MIS is to move towardsintegrating the various sub-systems for monitoring and evaluationat the provincial level with that at the national level. It shouldbe appreciated that this is a gradual process and can only be

19


achieved incrementally in phases.

As mentioned above in the first/pilot phase an M&E system will bedeveloped, tested and made fully operational in one province; itwill then be replicated in other provinces. Once similar systemsare installed throughout the country the M&E cell at the FederalMinistry of Local Government can be linked to these provincialsystems. The federal cell will receive project and sectoralinformation from the provinces on a monthly, quarterly and yearlybasis. These information will be stored on databases at theFederal Ministry and will be used for monitoring and evaluation ofthe sector at the national level.

Since this is a long term process which might require severalyears, some arrangement has to be devised at present to keep theMinistry posted with information on projects and sector. For thisit is suggested that direct links should be developed between theMLGRD and the provincial line departments (PHED and LG&RDD) andcopies of their monthly and quarterly reports should be obtainedregularly. A database should be developed at the Ministry to storerelevant information of the progress reports. Similar databasesshould be developed according to the requirements of the Ministryfor storing information on progress of sectoral projects: WATSAN,ACWATSAN, IDA assisted projects and activities under the MasterPlan of Operation. These databases will be updated regularly andstrengthened to form a Management Information System for monitoringthe progress of sectoral programs and for producing monitoringreports catering to the requirements of the Ministry.

3.6 Integrating Existing User Friendly DBMS Package (CESI-Plus)in the National MIS for Monitoring & Evaluation

The CESI-Plus is an Information Management System (IMS) developedby WHO. It uses microcomputer operated databases and is intendedto facilitate planning and coordination in the water supply andsanitation sector. The system is an effective tool forstrengthening planning and coordination in the sector and forsharing fundamental information on activities, results andexperiences among National and External Support Agencies (ESAs).

CESI + can be used very effectively to demonstrate the strength ofa computerized IMS. It can serve to sensitize the top managementof P&D, PHED, LG&RDD and the federal ministries on the importanceof information system. It can help the staff of a sector agency incomprehending the background and the considerations for developingan efficient information system. GESI+ might also facilitatelinkage with regional and global databases at later stage.

As the package is available free of cost and have proven to be userfriendly and flexible it is suggested that demonstration of CESI+should be carried out in the concerned federal and provincial

20

departments. The system should be installed in the FederalMinistry of Local Government and Rural Development and its outputswhich include a regularly updated dossier of sector informationshould be made available to decision makers and planners.

3.7 Hardware and Institutional Constraints in Developing M&ESystem

Some issues crucial for development of the M&E system are discussedbelow:

3.7.1 Lack of Computers It should be noted that in the absenceof computer facilities in the concerned departments theidea of developing and operating a management informationsystem for the purpose of M&E is not possible. Atpresent the PHED and the LG&RD departments (especially inBalochistan and Sindh) are poorly equipped withcomputers. Efforts should be made to procure minimumessential hardware and software for these departments.

3.7.2 Institutionalization of M&E Monitoring and evaluation isyet to be institutionalized by the PHED and the LG&RDdepartments. As mentioned earlier the monitoring carriedout by them is mainly for fulfilling the requirement ofthe P&D department. This has reduced the process ofmonitoring to a mundane and uncreative exercise ofreporting the physical and financial progress of on-goingschemes. The scope of monitoring should be expanded andthe two executing departments should monitor theirschemes with the objective of improving the planning andmanagement within the departments. The purpose ofmonitoring should be to achieve improvements in theimplementation and operation of schemes by timely removalof bottlenecks through appropriate and prompt correctiveaction/ if required. It is thus more of an internalactivity and should be done with the objective ofimproving the performance of the department rather thandoing it just for meeting the requirement of an externaldepartment. This realization within PHED and LG&RDD iscritical to developing and sustaining the operation of anM&E system. With the institutionalization of the M&Esystem the process of monitoring will become an internalactivity based on intrinsic demand which mayautomatically invoke active participation from within thedepartment. Institutionalization therefore requiresformal acknowledgement of the need or a demand for M&E,establishment of an M&E unit and clear delegation ofresponsibilities for accomplishing the tasks involvedfrom within the agency.

3.7.3 Lack of Manpower Resources The process of datacollection from the field for M&E and data storage

21

requires considerable time. PHED and LG&RDD haveexpressed their concern regarding the collection andstorage of data. According to their views the currentmanpower resource available to the departments isinsufficient to absorb the responsibility of operating anexpanded and more comprehensive monitoring and evaluationsystem. For example in Balochistan each XEN of PHEdepartment on average is responsible for 20-30 on-goingprojects and nearly 50 completed schemes, in Sindh therespective figures are 40-45 and 20-25. Similarsituation exists in other provinces for both departments.

The purpose of introducing an MIS is to reduce the workload rather than increase it. The departments shouldtherefore need to be convinced by conducting discussionsand workshops on the advantages of having an MIS.

3.7.4 Transfer of Staff A common tendency in governmentdepartments is frequent transfers of staff. The processof M&E needs considerable training and transfer oftrained staff who are involved in the process should beavoided. There have been a number of projects in thepast which involved extensive training of project staffhowever most of the participants were soon transferred topositions requiring little or no knowledge of thetraining and vice versa.

4. SECTORAL NEWSLETTER

4.1 Background

There has been a substantial increase in activities in the sectorin Pakistan and also in the region during the recent years. Waterand sanitation programs with new concepts such as: greater intra-sectoral coordination between the line agencies, communityparticipation and increased role of hygiene education are beingplanned and implemented in the country and also in the region.Despite the increase in activities on water supply and sanitationthere is very little systematic information on programs, theirstrategies and experiences in implementation, O&M, coverage andimpact. There is a need for updating national sector agencies,other government agencies, local agencies (District and UnionCouncils), NGOs and ESAs on sector information which includes theentire sectoral issues, progress in project implementation, projectexperiences, coverage and other relevant national/regional/globalexperiences. The idea of a quarterly newsletter stems from theneed for dissemination of information on the sector.

Though sectoral activities have increased in the country there hasbeen duplication of efforts. A number of agencies are involved in

22


water, sanitation and related programs and are implementing almostidentical projects without the knowledge or support of otherdepartments/organizations working in the same area. It is commonto witness programs with the same objective being executed in anarea by different agencies. This is mainly because of lack ofintra-agency coordination on project planning, execution andmanagement. The coordination suffers from lack of timely flow ofinformation between agencies involved in the sector. Funds can bemore efficiently utilized by avoiding duplication of effortsthrough effective and coordinated planning. The newsletter willcontribute to better planning by providing prompt information onsectoral programs undertaken by various agencies.

One of the activities of the Federal Support Unit is to assistthe Federal Ministry of Local Government and Rural Development inthe production of the newsletter. The M&E adviser will beresponsible for extending support to the Ministry through hiscounterpart in producing the newsletter.

4.2 Objective of the Newsletter

1. To develop within the Federal Ministry of Local Govt. andbetween other ministries, provincial agencies, NGOs andESAs an effective and sustainable source of informationon water supply, sanitation, health and hygiene educationsectors.

2. To provide updated information on provincial and nationalprograms and sectoral activities.

3. To develop intra-agency coordination in planning,implementation and management of sectoral programs.

4. To facilitate planners and project staff in making betterand informed policy choices.

5. To ensure exchange of views and information betweenagencies and individual professionals.

6. To provide update on regional and global activities andexperiences.

4.3 Contents of the Newsletter and Target Recipients

The newsletter will cover the following aspects of the sector:

1. Periodic review of the sector.

2. Sectoral programs currently under implementation inPakistan*. For example it will inform the progress or

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lack of progress of:

o IDA assisted projects in Sindh, Balochistan andAJK.

o UNICEF projects: WATSAN, ACWATSAN and otherprograms on health and hygiene education.

o Rural Water supply and sanitation component ofTameer-e-wattan program.

o ADP projects.

3. Sectoral activities of the concerned public agencies(PHED, LG&RDD, P&D, Health Dept, Social Welfare Dept andEducation Dept).

4. Activities of NGOs in the sector.

5. Role of private sector and local agencies in improvingrural water supply, sanitation, health and hygieneeducation services.

6. Role of women and community involvement and participationin water supply, sanitation and health services.

7. Water and sanitation technologies, cost of newtechnologies, impact on coverage and delivery mechanisms.

8. Experiences in other sectors beneficial to activities inRWS&S programs.

9. Identify issues for research and report findings ofresearch studies.

10. Regional and global activities and experiences in thesector.

The first 4 issues of the newsletter will be in English and thetarget recipients will be government departments involved in thesector, international agencies and NGOs engaged in RWS&S or relatedprograms. A total of 1,000 copies of the first issue will beproduced. This figure is based on the number of federal,provincial and district level offices of the concerned departmentsand agencies.

The subsequent issues will be bilingual (Urdu and English). Withthe Urdu version the readership can be expanded to members ofdistrict/union councils and even to the village level.

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4.4 Production of the Newsletter

It was decided after mutual consent of the FSU, the Ministry andthe RWSG-SA that an editorial committee comprising of members fromthe Ministry, FSU, RWSG and UNICEF should be established and theservices of a publication consultant should be hired for thenewsletter.

A group of consultant suitable for the assignment has beenidentified and Terms of Reference have been developed. The firstissue of the newsletter is planned to be published in June 1992.

The consultant will be responsible for:

o Collection of articles on the sector from varioussources.

o Feature/story writing, project reporting,

o Script writing, proof reading and

o Page making and layout.

The editorial committee will act as resource center and providerelevant information on the sector issues and guidance to theconsultant. The content of the newsletter will be approved by thecommittee prior to its publication.

The publication consultant will produce a camera ready copy of thenewsletter. Printing of the newsletter will be done by the FSUwith the assistance of UNICEF.

The newsletter will be a product of the Federal Ministry of LocalGovernment and Rural Development and the Ministry through theproject counterpart staff will be involved in its publication. TheDeputy Director (FRW&SCU) will be the Government focal pointinvolved in the quarterly newsletter from the ministry side. Thestrategy of working with a consultant has been suggested to gainfamiliarity with the technicalities of publication. It isenvisaged that the Ministry should gradually take the entireresponsibility of publishing the newsletter within 1-2 years afterit has gained sufficient experience so that when the UNDP fundingis over the Ministry may continue publishing the newsletter on itsown.

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5. PROPOSED PLAN OF ACTION OF THE M&E ADVISER

The following section proposes specific inputs to be provided tcthe concerned departments and the immediate activities to beundertaken milestones to be achieved by the M&E adviser.

1) Newsletter TORs for the newsletter and publication ofthe first issue in June 1992.

2) Activity in NWFP During the field visit the M&E adviserreceived a positive response from the PHED department inNWFP and it appears that the province is potentiallyfeasible for starting project activities towards thedevelopment and operation of an M&E system which can bereplicated in other provinces.

The chief Engineer appreciated the idea of developing aM&E system for RWS&S projects. The Ces office has fourcomputers and also has staff trained on computers. TheCE agreed in principle to establish a small M&E unitmanaged by an Assistant Engineer. The RWSG-SA hasalready submitted a proposal for strengthening the MISfor PHED, NWFP. A consultant will be hired to prepare aproposal with TOR for a comprehensive ManagementInformation System (MIS) development for PHED. Thisproposal will be presented to donor agencies for funding.

The M&E adviser will be involved in supervising the workof the consultant and would provide assistance to theteam in developing the M&E component of the MIS.

The LG&RDD's Directorate office in Peshawar has acomputer section established by USAID. The unit is runby a programmer and has five computers. At present theunit is involved in reporting the progress of Tameer-e-wattan program. The presence of a well establishedcomputer unit within the department offers theopportunity to develop and operate an information systemfor monitoring and evaluating the rural water supplyschemes in the province. The services of a systemsanalyst can be hired for developing the system. As afirst step further discussions with the LG&RDD managementin Peshawar should be conducted and TORs for theconsultancy should be prepared subsequently.

Similar visits to other projects and an analysis ofexisting situation leads to the conclusion that atpresent NWFP offers the maximum potential for successfuldevelopment and operation of an MIS for monitoring andevaluation of RWS&S. The two main departments (PHED andLG&RDD) have also shown interest and have the facilitiesand trained manpower for the system. In view of this the

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major focus of the M&E adviser's activities shouid be onNWFP. Once a system is developed in this province it canbe replicated in other areas.

3) Activity in Balochistan The LG&RD department in Quettahas expressed its keen interest in procuring computersand in MIS. At present the department does not have anycomputer and the entire reporting or monitoring isperformed manually. The IDA assisted project currentlyunder implementation in the Province have a substantialallocation for development of a monitoring and evaluationsystem in PHED and LG&RD department. FSU can provideassistance to the departments in developing the system.

4) Activity in Punjab The RWSG-SA and FSU have beenpursuing PHED Punjab to initiate the development of anMIS for the department. A Project Formulation Frameworkfor the MIS has also been developed by RWSG-SA andprovided to the PHED for their comments. Two follow-upmissions by RWSG-SA and FSU have been arranged to discussthe Framework document with PHED and to seek theirapproval so that further action can be taken. It issuggested that the proposal should be followed up andafter the approval of the department the FSU and RWSG-SAshould work together in selecting consultants for theproject and in supervision of their work.

The LG&RD department in Punjab has a CommunityDevelopment Directorate. The Directorate has two wings:a) Water and Sanitation wing and b) Literacy wing. Theformer is exclusively involved in water supply andsanitation programs; it is run by an Assistant Directorand has one IBM-PS2 computer. There is substantial scopeof developing an information system for the wing formonitoring and evaluation of water supply schemesimplemented by the department. In Punjab the FSU canstart its activities by proposing for development of anMIS for M&E purpose for the Water and Sanitation wing ofthe Directorate.

5) Activity in Sindh The idea of developing an MIS for PHEDSindh was discussed by RWSG-SA with the Chief Engineer.Further discussion is required in this context toconceptualize the idea. The adviser should visit theprovince for to discuss the MIS proposal and to identifyareas where the FSU can provide inputs. FSU can assistthe PHED and the Rural Development department in theprovince in developing M&E system proposed under the IDAassisted project.

6) Removal of Inconsistency in Data Collected by PHED andLG&RDD Section 3.2.1 of this report discusses the issue

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of inconsistency in data collection formats of PHE andLG&RD departments in the provinces/state. Proposals foreliminating the inconsistencies are also presented anddesign of new proformas have been discussed for the twodepartments. Efforts should be made so that identicalproformas are used in future by the two departmentsthroughout the country. As an initial step the P&Ddepartment should take lead initiative for this move.

7) Monitoring of IDA Assisted Projects in Sindh. Balochistanand AJK Execution of the IDA assisted programs in Sindh,Balochistan and AJK is scheduled to start in the middleof 1992. The PHED and the LG&RD departments in the threeareas should be assisted in developing a system formonitoring the progress of various components of theprojects.

8) CBSI-Plus Information Systems Study of CESI+ system,examining its utility and relevance for sector planningand management and development of its databases,demonstration of the system at the Federal Ministry.

9) Database of RWS&S Coverage and Proleet Status for MLGRD:Preparation of databases for the Federal Ministry toreport the current status of the sector and to provideupdate on donor funded projects (ACWATSAN, WATSAN, IDAassisted projects etc). This will be a regular exerciseand the databases will be updated every quarter;quarterly reports according to the requirements of theMinistry will be prepared and circulated to concernedagencies.

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SECTION C

COMMUNITY PARTICIPATION & HEALTH/HYGIENE EDUCATION

6. INTRODUCTION AND BACKGROUND

6.1 Community Participation

In most of the provinces, service delivery mechanisms are highlycentralized, and have resulted in large amounts of public resourcesbeing channeled towards operations and maintenance of existingschemes. Moreover, public agencies in the sector are facing asevere shortage of funds and there is a need for identifying waysof local and communal resource mobilization. Given the high demandfor water and sanitation on one hand and the shortage of publicfunds on the other, federal and provincial sectoral agencies havebecome sensitive to the need of promoting community involvement inwater supply schemes; government agencies have been formulating newand innovative methodologies for encouraging sustainabledevelopment. These include recent initiatives within provincialline departments, which can be a catalyst for transforming the roleof the public sector from a provider to that of a facilitator.However, successful integration of people's participation in thedesign, implementation and management of schemes is hampered by thelack of replicable community based models. There is a need forevaluating and reassessing existing community based efforts, forrecommending strategies in order to incorporate communityparticipation in WS&S projects.

6.1.1 Azad Jammu and Kashmir

The approach adopted for community participation in AJK is wellintegrated in the LG&RD's water supply and sanitation program andis based on a district level strategy and is supported by fieldstaff at the markaz level. Each of the five districts has twofemale promoters supported by an assistant director and each of thethirty markaz has one project manager and one sub-engineer. Theselection of sites is based on expressed community demand forservices and is followed by technical and promotional support.

A detailed monthly promotional plan is prepared by the districtlevel team and is then implemented through the union councils byarranging and holding village level meetings. Consequently, threevillage level committees are formed for males, females andchildren. The male committee functions as a mechanism for costsharing and takes on the responsibility of operation andmaintenance of schemes. Female committees are responsible forpromotion of hygiene education, while the children's committeestake care of school level water supply and sanitation facilities.As a result of this detailed strategy, about 95 percent of

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completed schemes are functional and are being directly managed bythe community.

6.1.2 NWFP

During the sixties, the NWFP government decided that O&M costshould be borne by the users, but no viable system was developedfor the implementation of this decision. Overall, this resulted inthe failure of completed schemes. In 1970, the responsibility ofO&M was shifted to PHED, but no additional funds or staff wasprovided for this purpose. As a result, PHED was over-burdened;the number of completed schemes increased every year while costrecovery remained very low, because 70 percent of schemes compriseof community stand posts which are exempt from cost recovery. Thegap between funds and receipts was further exacerbated by the factthat the remaining 30 percent are house connections and are liableto pay a nominal water tariff of Rs 20, which inadequately coversrecurring costs like electricity charges.

Faced with this growing deficit, the NWFP government decided in1991 to shift O&M responsibility to the community and the followingsteps have been taken to implement this decision:

6.1.2.1 Creation of a separate Directorate for CommunityDevelopment within LG&RD: A Community DevelopmentDirectorate has been proposed in LG&RD, and Rs 30 millonhave been allocated in the ADP for the development ofthis institution. A consultant will be engaged toprepare a proposal for facilitating the establishment ofthe directorate. The main aim of the directorate will beto promote community development for the creation ofsustainable village level water schemes.

6.1.2.2 Establishment of Sanitation Division within PHED: ASanitation Division has been established within PHED withthe support of KFW. The division comprises of amotivation section, which is proposed to have 12 staffmembers, including field level workers. To date, onlyone motivation officer and two health educators have beenprovided to the motivation section. Approval from thePD/Finance Department for the remaining staff members hasbeen granted and recruitment is in process. It isenvisaged that the .Sanitation division will be extendedunder the Social Action Plan. Currently, the SanitationDivision has completed some drainage and street pavementprojects.

6.1.2.3 Technical Assistance from GTZ for Pak-German Project forPromotion of PHED: GTZ has been providing technicalassistance to PHED in the following areas: restructuringof PHED's organizational and financial systems, promotionof low-cost technology, development of models for

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community participation, promotion of community managedoperation and maintenance and concept preparation of apermanent internal PHED training unit. A manual on the"Integrated Concept" for the promotion of communitymanaged water schemes, has been developed to provideworking guidelines for PHED personnel in order toimplement the Strategic Investment Plan. The "IntegratedConcept" was field tested in a KFW assisted project; alldevelopmental activities were implemented through a newlyformed Village Development Organization. Based on theresults of the pilot village, a 3 village pilot programin three different districts, that is Peshawar, Nowsheraand Kohat, has been proposed in the Annual DevelopmentPlan for this year. Project development work has alreadycommenced in Nowshera.

6.1.3 Punjab

Within the water and sanitation sector, PHED and LG&RD have theirclear assignments, that is, the responsibility of local resourcemobilization rests with LG&RD while PHED provides technicalassistance. As a result, there is no community mobilizationcomponent in the PHED and it is overburdened with theresponsibility of undertaking O&M without any community support.80 percent of PHED's annual allocation is spent on the operationand maintenance of the completed schemes and it has becomedifficult to manage O&M of completed schemes and the implementationof new ones.

Accordingly, the Punjab Government has decided to involve thecommunity in sectoral activities, in order to shift theresponsibility of O&M to the community. As per revised policy,Union Councils have been made responsible for the organization andmanagement of the water committees at the village level. Aftercompletion, schemes are maintained and operated by the PHED for atwo year trail period. Thereafter the scheme is handed over to thevillage water committee. Handing over of completed schemes to thecommunity has not been successful and most PHED schemes are notfunctioning. The failure of this scheme can be attributed to anumber of reasons. Union Councils are structurally weak and cannotconduct community level development effectively. Linkages betweenthe elected members of the Union Council and the community arebased on political preferences and this exerts a direct influenceon the selection and timing of development activities. Similarly,the link between the PHED and the Union Council is weak andinstitutionally PHED is not accustomed to working with communitybased organizations. However, a study to assess the performance,to identify the problems and to suggest measures for theimprovement of PHED schemes has been initiated by the P&DDepartment.

The Community development directorate of LG&RD is responsible for

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implementation of the UNICEF assisted water supply and sanitationprogram. The function of the unit is to implement and superviseprogram activities. At the district level, District Coordinationcommittees have been constituted and are functioning to coordinatedistrict level program implementation. At the community level,water and sanitation committees for males and females have beenproposed and will be assisted by the LG&RDD staff to undertakeprogram activities. However, due to lack of supervision andmotivation of the staff involved, the outcome of the CommunityDevelopment directorate does not appear to be impressive. Thesituation could be improved, if the activities, functions and scopeof the Community Development Directorate are clearly outlined.Moreover, a system should be developed for promoting collaborationbetween PHED and LG&RD.

6.1.4 Sindh

Through visits to sindh, it was found that community participationhas not been incorporated in the water and sanitation sector.There are a number of reasons for this obvious lacuna; LocalGovernment and Rural Development function independently as twodifferent departments within the province. Rural developmentdepartment is operating at the policy and district level, while theLocal Government works in a supportive capacity through localcouncils. Overall, their community developmental efforts arehampered because of lack of coordination and collaboration.Moreover, political considerations also discourage communityparticipation. Some initiatives have been taken for communityparticipation in the sector by SAZDA. SAZDA has been involved insix integrated programs in the Arid zone. The main objective ofthe program has been to involve communities in the O&M of schemes.VDOs have been successfully managing village level water schemes,since this program began six months ago.

6.1.5 Balochistan

Majority of the sector investment is made with little communityinvolvement. The schemes are often proposed by influential peopleand very little contact is made directly with beneficiariesregarding their preference or willingness to contribute to theimplementation and operation of the schemes. These pressure groupshave also been successful in convincing the people that provisionof water supply is the government's responsibility.Institutionally, LG&RD is closer to communities and is workingthrough union and district councils. However, the department doesnot have qualified staff to implement community based projects.These issues affect poor cost recovery and 80 percent of totalbudget allocated for the sector is spent on O&M. Participatorydevelopment approaches need to be promoted through the training ofgovernment staff involved in the sector.

Donor agencies like UNICEF, BIAD and Balochistan Rural Support

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Program have been involved in some community based projects. TheWASA low cost sanitation project has developed a unique strategyfor promoting the acceptance and utlisation of low cost sanitationand includes motivation and credit components. Four referencecenters have been established, which operate independently with ateam comprising of a project manager, two female promoters,sanitation promoters from the community and masons. Since 1989,2,000 double pit latrines have been installed and are beingsuccessfully maintained.

6.2 Human Resource Development

Within the sector, there are several types of training institutesthat are being supported either by the government or the NGOs, likethe National Center for Rural Development (NCRD), the MunicipalTraining and Research Institute (MTRI), the Provincial trainingInstitutes at Lala Musa and Peshawar. Most government institutescater to the training of the mid-level officer cadre and currently,there are no training programs for the field level staff. NGOtraining programs essentially focus on providing vocationaltraining and are seriously constrained by the lack of properequipment and skilled staff. There are other problems thatrestrict the utilization of government training institutes for thewater and sanitation sector:

6.2.1 Most training provided, is technical and primarilyfocuses on engineering aspects.

6.2.2 Contextually, training is broad based and focuses onrural development as a whole, without specificallyaddressing the training needs of the water and sanitationsector.

6.2.3 Training in the area of participatory approaches islimited and few materials are available for participatorytraining.

6.2.4 There are no skilled trainers in the area ofparticipatory training.

6.2.5 As noted, training programs are limited to middle levelofficers and this prevents the acceptance and integrationof community development approaches among the senior andfield level staff.

6.2.6 Currently, programs that support training for theenhancement of women's role, are not linked to programsthat train personnel within the water and sanitationsector.

However, training initiatives have been taken at the provinciallevel by PHEDs and LG&RDs, through collaboration with donors. In

33


NWFP, trainings have been conducted by UNICEF for Union councilsecretaries and user committees. These trainings focused on UNICEFprogram orientation and village level management of installedfacilities. Similar initiatives were undertaken in the Punjabprovince through the ACWATSAN program which involved the trainingof mid level to field level staff in village motivationaltechniques. UNICEF sponsored trainings were also conducted inAJ&K, Sindh and Balochistan.

Most of these efforts have been ad-hoc and have been linked tospecific programs. Moreover, there is a need for evaluating theimpact and the efficacy of these trainings on sectoral deliverymechanisms. Upon visiting a demonstration village in Kasur, it wasfound that the impact of community mobilization has been negligiblein terms of the operation and maintenance of water schemes. It isonly recently that efforts have been made to institutionalizetraining within the provincial departments; a proposal has beenforwarded to restructure the PHED in NWFP to include a separatetraining wing, similar efforts are being conducted at the federallevel, and recently a human resource wing was established at theMinistry of Local Government at Rural Development. In the NGOsector, human resource development programs have been launched bythe Sarhad Rural Support Corporation (SRSC).

Additionally, both federal and provincial level institutions areunder utilized and could be supported to provide sector specifictraining. At this stage, it may be rational to adopt a phasedapproach for addressing the training needs of the sector and whichwould involve working intensively with one federal or provincialagency as a vehicle for disseminating participatory approaches.Such a strategy would prevent dispersion of effort and would ensureinstitutional consolidation. Overall, there is need for trainingmaster trainers and developing relevant curriculum and materialsfor meeting the training needs of the sector. In order to supportcommunity based water schemes, there is an urgent need fordeveloping a cadre of sensitive professionals in the water andsanitation sector.

6.3 Hygiene Education

Hygiene education has not been an area of emphasis within sectoralactivities, and most provincial level motivational programs areconstrained by the lack of financial and human inputs. Moreover,there has been an apparent stagnation in communication strategiesand material development in the sector. Innovative communicationstrategies based on local cultural environment, need to bedeveloped in order to enhance the efficacy of existing hygieneeducation programs. Stronger linkages need to be established withfield level operations of government line departments in the sectorand hygiene education promotional programs, in order to increasethe coverage of such programs- A systematic evaluation of the

34


current hygiene education programs should be conducted, in order tolearn from past experiences in the field and in order to propose areorganization of existing hygiene education strategies.Collaboration needs to be encouraged between the Ministry ofHealth, provincial LG&RDs and NGOs. A number of NGO programs areworth mentioning; the Adult Basic Education Society has beenworking in the area of adult literacy in the Punjab and hasdeveloped suitable hygiene education materials, which have beenadequately field tested and can therefore be incorporated innational programs. Similarly, the Allama Iqbal Open University hasbeen developing audio-visual aids for hygiene education involvingclean water, safe disposal of human excreta, personal hygiene, foodhygiene and environmental sanitation. These can be adapted for usein the sector- Additional initiatives have been taken by donoragencies working with Afghan refugees like Save the Children/UK andthe Health Education Resource Center. Materials developed by theseagencies, if suitably modified can be utilized for promotionalactivities within the sector. On a national scale, there is a needfor establishing a Communication and Materials Resource Center,that can promote collaboration between various agencies andencourage the dissemination of materials and the formulation ofindigenous communication strategies. Within the context of theprovinces, the following efforts have been undertaken:

6.3.1 Azad Jammu and Kashmir

There is only one health educator within the health department, whois responsible for overseeing the health and hygiene educationactivities for the whole state; the health educator is responsiblefor organizing, coordinating and supervising the health educationactivities through radio programs, maternal and child healthcenters, rural health centers and basic health units. In watersupply and sanitation, the focus has been on school level healthprograms; however, this program has not been very effective, due tolack of trained promoters and communication materials. Moreover,within the spectrum of health education the emphasis has been onExpanded Program of Immunization (EPI), Control of DiarrhealDiseases (CDD) and anti-smoking.

6-3.2 NWFP

A Health Education Unit has been created in the Health Departmentand is being administered by an Assistant Director HealthEducation, who is responsible for coordinating health educationactivities within the province. The unit provides basicinformation on different health issues through posters, pamphlets,newspaper advertisements and TV-Radio programs and discussions.However, the focus on hygiene education is limited. At the lowertier, district level health officers are responsible for organizinghealth education sessions in rural health centers, basic healthunits etc and for disseminating health education materials throughthe field staff of RHCs and BHUs.

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Materials have been developed by the department on different healthissues but hygiene education has not been a priority emphasis.Funds allocated for material development are very limited and arealways released at the end of financial year, which makesutilization of funds difficult. According to concerned officials,hygiene education can be promoted at two levels: first, throughthe development of hygiene education materials and second, throughthe inclusion of hygiene education in the curricula of differenthealth education training programs. Within donor programs, amanual on hygiene education and other motivational material arebeing developed by the Pak-German Project for Promotion of PHED.The LG&RDD/UNICEF assisted project also includes a hygieneeducation component, however, UNICEF considers hygiene as theprogram's weakest area. The UNICEF program is constrained due tonon availability of materials and the difficulty of fielding femalepromotional staff.

6.3.3 Punjab

A Health Education Unit has recently been created within the Healthdepartment. The Unit provides basic information on diarrhoeacontrol, EPI, TB and family planning through posters, pamphlets,newspaper advertisements and TV-Radio discussions. Implementationof the health education program is based on district level healtheducation officers, whose activities are linked with the fieldstaff of RHCs and BHUs. Hygiene education has been included as acomponent in the UNICEF assisted program, however it needs to bestrengthened through material development and staff training.

6.3.4 Sindh

Different health activities are being implemented through theHealth education Unit of the Health Department. These activitiesinclude the organization of health education sessions in RHCs, BHUsetc and the dissemination of health education material. Materialhas been developed by the department on different health issues,and this includes videos on diarrhea and EPI. However, a lowemphasis has been placed on the development and production ofhygiene education materials.

6.3.5 Balochistan

The health education program includes hygiene education, howeverlimited resources are available for the promotion of awarenesscampaigns. Moreover, field level staff is scarce and lacksrelevant skills for the effective promotion of hygiene education.However, some achievement has come through UNICEF, BIAD and WASAprojects; the WASA low cost sanitation project has a major hygieneeducation component and is supported by household level motivationteams. Within the WASA project, hygiene education has beenintegrated with latrine construction and is being conductedsimultaneously with the construction of latrines. Joint

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promotional materials have been developed and include use andmaintenance of pit latrines, handwashing, storage of food etc.There is a need for evaluating the impact of the hygiene educationprogram through a detailed kap analysis.

OUTLINE OF THE PROPOSED STRATEGY FOR ADDRESSING THE. COMMUNITYMANAGEMENT, HUMAN RESOURCE DEVELOPMENT AND HYGIENE EDUCATION

NEEDS OF THE RWS&S SECTOR

7• PLAN FOR SUPPORT ACTIVITIES

7.1 Seminar on Community Management

7.1.1 RationaleAs noted, the promotion of community based efforts in the WS&Ssector is severely constrained by the lack of adequate information,knowledge and skills. Within South Asia, there are many successfulcommunity managed field experiences. However, there is a need ofpooling, collating and sharing this regional experience. This willhave a two-fold impact:

7.1.1.1 Sharing of information regarding community basedparticipatory projects, will guide policy choices andenable senior decision makers to make more informeddecisions. Moreover, the seminar will also support theimplementation of the IDA assisted RWS&s project byanalyzing community based field experiences.

7.1.1.2 On a more regional level, it will impart an exchange ofideas and will facilitate flow of information, thusproviding a more regional focus to sectoral activities.A cohesive vision of the sector, will ensure theformulation of germane and focused sectoral policies.

7.1.2 Objectives

The overall objective of the seminar is to achieve a COMMONUNDERSTANDING of community management, its significance andimplications.

More specifically, the objectives of the seminar will be:

7.1.2.1 To sensitize decision makers to the importance ofcommunity and women's involvement in water supply andsanitation projects and identify field tested approachesthat can promote community management.

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7.1.2.2 To clarify the distinction between communityparticipation and community management, that is, definethe various intensities of people's participation.

7.1.2.3 To obtain a better understanding of the "regionalexperience" in the water sector.

7.1.3 Outputs

7.1.3.1 A common understanding of community management, withinthe different levels of desicion makers in the sector andhow it can be integrated in WS&S projects.

7.1.3.2 A set of guiding principles for the promotion ofcommunity participation in the WS&S sector.

7.1.3.3 A comprehensive report documenting the findings andrecommendations of the seminar, regarding communitymanagement in the RWS&S sector.

7.2 Study of People's Participation in the Provision of Waterand Sanitation Services for the Poor

7.2.1 Rationale

Despite the growing awareness regarding the need for communityinvolvement, there is very little systematic information availablefrom the field on community management, to facilitate decisionmakers in confidently undertaking policy choices. Methods toincrease people's and in particular women's involvement, aretherefore difficult to operationalise. Particular emphasis needsto be placed on researching and devising strategies for enhancingthe involvement of women in planning, implementing, operating andmaintaining RWS&S projects. Furthermore, there is a need toanalyze the participation experience and its contribution to theefficiency and sustainability of services, in order to provide aguideline for future projects.

7•2.2 Objectives

The t?road objective of this study is to analyze the contribution ofparticipation towards the creation of sustainable and effectivelyutilized water systems.

Specifically, the objectives of the study are:

7.2.2.1 To determine the impact of people's participation inprojects on the economic and social well being ofcommunities.

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7.2.2.2 To conduct a detailed analysis of the costs ofparticipatory and traditionally managed water systems, inorder to determine the short and the long run costeffectiveness of projects. Costs will include upfrontcosts in terms of time, organization, risk taking andcapital and recurrent costs.

7.2.2.3 To identify bottlenecks and problems encountered incommunity managed projects in order to recommend measuresto address these issues and to examine factorscontributing to the success of such projects.

7.2.2.4 To document the process and intensity of participationunder diverse conditions, that is, to identify whatsucceeded and what did not under different conditionslike diversity in institutional arrangements, social andcultural factors etc.

7.2.3

The outputs of the study will address each of the objectivesoutlined in paras 2.1 to 2.6. Specific outputs of the study willinclude:

7.2.3.1 Individual case studies of four community managedprojects, providing detailed accounts of the nature ofpeople's participation and the role of women in theseprojects.

7.2.3.2 A detailed cost effectiveness evaluation, highlightingthe differences in initial and set-up costs, capital andrecurring costs and the short term and long term benefitsthat arise from community involvement in these RWSSprojects.

7.2.3.3 An extensive analysis of funding cycles and their link toparticipation, that is, how participation effects thedisbursement of funds during the life of the project.

7.2.3.4 Some recommendations for the integration of people'sparticipation in large scale national programs.

7.3 Training Workshops

7.3.1 In order to enhance the existing human resource capacityin the sector and to develop a cadre of trainedspecialists in community participation, two 10 day SARARtraining activities are proposed. These will focus onstrengthening the activities of existing agencies,training institutes, sector line departments and NGOs.

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7.3.2 The emphasis of the first workshop will be to support theexisting activities of the provincial line departments,,that is, the LG&RD and the PHED, through the training offield level and mid-level staff in participatorydevelopment.

7.3.3 The second training will focus on the trainers fromfederal and provincial level training institutes and onNGOs involved in participatory development. These willinclude institutions like the PARD, NCRD, MTRI and NGOsinvolved in the Punjab Social Welfare Board initiatives.

8. INSTITUTIONAL ACTION PLANNING

8.1 PROWWESS National Strategy

8.1.1 Rationale

The FSU was established with the aim of strengthening the communitymanagement and hygiene education components of RWS&S programs.However, there are two major problems impeding the operationalintegration of community management principles in governmentassisted projects. First, a well established community baseddelivery system does not exist for large scale implementation ofwater and sanitation programs. Most community managed projects aresmall in scale and spatially isolated. Second, the policy topromote community based management will involve the re-orientationand training of thousands of people who are involved in the waterand sanitation sector. Existing resource commitments, bothinstitutional and financial for training in the sector, will beinadequate to train the current cadre of water sector managers andextension workers, therefore a concerted effort should be made topromote human resource development in the sector.

8.1.1.1. One of the main objectives stated in the PAK/90/013project document is to promote the involvement of womenand of communities in the RWS&S sector. In order tostrengthen the "software" component of the project, ajoint PROWWESS national strategy is proposed, which willfocus on human resource development, communication andmaterial development. The PROWWESS strategy will be away of highlighting and supporting the communityparticipation and WID aspects of the Federal Support Unitand will complement the activities of the Federal Unit inthe areas of WID, community participation andparticipatory training.

8.1.1.2 PROWWESS (Promotion of the Role of Women in Water andEnvironmental Sanitation Services) has expertise inparticipatory approaches for the promotion community

40


managed sustainable projects. PROWWESS has beenoperating in 20 countries and has demonstrated viablemethods of involving women and the community in allstages of water and sanitation projects. Incollaboration with the FSU, NGOs and other internationalagencies, PROWWESS will focus on the following:

1. Develop local capacity and skills in the promotionand application of participatory gender sensitivemethods for the achievement of sustainable waterand sanitation systems.

2. Facilitate and support the development of self-reliant community organizations.

3. Promote the development, production anddissemination of local training materials andtools, including hygiene education materials.

8.2 Strategy to Support Participatory Development within theWater and Sanitation Sector in Pakistan

8-2.1 Learning Phased Approach

A learning phased approach should be adopted, in order to evolveworkable models for demonstrating that community management andwomen's involvement can create water and sanitation systems, thatare effectively used and sustained by communities in the long runwith minimal support from government departments. This will entailthe development of pilot models of participation linked to largescale planned programs, with the active participation of the PublicHealth and Engineering departments, Local Government and RuralDevelopment Departments, NGOs and the private sector and will bebased on a synthesis of experience from the various regions of thecountry.

The learning approach will first involve the testing of differentmodules of participation, which can then be adapted on a largerscale. It is therefore critical to link the National PROWWESSstrategy to existing investment programs in the sector. This willhave a two-fold impact: it will support the implementation of theWorld Bank Rural water supply and sanitation project bystrengthening government delivery mechanisms through the promotionparticipatory approaches and will ensure practical follow up in thefuture. However, given the rapid growth in the urban areas,PROWWESS will also focus on the application of participatoryapproaches in planning and implementation of services for the urbanpoor. Achievement of this can be supported by linking with urbanbased programs like the Orangi Pilot Project, ODA assistedFaisalabad Upgrading Project, World Bank assisted Punjab Urban

41


Development and Lahore Urban Development projects etc.

8.2.2 Phase I Catalytic Demonstration

For the initial three years, a phased approach will be adopted toconsolidate, institutionalize and disseminate what is known fromsmall scale to large scale programs and to address what is unknownin terms of replicability. The basic purpose will be to frameviable options for the delivery of sustainable water and sanitationsystems, based on the existing institutional environment. Theshortage of skilled personnel and materials, practical proceduresfor two way communication between managers and the extension staffand between extension staff and the community, methods to enhancewomen's involvement in the process for the sustainability of watersupply systems, ways to promote mass communication for improvingthe access of women and the poor to information and the need forNGO collaboration in the sector, will be dealt with on a provinciallevel. The first phase of the strategy will focus on the followingprovinces:

8.2.2.1 Punjab

52 % of the population resides in the sweet water zone,where each household is expected to make its ownarrangement for water supply by purchasing hand pumpsfrom the private sector. The private sector has a welldefined role to perform in the delivery of water supplysystems, and can be supported to take on the maintenanceand operations tasks on a profit basis. Similarly, theLocal Government and Rural Development Department (LG&RD)has a well established network of community workers andhas developed a direct link with communities.

In order to utilize and enhance the functions of theLG&RD for the realization of a gender sensitive approachand to identify ways of promoting the role of the privatesector in service delivery, it is proposed that two UNvolunteers be placed within the LG&RD, Two districts,each headed by a UNV, will be chosen within the province,according to the following criteria: overall, investmentplans must exist, so that follow up investments can bemade. Ideally, the district level strategy should belinked to existing or future government or donorinvestment in the sector, for example, collaborating withUNICEF in the implementation of the Accelerated Water andSanitation Program. However, it is important to notethat the districts identified should be disparate, sothat alternate strategies can be developed.

The UNVs will be responsible for identifying 3-4 villagesin each district for initiating and implementing the

42


demonstration phase. A detailed monitoring andevaluation plan, including the formulation of tools forparticipatory planning, will be developed from thebeginning to enable future applicability of theexperience. The role of the UNVs will be integral indeveloping, consolidating and disseminating participatorymethods to promote sustainable water schemes. The UNVswill work closely with counterparts and will be directlyinvolved in the training of field staff in participatorymethods.

8.2.2.2 Azad Jammu and Kashmir,... (AJK)

There are many similarities between Punjab and AJK interms of the water sector. However, in terms ofcommunity participation, AJK demonstrates a relativelyhigh level of development. As noted, the deliverymechanism for water systems is community based and issupported by a strong institutional structure. LG&RD isprimarily responsible for service delivery and has asound network of field staff. The role of PROWWESS willbe pivotal in the implementation of the AJK StrategicInvestment Plan (SIP), which has identified the promotionof human resource development to be critical for sectordevelopment. It has been proposed in the SIP, that atleast 36 extension workers will be trained to promotegender sensitive approaches for the delivery ofsustainable water supply and sanitation.

The purpose of the demonstration phase in AJK, will be toalleviate the constraints that are faced by LG&RD interms of trained staff, propose functional and testedmethods of women's involvement and people's participationand overcome the shortage of training and communicationmaterials, especially in the area of hygiene education.AJK can be a test case for developing indigenouscommunication strategies for promoting hygiene education.A structure similar to the one proposed for Punjab, willbe followed in AJK. Two districts will identified asfocal areas for the implementation of the demonstrationphase. Each district will be headed by a UNV, who willin turn be located within the LG&RD. The UNVs will beexpected to collaborate closely with the project managersof markaz schemes within their district, in order toensure wider application of community based methods.Through their efforts, the UNVs will enhance theparticipatory training and the community developmentcomponent of the proposed SIP for AJK. 3-4 strategicvillages will be identified within each district todemonstrate the efficacy and the viability of theapproach developed. To ensure future application, adetailed monitoring and evaluation system will be

43


developed.

8.2.3 phase II Large Scale Replication

The second phase will cover two years and willconsolidate and refine the approach developed in thefirst phase to extend it on a larger scale. Acomprehensive national strategy based on thedemonstration phase will be framed and deliverymechanisms will be finalized for each province.Tentatively, these will include independent multi skilledPROWWESS teams for each province, including a trainingand communication specialist, Monitoring and Evaluationspecialist, WID Specialist. Different institutionalarrangements will be determined for each province.

8.3 Key Areas of Focus

As mentioned, the main focus of the approach will be to try andaddress the question: How can women's involvement and people'sparticipation be integrated in large scale programs? The followingwill constitute the key focus areas:

8.3.1 Participatory Training

Two barriers that have been identified in undertaking large scaletraining efforts, are the shortage of skilled personnel andappropriate materials. The strategy will focus on the refinementand dissemination of existing tools and training methods to supportpeople's involvement in decision making at all levels, that is,from the community to the national level. This effort will befacilitated by close collaboration with the government, NGOs,relevant training institutes and other external support agencies.Initially, close collaboration will be promoted with 4 or 5 groupsthat can act as resource centers for material development.Ultimately, the training activities of PROWWESS in Pakistan, willbe merged with the ITN Center. In terms of participatory training,the PROWWESS strategy will lay the foundations for the ITN Centerand will be a means of evolving viable training methodologies andmaterials for the sector.

When initiating policy change, there is often temptation to launcha massive national program based on prepackaged modules that havebeen tried elsewhere. Such strategies can prematurely abort thedevelopment of local capacity and will lead to years of costlyadaptation. Given the existing situation in Pakistan and theexperience in other regions of the world, large scale production ofstandardized materials should be postponed initially, and modulesshould be developed based on field experience within differentregions of Pakistan.

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8.3.2 Innovation in Communication Techniques

In order to ensure local relevancy of the approach, it is necessaryto evolve an innovative communication and managerial technique.The area of people's participation in project development, planningand implementation is fairly recent. Hence, there is a need todevelop systems of monitoring and evaluation and to evolvecommunication methods for facilitating two way communicationbetween managers and field staff and the community. This willentail an assessment of the existing incentive systems, flow ofinformation within various institutional structures, planningmechanisms and inter-sectoral linkages. This issue will beaddressed through a combination of applied research, analysis anddemonstration. Activities in this area will be supported by theMonitoring and Evaluation Specialist located at the Federal SupportCell

8>3*3 Women. Credit and Enterprise

In order to enhance the economic role of women and to improve thefinancial sustainability of projects, it is imperative to increasewomen's access to resources, both in terms of credit and training.It is a well established fact that women have a higher propensityof investing their income in the welfare of the family. However,there is only one documented project which has integrated water andwomen's income generation, that is, the Mexico Women, Water andCredit project. In other words, there is a need for formulatingprojects that combine credit with water and sanitation. There isnow considerable experience in extending credit on market rates tothe assetless poor through peer collateral. Within Pakistan,UNIFEM in collaboration with the commercial banking sector, isdeveloping a national credit program that will target women in therural areas. Linkages can be forged with UNIFEM and other relatedprojects, OPP, AKRSP etc, in the area of credit and micro-nterprises.

8-3.4 NGO Collaboration

As noted, Pakistan has a dynamic NGO sector, which has beenactively promoting community based social development. Since NGOscan play an important role as intermediaries between the governmentand the community, it is critical to develop a strategy forsupporting the role of NGOs in the sector. This will involve a twopronged approach. NGOs will be provided financial assistancethrough the PROWWESS NGO Fund. Also, training will be imparted inthe areas of participatory methodologies for upgrading the skillsof the NGO sector.

8.3.5 Environment and the role of the community

Environmental degradation is rapidly escalating in both rural andurban Pakistan as a result of improper management of resources.

45


Water logging and salinity, deforestation, contamination of groundand surface water, are undermining the very existence of rural lifein Pakistan. Within the cities, the existence of stagnant pools ofdrainage water, toxic waste from industries, insanitary disposal ofsolid waste, are posing serious health problems for the urban poor.The National Conservation Strategy (NCS), which was initiatedthrough the Canadian International Development Agency (CIDA) andthe GOP, will try to address some of the above mentioned issues.PROWWESS activities will support the efforts of the NCS, bypromoting the involvement of women and the community in themanagement of the environment and by raising awareness onenvironmental issues. This will involve the development of methodsto elicit community support for the creation of a safer and betterenvironment and to ensure equitable utilization of resources.

8.3.6 Institutional Framework

The following represents the core staff requirements for thePROWWESS National team:

8-3.6.1 Federal level staff

Based on sectoral requirements, there is a need foradopting a more integrated approach towards communitydevelopment, hrd and materials development. This willinvolve establishing a multi skilled team for promotinghrd and community development in the sector. Thus thesize of the National PROWWESS team needed to launch theprogram in Pakistan is:

Senior Training CoordinatorCommunication SpecialistWID SpecialistSecretary/Administration Assistant

The PROWWBSS national team will be headed by a SeniorTraining Coordinator, who will primarily be responsiblefor developing a national training strategy and willmanage and supervise the activities of other teammembers. The Training Coordinator will be supported bytwo development specialists that combine stronganalytical abilities with relevant field experience.The first will be a Communication Specialist and will beinvolved in materials development, while the second willbe a WID Specialist with expertise in monitoring andevaluation and with a background in credit and finance.Each specialist will be responsible for the developmentof the national PROWWESS program, in terms of training,material development and research. Support staff in theform of secretarial assistance, will also be required tofacilitate the operations of the PROWWESS national team.

46


In accordance with PAK/013/90, the National Team will besupported by an international PROWWESS consultant for asix month period, beginning January 1993. The PROWWESSconsultant will be responsible for recruiting andestablishing the National team and will develop detailedterms of reference for the project team. The consultantwill work closely with the existing FSU WID/HygieneEducation Specialist and the GOP WID/Hygiene EducationSpecialist.

8.3.6.2 District Level Staff

United Nations Volunteers (UNV) will be utilized tooperationalise the PROWWESS strategy on the districtlevel. A total of 4 UNVs, with a strong communitydevelopment orientation, will be placed in four districtswithin the Local Government and Rural DevelopmentDepartment or the Planning and Development Department(P&D). Each UNV will be responsible for planning anddeveloping strategies in 3-4 villages and will beimportant in the preparation and dissemination ofalternate community participatory methods for sustainabledevelopment. Activities of the UNVs will be supported bygovernment counterparts, and the UNVs will be involved inthe training of counterparts and the field level staff.The UNVs will report directly to the Senior TrainingCoordinator.

The UNVs will be the focal point for the implementationof the strategy in the field, since UNVs have a stronggrassroots orientation. On average, a UNV has ten yearsof work experience in the field before joining the UNVprogram. Similar efforts are being made by UNDP toharness the experiential strengths of the UNV cadre forthe support of rural development in Pakistan, that isPAK/90/022 and PAK/90/021. Recently, a UNV ProgramManager has been located in Pakistan to assist in thepromotion and management of UNVs in the country.Activities of the district level UNVs will becomplemented by 3 UNICEP supported UNVs at the provinciallevel. The UNICEF UNVs will be responsible for promotingand integrating hygiene education in the sector andfuture areas of collaboration will be identified with theUNICEF program.

8.3.6.3 The Federal level PROWWESS team will be physicallylocated in the Regional Water Supply and SanitationGroup's Pakistan office, in order to ensure synergy inthe operations of the two programs. The activities ofthe team will be supervised by the Country ProgramCoordinator, and will be supported by continualcollaboration with the Regional PROWWESS team located in

47


New Delhi and the ITN Center.

The UNVs will be located within the district level LG&RDor P&D and will work in close collaboration with thedistrict level staff, specifically the Assistant Directorand the field staff, that is, the rural developmentworkers.

9. HUMAN RESOURCE DEVELOPMENT: THE ITN CONCEPT

9.1 Justification

9.1.1 There is a need for expanding national capacity for theefficient delivery of water supply and sanitationservices. Poor performance of delivery mechanisms, canbe attributed to weak sectoral institutions and to thelack of trained and qualified staff. Meeting thischallenge, involves a two pronged approach:

1. Institutional strengthening in order to supportsectoral activities through the creation of apositive environment. This will involve thedevelopment of efficient organizational systems,promotion of inter-agency collaboration, deliverysystems, M&E systems etc.

2. Human Resource Development, involves strengtheningthe managerial and technical skills of sectoralpersonnel through tools such as formal and informaltraining, technical assistance, managementtraining, low cost option techniques etc.

9.1.2 the ITN was launched in 1984 in order to enhance thecapacity of sector and educational institutions to carryout training and other activities in low-cost watersupply and sanitation services. To support thisobjective, the ITN created a network of local, regionaland international training institutions: ITN trainingcenters provide a range of short and medium trainingcourses, disseminate information on low cost water supplyand sanitation options and promote local applied sectorresearch. Training modules have been developed in thefollowing areas: project preparation and implementation,institutional and financial aspects, user participation,health aspects of water supply and sanitation, types ofwater systems, on-site sanitation; sanitation technologyselection etc.

9.1.3 There has been a shift in the focus of the ITN fromtechnology promotion to institutional development, and

48


this has involved a closer working partnership withPROWWESS in the area of participatory development andtraining. It is envisaged that the ITN Center inPakistan will establish a close relationship with theproposed national PROWWESS team. In fact, once an ITNCenter has been established in Pakistan, the PROWWESSteam can be physically housed within the Center.Moreover, the PROWWESS component will enhance theactivities of the Center in participatory training.Integration of PROWWESS with the ITN Center will ensurethe promotion of a multi skilled cadre of water andsanitation professionals for efficient delivery ofservices.

9.1.4 Under the IDA assisted program, training cells have beenproposed for the LGRDD and/or PHED of AJ&K, Balochistanand Sindh, which will provide training for staffdevelopment, skill enhancement etc. It is imperative tosupport this effort by formulating standard guidelinesfor module development and program design. The ITNCenter should provide technical assistance to the IDAproject, in this area. Any human resource developmenteffort in Pakistan, should therefore concentrate onsupporting the new policy towards delivery mechanisms,which promotes:

1. Active user and community involvement in theplanning and construction of water supply systems.

2. Integration of water supply, sanitation and hygieneeducation initiatives.

3. Strengthening and coordination of sectorinstitutions (both government and non-government).

4. Enhanced private sector involvement, and

5. Affordable and sustainable technology options andservice levels that reflect the expressed demand ofbeneficiaries.

9.2 Brief Outline of Proposed Activities

As a follow up to the ITN Center, the following activities havebeen proposed:

9.2.1 As noted, a suitable focal institution needs to beidentified. Ideally, this will involve an establishedtraining institute that offers training focussing oncommunity management of development initiatives to avariety of development personnel, including government

49


and non-government agencies, in both technical and socialscience fields. For this purpose, the National Centerfor Rural Development (NCRD) may be useful for launchingthe HRD effort on a pilot basis. Once the approach isrefined and consolidated, the NCRD ties to the provincialrural development academies can be re-established and amore decentralized provincial training program can bedeveloped.

9.2.2 There is a need for adapting and modifying existing ITNmodules for the local environment. Guidelines shouldtherefore be prepared for developing modules in thefollowing areas:

1. Participatory methodologies for fostering communitybased planning and management of WS&S schemes.

2. Health Aspects of Water supply andSanitation/Hygiene Education

3. Low cost Options and User's Participation

The above modules are not exhaustive and guidelines willneed to be developed in areas related to technology andother technical aspects. However, concentrating on theabove three areas will ensure complementarity between theHRD effort and the PROWWESS strategy and will promotefuture integration of the two programs. Consultants willbe hired and will work closely with the focal ITNinstitution, to conduct a needs assessment for the designand development of training modules. This will involveboth extensive and intensive collection of informationand training material. A detailed terms of reference andbudget will be prepared for this initiative.

9.2.3 A detailed proposal will be prepared for the ITN Center,with active collaboration of the focal institution.

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REVISED WORKPLAN

Monitoring and Evaluation Adviser

Exhibit IDescription of the Outputs of M&E Adviser

ANNEX I

OUTPUTS DESCRIPTION

1. Inception Report

2. Quarterly Newsletter

3. Demonstration ofCESI+ ManagementInformation System

4. MIS for Monitoring& Evaluation ofRWS&S Sector

The report will provide a brief situationanalysis on the current M&E system in theProvincial Sectoral agencies (PHED,LG&RDD and P&D). It will and present anoutline of an M&E system to be developedfor the sector.

The newsletter will be a product of theFederal Ministry and will update thenational sector agencies, othergovernment agencies, local agencies(District and Union Councils) NGOs andESAs on sector information which includesthe entire sectoral issues, progress ofprojects, coverage, project experiencesand other relevant experiences.

The CESI Management Information Systemdeveloped by WHO will be demonstrated andfeasibility of the extent of itsoperationalization will be explained forproducing information on statistics andfor planning and monitoring purposes atthe federal level.

This is one of the major outputs of theproject. The strategy is to select oneprovince and to develop an MIS formonitoring and evaluation of RWS&Sprojects in the PHED and LG&RDdepartments and to link the system withthe MIS in the P&D department. Togetherthe three sub-systems at the PHED, LG&RDDand P&D will form the sector MIS for theprovince. Once an MIS is developed andoperationalized in one province it can bereplicated in other provinces. Finallythe provincial systems can be linked tothe Federal Ministry of Local Governmentand Rural development to form anintegrated system.

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ANNEX I(Exhibit I contd...)

OUTPUTS DESCRIPTION

5. Training & ManpowerDevelopment

6. TOR's for ResearchStudies on wss

7. Workshops & Seminars

8. M&E Report

9. Study Tours

The M&E adviser will also train hiscounterpart from MLGRDD and other staffof line departments in the techniques ofM&E and MIS development. Seminars,workshops and study tours will bearranged for training.

TORs for applied research studies in wsssectors will be prepared by the M&EAdviser in collaboration with the HealthEducation Specialist.

A series of workshops will be preparedfor LGRDD, PHED and P&D departments onthe concept, design and implementationstrategy for M&E system of RWS&S program.The purpose of the workshops will be tosensitize the planners in other provincesfor replication of the MIS in theirprovince.

Towards the end of the project theadviser will produce a report on thewhole issue including the conceptualframework to final product in the pilotarea and the extent of replicability inother provinces. The constraints,bottlenecks and institutional issues inthe sector will be discussed and futureguidelines for further strengthening theM&E system will be presented.

Visit to Nepal and Bangladesh with thecounterpart to study the RWS&S M&E systemin operation and being developed in thesecountries.

52

1IIIIIIIIIIIIIIIIIII

Exhibit II ANNEX I

Activities Related to Each Output

1. Inception Report

1.1 Literature Review1.2 Discussions with the M/o LG&RD staff on the role and

involvement of the Ministry in RWS&S sector and the currentstatus of M&E of programs by the Ministry

1.3 Discussions with RWSG-SA, UNICEF, AKRSP on their activities inthe sector

1.4 Field trips to provincial PHED, LG&RDD and P&D in Sindh,Punjab, NWFF, Balochistan and AJ&K

1.5 Analysis of field trips to identify current status andweakness of M&E system

1.7 Preparation of a situation analysis on M&E systems in waterand sanitation sector

1.8 Conceptual framework for development and implementation of M&Esystem

1.9 Identification of pilot area and formulation of guidelines forplanning, design and implementation of M&E system in NWFP

1.10 Identification of areas where FSU can provide inputs forstrengthening the M&E capacities of the sector agencies.

1.11 Reformulation of outputs and activities on the basis ofsituation analysis and suggested actions.

2. Quarterly Newsletter

2.1 Review of newsletters on water, sanitation and related areaspublished by national and international agencies.

2.2 Discussion with the Federal Ministry, RWSG-SA and UNICEF onthe objectives, contents and target recipients of thenewsletter

2.3 Development of a strategy and plan of action for producing thenewsletter

2.4 Formation of an editorial committee2.5 Identification of a publication consultant for the newsletter2.6 Development of Terms of Reference for the consultants.2.7 Identification of resource persons and agencies for

contributing articles, features and reports.2.8 Supervision of consultant in producing the newsletter2.9 Arrangements for printing and distribution

3. Management Information System for Monitoring and Evaluation ofRWSS Sector

3.1 Literature review and discussions with M/o LG&RD, RWSG-SA,UNICEF on the objectives of the M&E system

53


ANNEX I(Exhibit II ...contd)

3.2 Field trips to provincial PHED, LG&RDD and P&D in the fourprovinces and AJK.

3.3 Study of the current system of M&E and identification ofweaknesses in the system.

3.4 Development of a conceptual framework and a strategy fordeveloping the system

3.5 Selection of NWFP for developing the MIS3.6 Formulation of guidelines for planning design and

implementation of the system3.7 Development of TORs for consultants for design and

installation of M&E system in NWFP3.8 Supervision of consultants during the development of the

system and its operationalization.3.9 Test run of the system3.10 Development of Users and Technical manuals3.11 Development of a phased strategy for replication of the system

in other provinces3.12 Integration of provincial systems into a National Sectoral MIS3.12 Study CESI+ and examine the feasibility of integrating it into

the National Sector MIS

4. Training and Manpower Development

4.1 Identification of areas related to M&E where human resourcedevelopment of sector agencies is required

4.2 Development and /or arrangement of computer training coursesand training workshops for PHED and LG&RD departments

4.3 Arrangement of orientation and study tours for governmentcounterpart

4.4 Identification of fellowship course for the counterpart

5. TORs for Research Studies

5.1 Identification of research areas in water and sanitationsector

5.2 Preparation of TORs for studies5.3 Selection of consultants5.4 Supervision of studies

6. Workshops and Seminars

6.1 Workshops for training in operating the M&E system for PHEDand LG&RD staff in NWFP

6.2 Demonstration of the system at Federal level to sensitizeplanners on the idea of replicating the M&E system in otherprovinces

54

11111111111111111111

6 .3

7.

7 .1

7 . 27 . 3

8.

8 . 1

8 . 28 . 38 . 4

8 .5

ANNEX I(Exhibit II ...contd)

6.3 Demonstration and sensitizing workshops in P&D, PHED and LG&RDdepartments in other provinces

M&E Report

Review of the whole issue related to M&E of RWS&S includingconceptual framework to final product in the pilot areaExtent of replicability in other provincesGuidelines for further strengthening of the system

Orientation and Study Tour of Nepal and Bangladesh

Study of the RWS&S M&E system in operation in Nepal and beingdeveloped in BangladeshMeet sector agencies dealing in M&EMeet consultants responsible for developing the systemMeet Computer Center staff to examine their facilities anddiscuss their training programsMeet RWSG-Sa and WHO project staff to discuss sectoralactivities in general and M&E activities in particular.

55


Exhibit III ANNEX I

Training Component of M&E Plan

1. Workshop I:Workshop will be conducted at the Federal level to present theconceptual framework of the M&E system and its components.

2. Workshops II & III:Two workshops will be conducted; one for the Federal Ministryand one for sector agencies (PHED, LG&RDD and P&D) in NWFP.The CESI+ Management Information System will be demonstratedand the feasibility of its operationalization for datastorage, report generation and for updates on statisticalinformation for planning and monitoring purposes at Federaland Provincial levels will be discussed. The purpose of theworkshop is to introduce the concept of MIS to planners and tosensitize them on the issue.

3. Workshop IV:This workshop is planned for NWFP where the pilot phase of theproject will be implemented. The workshop will be arrangedafter the completion of a systems study of the M&Erequirements of PHED and LG&RDD. Based on the findings of thestudy a workshop will be conducted to present a structure ofthe proposed M&E system and to discuss mechanism foroperationalization of the system. The objective of theworkshop is to elicit opinion, suggestions and comments on theproposed model.

4. Workshop V:The workshop will be conducted in NWFP after the developmentand trial run of the system. The system developed for M&Ewill be presented and discussion will be held on itsconstraints and further refinement.

5. Series of Seminars:After the final development and operationalization of the M&Esystem in NWFP, a series of seminars will be arranged atFederal and Provincial levels to introduce the idea ofreplicating the system in other provinces. At the provinciallevel the seminars will be held in the PHED, LG&RDD and P&Ddepartments, the system developed in the pilot phase will bepresented in the seminars and its advantages will bediscussed.

56

Exhibit IV ANNEX I

Proposed Schedule of Activities of the M&E Adviser

Activities andOutputs

Year I

S 0 N D J M M

Year II

O N D M A M

1. Inception Report

2. Field Visits

3. Newsletter

4. Demonstration ofCESI

5. MIS for Monitoring& Evaluation

6. Training & ManpowerDevelopment ThroughWorkshops & Seminars

7. TORs for ResearchStudies & Consultancy

**

*************Backgroundwork

*****************Conceptualframework &workshop

** **WS-I WS-II

***************Developmentof the systemin the selectedprovince

**WS-III WS-IV

********TestRun

***********Refinement,editing &presentation

**

ws-v

** **

***********Efforts forreplicationin otherprovinces

***********Seminars onreplicationof the system

8. M&E Report ** **

9. Orientation andStudy Tours

**

CESI = Country External Support Information SystemWS = Workshop

II1IIIIIIIIIIIIIIIII

OUTPUT

REVISED WORK PLAN ANNEX II

COMMUNITY PARTICIPATION/HYGIENE EDUCATION ADVISER

Exhibit IDescription of the Outputs

DESCRIPTION

1. Inception report

2. National strategyfor involvementof beneficiariesin RWSS

3. Trained manpower

4. Supervision ofapplied researchstudies byconsultants

The inception report will provide anupdate of RWSS&S programs on communitymobilization, human resource developmentand hygiene education. An outline of theproposed strategy for addressing thecommunity management, human resourcedevelopment and hygiene education needsof the sector will be presented.

This is the major output of theadviser. The strategy will assist thefederal and provincial departments inmobilization of communities and inintegration of health and hygieneeducation in RWSS. The strategy proposesto adopt a learning phased approach, inorder to evolve workable model fordemonstrating that community managementand women involvement can create waterand sanitation systems that can beeffectively used and sustained bycommunities in the long run with minimalsupport from government departments. Thiswill entail the development of pilotmodels of participation linked to largescale planned programs,with activeparticipation of the PHEDs LGRDDs, NGOsand private sector and will be based on asynthesis of experience from variousregions of the country.

The advisor will train the counterpartand provincial level staff of concernedagencies on participatory trainingmethodology and on integration of hygieneeducation with WS&S program.

The adviser will be responsible forpreparation of TORs and supervision ofconsultant's work during the studies.

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ANNEX II(Exhibit I...contd)

OUTPUT DESCRIPTION

5. Assistance toPROWWESS activities

6. Assistance innewsletter

7. Support inpreparation ofnew project

8. Development ofhygiene educationpackage

9. Series of workshopsand seminars

10. Study Tours

il. Final Report

Assistance will be provided byadvisor to RWSG in PROWWESS activities inPakistan.

Assistance will be provided to M&Eadvisor in preparing the newsletter.

Technical assistance will be providedto sectoral agencies if needed.

A standard hygiene education packagewill be developed with collaborationOf UNICEF and RWSG.

A series of workshops and seminarswill be planned and conducted assupport activities for proposednational strategy. The purpose ofthe workshops and seminars will beto sensitize the planners and orientthe mid-level managers and fieldworkers for replication of thenational strategy.

Visit to Nepal and Bangladesh withCommunity Participation Specialist ofRWSG-SA to study the involvement ofbeneficiaries in the rural water supplyand sanitation sector. Local study toursalongwith concerned staff of Sindh andBaluchistan to PHED and LGRD in NWPP, ARCPeshawar, BWASA Quetta, AKRSP Gilgit andOPP, Karachi for sharing experience.

On completion of the project the advisorwill prepare a report on her activitiesand involvement in the sector. The reportwill include identification of the issuesof community participation, womeninvolvement and hygiene education andsuggest actions for strengthening andimplementing the proposed strategy.

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ANNEX IIExhibit II

Activities Related to Each Output

OUTPUT ACTIVITY

1. Inception report

1.1 Field visits to provincial PHED, LGRDD, P&D,Health Department,Social Welfare Department and NGOs in all the provinces andAJK.

1.2 Analysis of field trips to identify current status andweaknesses in the community participation, HRD and hygieneeducation components of sector program.

1.3 Preparation of situation analysis on community participation,women involvement and hygiene education.

1.4 Literature review1.5 Discussion with RWSG-SA, UNICEF on their activities in the

sector.1.6 Conceptual frame work for linking of PROWWESS national

strategy with existing strategy for large scale replications.1.7 Reformulation of out-puts and activities on the basis of

situation analysis and suggested action.

2. National strategy for involvement of beneficiaries in RWSS

2.1 Supportive Activities

2.1.1 Plan and conduct 2-week trainingprogram on participatory methodology for the staff ofPHED &LGRDD of NWFP,AJK, Sindh andBalochistan.

2.1.2 Plan and conduct 2-week training program for mastertrainers involved in the PARD, NRCD, MTRI, provincialRural Academies and in the private sector.

2.1.3 Develop TORs for Community management seminar.2.1.4 Develop TORs for applied research studies with

collaboration of RWSG on following areas:

a) People's Participation in the provision of Waterand Sanitation Services for the Poor.

b) Promotion of community participation and technologyoptions.

2.1.5 Supervise consultants work during studies.

2.2 Institutional Action Planning

2.2.1 Assistance required by RWSG for establishment of ITNCenter in Pakistan.

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ANNEX II(Exhibit II... contd)

OUTPUT ACTIVITY

2.2.2 Assistance in PROWWESS training programs.2.2.3 Assistance in operationalization of the PROWWESS

national strategy and establishment of existingInvestment strategy in the sector.

2.2.4 Assistance to demonstration strategy implemented underthe PROWWESS strategy for Integration of Hygieneeducation, WID and community participation in RWS&Sprojects.

3. Trained Manpower

3.1 Involve the counterpart in all activities of the advisorthroughout the project implementation.

3.2 plan & conduct study tours for concerned staff dealing withWS&S project in MLGRD, PHED, health Department and CommunityLeadership.

3.4 plan and conduct regional study tours to Bangladesh, Srilankaand Nepal (where WS&S Sectors activities have been planned andsuccessfully implemented through participatory approach).

3.5 plan and conduct local study tour to AKRSP (N.A.) AJK, OPP,B.WASA and other similar projects.

4. Assistance to M&E Advisor.

4.1 Assist M&E Adviser in preparing and disseminating a sectoralnewsletter.

4.2 Assistance to M&E Advisor in development of a strategy andplan of action for producing the newsletter

4.3 To act as a member of newsletter editorial committee4.4 Selection of a publication material for the newsletter4.5 Selection of resource persons and agencies for contributing

articles, features and reports.

5. Support in new Project.

5.1 Extend technical support in capacity building and HRD to thenewly established Community Development Directorates in NWFPand Punjab.

5.2 Extend technical support to NWFP,Punjab and Northern Area forpreparation of new projects as per strategy guide linesrecommended by SIPs.

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ANNEX II(Exhibit II. .. contd)

OUTPUT ACTIVITY

6. Development of Hygiene Education Package.

6.1 Study existing system for hygiene education in government andno-government agencies.

6.2 Collect material currently being used for hygiene education byvarious sectoral agencies.

6.3 Develop and pre-test material with collaboration of UNICEF andRWGS.

6.4 Develop and disseminate the package to the relevant sectoralagencies.

7. Series of workshops and seminars.

7.1 A training Workshops for training on SARAR techniques for PHEDand LGRD staff.

7.2 a training workshop on PROWWESS techniques to train mastertrainers of NCRD, MTRI, PARD, rural academies and participantsfrom private sector.

7.3 A seminar on Community Management for sensitization ofdecision makers.

7.4 A seminar on Experience Sharing of PHEDs.

8. Study Tours to Nepal and Bangladesh

8.1 Visit to Nepal and Bangladesh with Community ParticipationSpecialist of RWSG-SA to study the involvement ofbeneficiaries in the rural water supply and sanitation sector.

8.2 Local study tours alongwith concerned staff of Sindh andBaluchistan to PHED and LGRD in NWFP, ARC Peshawar, BWASAQuetta, AKRSP Gilgit and OPP, Karachi for sharing experience.

9- Project Report9.1 Review of sectoral issues related to community participation,

women involvement and hygiene education.9.2 Identification of sectoral weaknesses and recommend remedial

actions.9.3 Guidelines on community participation, human resource

development, women involvement and hygiene education forinter-provinces replication and sharing of experience.

61

AHKEX IIExhibit III

e of Borkplan

Activities and Outputs Tear I

S O I D J F

Tear II

S O M D J F H A H J J A S O R

Inception Report

Field Visits

Study Existing Systen, SIP andRegional HSS and Health Systan

Applied Research Studies

Demonstration for theDavelopnet of National Strategy

Assistance to PBOWWESE Activities

Assistance in Newsletter

Support in Preparation of Haw Projects

* *

* • Indicates continuous activity

ANNEX IIExhibit IV

Revised Schedule of Workplan for Training Activities

Activities and OutputsS 0

Year IN D J F M A H J J A S 0 N D J

Year IIF M A M J J A

1. Facilitate in SPO Workshop fortheir field staff.

2. Participatory training methodsworkshop for Staff of SD-PHED,LGRD of KHFF, AJK, Sindh andBaluchistan.

3. CoBBunity Management Seminar forDecision makers and planners

4. Participatory training MethodsWorkshop for Master Trainers ofNCRD, HTHI, PARD and ruralacademies of Jan Shoro andLala Husa.

5. Workshop on sharing experienceof PHEDs of all provinces.

6. Project launch workshopfor IDA assisted project staff inAJK, Balochistan and Sindh.

7. Regional study tour toBangladeshNepal.

8. Inland study tour to B.HASA Balochistan,ARC HWFP OPF Karachi.

9. Inland study tours toAKRSP.HVFP, OPP and AJK.

**


ANNEX III

1. Terms of Reference for the PROWWESS National Team

1.1 The PROWWESS team will be supporting activities at two levels,that is the federal and the district level. On the federallevel the team will work in close collaboration with theFederal Cell Unit staff, to develop a comprehensive nationalstrategy for women's participation in the water supply andsanitation sector. The team will also liaise with traininginstitutes, both federal and provincial, to determine areas ofcollaboration and to provide assistance in training andmaterial development. The team will also work closely withrecent hrd initiatives in the NGO sector, like the proposedHRD Network. On the district level, the team will strengthenthe community development component of the LG&RD and identifyand develop workable models of people's participation.

1.2 The team will also support the activities of other donors inthe area of participatory training and materials developmentand will liaise closely with donor projects in the water andsanitation sector i.e, the IDA assisted RWS&S Project and theproposed UNICEF participatory development project inBaluchistan, in order to promote sustainable community basedsystems.

1.3 In general, the team will provide technical support, undertakeapplied research and develop communication networks. Specificterms of reference for the National PROWWESS team are outlinedbelow:

1.3.1 Develop and implement a plan of action for thepromotion of gender sensitive methods to achievesustainable water supply and sanitation systems.This will involve the investigation ofmethodologies for enhancing women's and theCommunity's role in water supply and environmentalsanitation projects and an assessment of theapplication of various participatory models inlarge scale programs.

1.3.2 Plan and develop a detailed training program forthe training of senior level, mid level andextension staff in participatory methods.

1.3.3 Strengthen the activities of existing traininginstitutes in the areas of curriculum developmentfor participatory training and materialsdevelopment.

1.3.4 Develop and produce communication materials incollaboration with the ITN Center in Pakistan and

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ANNEX III

establish a materials resource center.

1.3.5 Organize and plan workshops in participatorytraining methods for community development focusedon different target groups and for the training oftrainers.

1.3.6 Frame a detailed monitoring and evaluation systemfor community based projects and formulate an indexof impact indicators for measuring the impact ofcommunity participation in projects.

1.3.7 Strengthen the community development component ofthe World Bank assisted Rural Water Supply andSanitation project.

1.3.8 Identify ways to enhance the role of women inenvironmental management.

1.3.9 Identify and conduct applied research to supportall of the above mentioned activities.

2. Job Descriptions for Professional Staff

2.1 Senior Training Coordinator (Project Coordinator)

Qualifications: Should have at least seven years fieldexperience in community management or participatorydevelopment. Have extensive experience with training,evaluation and strategy development for participatoryprograms and a thorough knowledge of community basedapproaches to development and their application.

Specifically the Senior Training Coordinator will:

2.1.1 Plan and manage the activities of the PROWWESSNational team and prepare regular work plansto ensure that activities of the team proceedin an effective manner.

2.1.2 Monitor and supervise the activities of theUnited Nations Volunteers at the districtlevel.

2.1.3 Review sector development strategies withregards to community management with womens'participation and participatory trainingwithin Pakistan.

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ANNEX III

2.1.4 Liaise with relevant provincial and federalagencies in the health, education and WSSsectors in the development and implementationof an integrated support program.

2.1.5 Provide advice and inputs into all activitiesrelated to community management, WID andparticipatory training components of theUNDP/World Bank Water Supply and SanitationProgram in Pakistan.

2.1.6 Prepare a plan of action for the use ofconsultants for specific inputs in the areasof health education, participatory developmentand WID issues.

2.1.7 Provide assistance in the development and useof participatory development skills,m e t h o d o l o g i e s w h i c h f o s t e rinstitutionalization of community and gendersensitive management in demonstration andlarge scale projects.

2.1.8 Prepare, manage and conduct training programsand events related to community management,participatory techniques and gender issues.Assist in curriculum development andmodification.

2.1.9 Responsible for the preparation and deliveryof practical training tools and materialsrelated to community management andparticipatory techniques at all stages ofdesign, implementation, monitoring and

evaluation of programs.

2.1.10 Synthesize existing experiences on communitymanagement, prepare periodic reports andpublications.

2.1.11 Participate in report writing, budgetpreparation, preparation of consultancyproposals.

2.2 Communication Specialist

Qualification: At least five years experience incommunications support for development programs. Somegrassroots and field experience is desirable. Have

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ANNEX III

technical skills in development of communication toolsand products such as video skills, artwork and designskills. Participatory training orientation ispreferable. Should hold a degree in communications orrelated disciplines.

Specifically the Communication Specialist will:

2.2.1 Assess the need for communication strategiesas part of demonstration and large-scalesector investment programs.

2.2.2 In collaboration with the GOP Health EducationSpecialist, assist in the design of programsand projects integrating communicationsstrategies and applications.

2.2.3 Determine in collaboration with the SeniorTraining Coordinator, gaps in neededmaterials, and conduct design and preparationwork for material production.

2.2.4 In collaboration with the GOP HygieneEducation Specialist and the UNVS, designcommunications strategies and inputs such asaudiovisual modules and materials, to supportparticipatory training at the district level.

2.2.5 Involve NGOs and government traininginstitutions to develop their capacity tosupport the water supply and sanitation needsfor communication inputs.

2.2.6 Assist in the production of communicationtools, including participatory trainingmaterials.

2.2.7 Prepare detailed terms of reference for aMaterials Resource Center, to supportmaterials production in Pakistan.

2.2.8 Assist in the replication and dissemination ofcommunications strategies and tools that areproven effective.

2.2.9 Design and test strategies that linkparticipatory education approaches with massmedia inputs.

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ANNEX III

2.3 WID Specialist

Qualifications: At least five years experience, includingwork at the grassroots level. A track record inpromoting gender sensitive development programs. SomeWater and sanitation sector experience is desirable.Extensive experience with monitoring and evaluation ofgender sensitive programs and some background in credit.

Specifically the WID Specialist will:

2.3.1 In collaboration with the GOP WID Specialist,assist in the institutionalization of gendersensitive planning, implementation andevaluation in water supply and sanitationprojects.

2.3.2 Develop a detailed monitoring and evaluationsystem for gender specific targeting andcommunity based projects. Specifically, theWID Specialist will be responsible fordeveloping an index of impact indicators forcommunity based projects.

2.3.3 Forge linkages with programs which facilitatewomen's access to credit and micro-enterpriseswith water and sanitation programs.

2.3.4 Review the WID approaches of national sectordevelopment strategies and WID components andadvise on future directions and activitieswithin current and upcoming workplans.

2.3.5 In collaboration with the GOP WID Specialist,initiate and supervise applied researchconcerning gender issues in the country.

2.3.6 Participate in report writing, budgetpreparation, work plan production andpreparation of consultancy reports.

2.3.7 Ensure integration of WID concerns in theactivities of the water supply and sanitationsector through the International TrainingNetwork and NGO linkages.

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ANNEX III

2.4 Community Development United Nations Volunteer

Qualifications: Have at least seven years experience incommunity development at the grass roots level.Background in water and sanitation or rural developmentis preferred. Experience in Asia would be desirable.Should have knowledge of participatory training and itsapplication.

Specifically the Community Development UNV will:

2.4.1 Provide advice and inputs into all activitiesrelated to community management, WID andparticipatory training components at thedistrict and/or provincial level.

2.4.2 Provide assistance in the development and useof participatory development skills,methodologies and materials which fosterinstitutionalization of community and gendersensitive management in district and/orprovincial level programs.

2.4.3 Formulate and implement alternate strategiesfor community participation in order topromote sustainable development at the villagelevel.

2.4.4 Prepare, manage and conduct training programsfor field level staff in community management,participatory techniques and gender issues.

2.4.5 In collaboration with the Federal level staff,prepare practical training tools andmaterials, to be used in district and/orprovincial programs.

2.4.6 Increase knowledge and understanding' ofrelevant technical, financial, institutionaland health/ hygiene issues for the promotionof sustainable water and sanitation projects.

2.4.7 Liaise and develop contacts with communitybased organizations and frame methods forenhancing their activities in the water andsanitation sector.

2.4.8 Support existing formal and informal creditsystems and prepare strategies for improvingthe access of women to credit.

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ANNEX III

2.4.9 Participate in report writing and detailedproject formulation at the district and/orprovincial level.

II

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i • ; ' inception report · undp/world bank/ unicef project pak/90/013 government of...

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