COMMUNITIES TAKE CHARGE OF LOCAL SANITATION FACILITIES · 2014. 3. 9. · 1.5 Definition of...

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COMMUNITIES TAKE CHARGE

OF LOCAL SANITATION FACILITIES

Chak-7jb, Faisalabad, Pakistan(October 2001)

S.M. Khatib Alam and Ejaz Ahmad

This document is produced as part of the Faisalabad Area Upgrading Project (FAUP) forthe purpose of disseminating lessons learnt from FAUP. The views expressed are notnecessarily those of DFID or the Government of Pakistan.

© FAUP 2001

Parts of this case study may be reproduced for educational use, provided that such

material is not printed and sold. The authors expect, that any material, which is used will

be acknowledged.

Front Cover: Neighbourhood-C in Chak-7jb: Community members proudly showing-off

their sewerage system (See back cover for "before condition")

Layout & Designed by

At:

The Mall Jhang, Pakistan.E-mail: [email protected]

Kashif Abbas Malik

FaizBakht Printers

This research is one of a very interesting range of case studies that are currently being undertakenby Faisalabad Area Upgrading Project (FAUP) based upon it's seven years of experience ofworking in four pilot project katchi abadis and slum areas of the City. The context of this study isenvironmental improvement within low-income areas of Faisalabad City and focuses on theintegrated and inclusive approach to development so that sanitation facilities are available forall.

Although, a very large portion of the population of Pakistan resides in rural areas where thesewerage systems tend to have independent outlets and are comparatively cost effective, thereare an increasingly large number of people who reside in the urban areas where the sanitationsystems require a more holistic and integrated approach to development.

A key partner of FAUP has been the Water and Sanitation Agency (WASA) Faisalabad, and thisdocument clearly shows that one of the key findings of the project is that it is possible to workthrough a government line department, be responsive to community demand, use governmentrules, regulations and staff and still work in an equitable and transparent partnership withcommunity members

Furthermore, the study provides valuable insight into a number of strengths and weaknesses ofworking to improve the sanitation of katchi-abadis and also suggests that the Government ofPakistan's Devolution of power programme provides an opportunity to expand the FAUP modelto the rest of Faisalabad and Punjab.

This case study will be extremely beneficial for those private and public organisations andinstitutions, which are about to conceptualise, plan or implement sanitation programmes inpartnership with local community members. I am confident that the document will be a valuableasset to other professionals, researches and planners.

Lt. Col (R) Engr. Syed Ghias Ud DinManaging Director

Water and Sanitation Agency, FaisalabadOctober 14 2001

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FOREWORD

The ancient civilisation of Pakistan like Harappa and Moenju Daro had developed and

maintained one of the best sanitation networks in this part of the world and the ruins of these

civilisations are testimonial to these systems. It proves that effective and efficient sanitation

systems have always been a priority need of communities since the very beginning. In the 21

Century, the provision of a good sanitation system remains a priority need for many communities

and is regarded as one of the most important indicators to measure socio-economic development

status of a society

Faisalabad Area Upgrading Project (FAUP) has been working in Faisalabad City since 1994-95

and has focused on devising and testing appropriate government-community driven models for

improving the quality of life for the poor, the poorest and the most vulnerable in society.

Improving the sanitation network is one of the most significant components of the model and

involves the active participation of organised community groups at the identification, planning

and implementation of projects. The involvement of beneficiary communities in the

development initiative has been a key to the successful implementation of the numerous

sanitation projects undertaken as part of FAUP. A process approach to development has been

adopted and has involved organised community groups to be enabled through specific project

level interventions and develop their capacity to undertake local level development projects like

sanitation.

The case study highlights the relationship between improving environmental sanitation

conditions and health improvements in community members as well as transforming the

behaviour of people to become more aware that they can indeed make a difference, if they

work collectively.

The report is the result of obtaining information and cooperation from all FAUP team members

but a special mention needs to be made of the Chak-7jb team, who have undertaken much of the

data gathering exercise. Furthermore, we would like to acknowledge the complete support of

Dr. Tariq Sardar, (Additional Project Director for FAUP) who has provided continual

encouragement and support for the completion of the case study.

We wish to thank PIEDAR, Pak-CDP and ASB for allowing us to reproduce their cost estimate

sheets.

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S.M. Khatib AlamProject Co-ordinator

Ejaz AhmadDevelopment Consultant

PREFACE

TABLE OF CONTENTS

1.1 Faisalabad District and Chak-7jb 21.2 Faisalabad Area Upgrading Project 21.3 Participatory Approach to Development 21.4 The Process Approach to Development 31.5 Definition of Infrastructure Sewers Used in FAUP Pilot Project Areas 31.6 Objectives of FAUP for Sanitation 41.7 Strategy to Develop Sanitation System 41.8 The Sponsoring Line Departments 41.9 FAUP Areas 4

2.1 Chak-7jb Area Conditions Prior to Implementation System 62.2 Organised Communities of Chak-7jb 72.3 S.W.O.T. Analysis 72.4 Community Vision 72.5 Community Organisations 82.6 Change of Priority with Time 11

3.1 Development of Sub-Project Proposals 133.2 Community Share 133.3 Community Sub-Project Bank Account 143.4 Submission of Sub-Project Proposal Document to Project Approval Committee 143.5 Release of Funds by FAUP 143.6 Implementation Committee 153.7 Expectations from Local Councillors in Chak-7jb 153.8 Hindrances in the Operation & Maintenance of Sewerage Systems 15

4.1 Factor Determining the Cost of Sewers 164.2 Community Share in Kind 174.3 Sewerage Projects in Other Parts of Pakistan 18

5.1 Impacts of Sewerage System as Viewed by the Community 195.2 Conditions Before and After Implementing a Community Based Sewerage Project

in Chak-7jb 195.3 Sanitation Conditions After Laying of Sewer Lines 195.4 Community Training 205.5 The Impacts of Living Standard of the Community 215.6 Constraints Faced by Team when Raising Community Share 225.7 External Constraints Faced by FAUP 235.8 Awareness Raising Among Community 24

Foreword

Preface

EXECUTIVE SUMMARY 1

1.0 CHAPTER 1-INTRODUCTION 2

2.0 CHAPTER 2 -INTERACTION AND INTERVENTION 6

3.0 CHAPTER 3 -PROCESS OF IMPLEMENTATION 13

4.0 CHAPTER 4 -FINANCIAL 16

5.0 CHAPTER 5 -KEY FINDINGS 19

PageFaisalabad Area Upgrading Project (i)

TABLE OF CONTENTSEnvironmental Improvement in Slum Areas and Katchi Abadis

Communities take charge of local sanitation facilities

6.0 CHAPTER 6 -RECOMMENDATIONS AND CONCLUSION 25

APPENDICES

GLOSSARY 33

LIST OF BOXES

LIST OF TABLES

LIST OF FIGURES

6.1 Increase of Cost Ceiling of Tertiary Projects 256.2 Appropriate Standards for Tertiary Level Community Based Projects 256.3 Can Low Income Communities Really Become Equitable Partners in Development

with Local Government 256.4 Faisalabad Under a New Decentralised District Government 256.5 Empowerment of the Community 266.6 Can Government Replicate the Various Models of FAUP 26

27

Cost Estimation of Different Sewerage Projects 27

Terms of Partnership 29

Box 1-1: The Process Approach in FAUPBox 2-1: S.W.O.T. Analysis Applied to Implementation of Neighbourhood Sewerage Systems in Chak-7jbBox 5-1: Interview with Mr. Victor BhattiBox 5-2: Interview with Mr. Shukat AarfiBox 5-3: Interview with Dr. RizwanBox 5-4: Interview with Mr. Younis GillBox 6-1: Community Participation under New Local Government Ordinance 2001

Table 1-1: Composition of Faisalabad DistrictTable 1-2: Demographics of FAUP Pilot AreasTable 2-1: Profile of Chak-7jb (Overall)Table 2-2: Details Breakdown of Profile of all Neighbourhoods in Chak-7jbTable 3-1: Implementation Plan of AD&WSTable 4-1: Details of Tertiary and Secondary Sewerage Projects in Chak-7jb (1995 to 2001)Table 4-2: Comparison of Components Included in the Cost of Tertiary Sewerage Project in Various

Parts of Pakistan

Figure 1-1: Flow of Funds in the ProjectFigure 1-2: Various Levels of MPCOs in FAUP AreaFigure 1-3: Extent of New Demarcation Lines for Union Council 191 -Chak-7jbFigure 2-1: Chak-7jb Village Part of Union Council 191 Showing the Sanitation Condition in 1996

TABLE OF CONTENTSEnvironmental Improvement in Slum Areas and Katchi Abadis

Communities take charge of local sanitation facilities

PageFaisalabad Area Upgrading Project (ii)

EXECUTIVE SUMMARY

Pakistan's total population is estimated as beingabout 140.5 million people and an urban growthrate of about 3%. It is further estimated that about38% of the urban population live in Katchi Abadisand less than 50% of the population has access tosewerage and sanitation facilities. Over 200,000children die in Pakistan every year because of thelack of hygienic conditions.Faisalabad is the third largest City in Pakistan andsecond largest in Punjab. Despite Faisalabad'srelative prosperity, infrastructure provision isbelow average for urban Punjab, particularly forwater supply, sewerage and sanitation facilities.Only a third of the housing units have access tomunicipal piped water and 45% to 48% areconnected to the sewerage system. There is anacute shortage of housing units which hascontributed to an increase in the Katchi Abadis andled to a further deterioration in living conditions inthese areas.Faisalabad Area Upgrading Project (FAUP) hassupported a variety of interventions to improve thequality of life of four pilot communities inFaisalabad. The upgradation & rehabilitation ofenvironmental infrastructure of these areas in anequitable partnership with the local communitieshas been a major activity. Under this segment, theimprovement of the sewerage systems has had apivotal role to play.FAUP has focused on developing seweragesystems based on full and active communityparticipation philosophy. This model has proved tobe hugely successful and FAUP has found thatcommunity participation has ensured the quality ofwork, transparency of resources utilisation and itsaccounting process. Furthermore, involvement oforganised communities at the identification,planning and implementation stages createdownership and proper use and sometimes,maintenance, of the facilities. Using appropriateengineering design and specifications (based uponthe OPP model) has enabled many communitymembers especially those resident in very lowincome areas to actively participate in tertiarylevel sewerage projects. It must be stated here thatsecondary level sewerage projects have beenconstructed using the full Water and SanitationAgency (WASA) standards and specifications.Nearly all the tertiary level sewerage projects thathave been undertaken by FAUP are very muchresponsive to demand from the local communitiesi.e. they take into account the knowledge andconcerns of the local communities. Furthermore,there are cases where the FAUP team has tried topass on their lessons from other various projectsbeing /having undertaken in other parts of

Faisalabad and Pakistan and the local communitieshave not agreed with the team because of beingillinformed by a fellow community member e.g.laying a 12 inch diameter pipe when a 9 inch wouldbe more than adequate or requiring many moremanholes because communities have demandedthat the manholes spacing should be about 30 feetwhen in fact manhole spacing at 60 feet wouldhave been adequate. Where communities havelistened to advice the sub-projects have savedmoney.Realising the advantages and benefits ofcommunity participation, the government ofPunjab has given legal coverage through PunjabLocal Government Ordinance, 2001. Infact thismeans that in the future all Union Councilsimplementing tertiary level projects are to adhereto very similar principals that FAUP has beenimplementing over the last seven years. Thebeneficiaries/ communities are required to raisetheir share towards the cost of all localdevelopmental projects. To date in Chak-7jb thelocal communities have contributed about Rs.500,000 (over a period of 7 years) towards thetertiary level sewerage projects. This amount hasbeen matched by FAUP.A key innovation of FAUP is that the project hasbeen planned, designed and executed byGovernment of Punjab officers (on regulargovernment salaries), contract staff (also ongovernment salary structure) in very closepartnership with low income communities(monthly income per household between Rs.1500to Rs. 2000).The case study focuses mainly on how thosecommunities that have been properly organisedand trained have turned out to be powerful,equitable partners to Local Government. Theactive participation of these communities withgovernment staff on projects have most definitelychanged the deplorable conditions that were foundin the four pilot project katchi abadis and slumareas in 1994 to something that has had hugepositive impacts on the improvement of the healthconditions of the residents. Just as important hasbeen the improvement of the "feel good" factorthat is now quite obvious. There is also evidence tosuggest that although these low-incomecommunities have had to contribute towardstertiary level infrastructure, it has in fact reducedtheir expenses on medical costs and it hasincreased the cost of the land and property.It is the belief of the FAUP team and many othersthat the FAUP model of active participationbetween local government and communities canand indeed, should be replicated by UnionCouncils in Faisalabad and all over Pakistan.

EXECUTIVE SUMMARY

PageFaisalabad Area Upgrading Project 1

CHAPTER 1

INTRODUCTIONCHAPTER 1

INTRODUCTION

1.0 INTRODUCTION

1.1 Faisalabad District and Chak7 jb

1.2 Faisalabad Area Upgrading Project

Figure 1-1:

Faisalabad District consists of six Tehsil Councilsand 289 union councils (Table 1-1). Faisalabad isthe third largest city of Pakistan. Its population, asper census of 1998, is around 1.97 million.Faisalabad grew rapidly following partition tobecome an agricultural service and processingcenter. The city experienced not only rapid butuneven physical growth as a result ofindustrialization and piece-meal segmenteddevelopment. The rapid growth in population hasled to a proliferation of urban slums with very poorconditions of housing, sanitation and health, lackof basic physical infrastructure and growingenvironment problems.

Chak-7jb is the largest of the areas of UnionCouncil 191 with a population of about 16,000, theothers being Usman Town, Shahzad Town andFarooq Town having populations of about 800,2,400 and 1,000 respectively. Mostly labourerslive in these areas who have very meagre incomes,ranging between Rs. 1,500 to Rs.2,300 perhousehold per month.

Table 1-1: Composition of Faisalabad District

Faisalabad Area Upgrading Project (FAUP) isjointly funded by the Government of Pakistan(20%) and the Government of United Kingdom(80%) -the latter being a grant. The project uses theprocess approach to development and issynonymous with community participationapproach. The process signifies an interactivedialogue with local communities and ensures that adiagnostic process is followed in the identification,p lanning , resources mobi l i sa t ion andimplementation of projects.The Faisalabad Development Authority is theGovernment implementing agency.

The situation of Faisalabad Area UpgradingProject areas as of May 2001 with respect to sewerfacilities can be viewed from the following facts.

Availability of tertiary sewer facilities = 26 %HouseholdsAvailability of secondary sewer facilities = 30 %Households

All projects with the communities (i.e. at thetertiary level) are undertaken on a cost-sharingbasis (see Figure 1-1). With the exception ofeducation related activities, in all the other sectorsi.e. health, environment infrastructure (water,sanitation, paving, solid waste) and smallenterprise development the partnership with thecommunities is on a 50%-50% cost-sharing basis.In the case of education the communitiescontribute 15% whilst the project contributes 85%of the funds.

Flow of funds in the project

1.3 Participatory Development

As necessary under the FAUP participatoryapproach, the people residing in the project areaform(MPCOs). These MPCOs comprise three levels asdescribed below.

Starting from the grass root, lane level MPCOs arethe first tier in the social organisational process.

The lane level MPCOs are further developed intointermediate apex level organisations and called

Funding

Multipurpose Community Organisations

a) Lane Level MPCOs

b) Neighbourhood Level MPCOs

Approach to

GOP DFID

FAUP

FAUP COMMUNITY

ACTIVITY

20% 80%(as grant)

50%(cash and/or

material and/orlabour)

50%

Chak Jhumrah

Jaranwala

Tandlianwala

Samundri

Faisalabad Sadar

Faisalabad City

1-15

16-72

73-100

101-128

129-176

177-289

15

57

28

28

48

113

289

TehsilNo. of Union

CouncilsTotal Union

Councils

Total:


CHAPTER 1INTRODUCTION

Environmental Improvement in Slum Areas and Katchi AbadisCommunities take charge of local sanitation facilities

either neighbourhood, cluster or sub areaorganisation. All these MPCOs are at par with eachother and have been named according to the localsituation, mostly based on geographic proximity ordivision of an area.

At the field area level, the apex organisation is thearea level organisation (ALO), which representsall the cluster and neighbourhood organisations ofan area.

The formation process of MPCOs of various levelsis shown in Figure 1-2.

Various levels of MPCOs in FAUPArea

This social organisation structure has evolved inthe project area over a long period of communityinteraction.

The process approach to development (See box1-1) is synonymous with community participationapproaches as the process signifies an interactivedialogue with local communities and ensures that adiagnostic process will be followed in theidentification, planning and implementation ofprojects. Since the commencement of the project,the involvement of beneficiary communities indevelopment initiatives is considered as a key tothe successful implementation of any project. Theneed to involve the community was realised as aresult of projects which were poorly conceived,badly maintained and had a low level ofbeneficiary commitment. Furthermore, over thelast few years, there has been a growingunderstanding that without the community sharingin the design, implementation and maintenance ofprojects the Government will be unable to ensurethe technical viability and financial feasibility of

projects. In this sense, adopting the processapproach ensures greater success of projects.

The process approach as visualised by the FAUPhas several major characteristics:

Precise inputs and immediate objectives areidentified by communities in the project area inc o n s u l t a t i o n w i t h P M U d u r i n gimplementation;Design, appraisal and implementation areparticipatory, recognising the need for localcommitment and the essential role of thecommunities within the project area indefining, agreeing and participating indevelopment activitiesThe initiative rests with the communities andthus ensures that any project that is undertakenwill have the commitment of the beneficiarypopulation

Infrastructures serving at lane / street level arecalled tertiary level sewer. Community throughMPCOs contributes 50% towards implementationcost and takes responsibilities for itsimplementation and subsequent maintenance.

Infrastructures serving a number of lanes / streetsat cluster level / neighbourhood level and acting ascollector of waste liquid of tertiary level projects is

c) Apex Level Organisations

Tertiary Sewer

Secondary Sewer

Figure 1-2:

1.4 The Process Approach to Development

1.5 Definition of Infrastructure Sewersused in FAUP Pilot Project Areas

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Box 1-1: The Process Approach in FAUP�

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In the process approach the community is involved as acollective body with specific responsibilities. Thus itdevelops as a local grass roots organisations which canshare in the task of development. The community isenabled through specific project level interventions todevelop its capacity to undertake local level developmentinitiatives in other areas. It is for this reason that it is seenas a "process" rather than as a one time intervention. Thusthe initial project can be seen as an entry point to alongterm path towards development and growth. It is aselfsustaining approach with a long term developmentperspective.

The process approach is a shared approach in which aflexible yet firm development approach is adopted. Thecommunity is given primary responsibility for internaldecisions and terms of partnership specifying theobligations and rights of all parties is given. The projectdesign, implementation and maintenance are undertakenin a manner which is sensitive to the management andfinancial constraints of the community. It is thus a flexibleand sensitive approach to development.

In the process approach, the field staff is the critical tier asit is primarily responsible for ensuring regularcommunication and interaction between the communityand the project staff.

Area LevelOrganisation

(ALO)

Sub AreaMIPCOs

NeighbourhoodMIPCOs

Lane LevelMIPCOs

ClusterMPCOs



called secondary sewers. Communities do notshare any cost towards secondary level initiative.However communities are involved in theidentification of needs & monitoring to ensure thatsecondary projects are executed through lineagency as per their agreed suggestions.

These infrastructure mains, which serves at citylevel, are called primary level sewers. Althoughthese mains facilitate communities, local levelinitiatives but mainly planned, designed andimplemented through line agency.

The sanitation projects are designed around threeinter-connected levels of infrastructureimprovement comprising tertiary, secondary andprimary systems of the sanitation in the urbanareas. The tertiary sewerage projects areimplemented by the MPCOs, whereas secondaryand primary sewerage networks are implementedby WASA. It also takes major responsibility tooperate & maintain all the three levels of project.

The objective of FAUP for sanitation is three fold:

a) To demonstrate a replicable model for thed e l i v e r y o f u r b a n e n v i r o n m e n t a linfrastructure services to low income areas.

b) To improve the quality of life of the people inlow income areas of Faisalabad and;To contribute to Government of Pakistan'sobjectives of encouraging communityparticipation, privatisation and self reliance.

FAUP has adopted the following strategy todevelop sanitation system in its areas.Communities are made responsible forconstruction of tertiary sewers and septic tanksfor individual houses with technical assistancefrom project engineers. The communities willcontribute 50 % cost of the tertiary sewers incash and /or kind.Around seventy five percent houses in theFAUP areas will be connected with sewersystem at the end of completion of the project.The detailed designs of the secondary sewersare to be made with active involvement ofcommunities at the conceptualisation, designand supervision stages.Other possible sanitation options, such asonplot double-pit latrines, are to be considered,and discussed and developed withcommunities where appropriate.

FAUP is to support improvements in theprimary and secondary infrastructure, whichmay involve city wide main sanitation systems.This should benefit the whole or a substantialpart of katchi abadis and slums of the city.

The Water & Sanitation Agency (WASA) ofFaisalabad Development Authority (FDA) is thegovernment sponsoring line department for thecomponent of sanitation in urban area ofFaisalabad. The WASA is responsible forplanning, designing, development & for operation& maintenance of the sanitation system in the city.

It is clear that over the last 7 years, the linedepartments did not have the resources to addressthe arising needs of sewerage facilities of a largerpopulation, comprising katchi abadies and slumareas of the city. Therefore, the communities ofthese areas were deprived of the essential basicfacilities of sewerage system. In view of thissituation, FAUP has taken an initiative to addressthis problem using community participationapproach. This methodology of development isshowing positive results. The case study underreview explains efforts of FAUP to supportdevelopment of sanitation system.

In the first phase, Faisalabad Area UpgradingProject has chosen four pilot areas.

Table 1-2 shows the comparative population andnumber of houses of each of the four areas, thatFaisalabad Area Upgrading Project is presentlyworking in. While preparing and designing theoverall development plans of secondary andtertiary level sewerage projects, the population ofan area and its future growth has been fullyconsidered. In particular, the capacity of thesecondary sewerage system has been designed insuch a manner that it will cater to the needs of thecommunity over a long period of time.

Primary Sewer

1.6 Objectives of FAUP for Sanitation

1.7 Strategy to Develop Sanitation System

1.8 The Sponsoring Line Departments

1.9 FAUP Areas

Table 1-2: Demographics of FAUP Pilot Areas

c)

Figures as of December 1999.

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Area

Chak-7jb

Islamnagar

Noorpura

Shadab Colony

Total

Households

2,074

2,725

1,630

1,141

7,570

Population

14,684

19,293

11540

8,078

53,595

Chak-7jbUnion Council No.191

Figure 1-3: Extent of new demarcation lines for union Council 191 - Chak-7jb (August 2001)

L E G E N DDemarcation Line

Chak-7jb FAUP Area

Other Areas

Field Area

Industrial Area




CHAPTER 2

INTERACTIONAND INTERVENTION

CHAPTER 2

INTERACTIONAND INTERVENTION

2.0 INTERACTION AND

2.1 Chak-7jb Area Conditions Prior toImplementation of sanitation system

In order to ease community mobilisation andasssit in the formation of structured organisedgroups, Chak-71b was divided into eight parts(neighbourhoods). The consideration offormation of social organisations in theseneighbourhoods included parameters likecommon needs / problems, social stratum, casteand clans, geographical proximity and similarityof physical conditions of each pocket.

One of the communities residing in Chak-7jb is inNeighbourhood-C (NH-C). This area is one of themost under-developed areas of the pilot areas ofFaisalabad Area Upgrading Project. The greatmajority of the residents have a low income.Profile of this area is shown in Table 2-1 and itillustrates the socio-economic conditions of thecommunity prior to the implementation ofsanitation system.

INTERVENTIONTable 2-1: Profile of Chak-7jb (Overall)

CHAPTER 2INTERACTION AND INTERVENTION



Neighbourhood Boundary

Neighbourhood No.

Lane No. in Neighbourhood

Major Waste Water Ponds (1996)

Solid Waste Heaps

N

L E G E N D

Figure 2-1: Chak-7jb village part of Union Council 191 showing the sanitation conditions in1996

A

2

Total HousesType of Families:

Average Persons Per HouseAverage Range of Income(Majority) (Rs.)Average Income (Rs.)Average Area Per HouseDrinking Water Facility

Disposal of Water

Solid Waste Disposal

Use of Toilet

JointNuclear

WASA SupplyBoring(Individual / common)Water carried in cans

Open PlotDrainSewer

StreetOpen PlotFilth Depot

FieldsSeptic TankDrain ConnectedSewer ConnectedInformation Not Available

1,952

26.68 %73.32 %

7.371,000 to 3,000

2 5105.63 Marlas

Nil

94.38 %16.55 %

17.80 %82.53 %2.63 %

12.60 %86.82 %0.44 %

18.60 %45.55 %13.02 %2.63 %

20.20 %

Note: Some houses have dual arrangements

2.2

Subsequently to awareness created by FAUP fieldstaff, a number of multi-purpose organisations(MPCOs) were formed. In June 1998, 38 MPCOswere functional. Of these, 13 were male and 16were female organisations working at the lanelevel. Rest of the four functional organisationswere neighbourhood level MPCOs and thisincluded one female neighbourhood MPCO.Further details can be found in

The situation of social organisation in 2001 haschanged - the total number of male MPCOs hasincreased to 24 whilst the number of femaleMPCOs has grown to 21. Out of the total 24 maleMPCOs, one is an Area level MPCO and 9 areneighbourhood /cluster MPCOs. Furthermore,there are now four female MPCOs atneighbourhood level whilst the and 17 lane levelfemale MPCOs are dormant. All these MPCOs areactive. The functionality of an MPCO has found tobe dependant upon the nature of activities it isdealing with.

The SWOT analysis has been used by FAUP toassess the capabilities of the sewerage project andit's activities in subjective rather than in precisefinancial or numeric terms.

The are those capabilities which havesupported and developed the project and/oractivities to its present achievements. They can bereferred to as the success factors. It is extremelyimportant that these are recognised and are notdiluted or allowed to fall into decline.

The are those characteristics whichhave detracted from performance and demonstratefor what reasons further growth and stability havenot been realised. Weaknesses are strengths in themaking. By dealing with them in a positive waythey can be turned or converted into positivedynamic attributes.

Both strengths and weaknesses are under thecontrol of FAUP management. It is thereforepossible, from within the internal resources alone,to develop the stronger capabilities further and toplan to reduce or to eliminate those which distractand produce a negative effect.

The are those places or servicesexternal to the project into which an impact wouldbe made providing sufficient impetus andresources are applied.

The are those factors,external to the operation of the project, which limitgrowth and development, for example, linedepartments unable to deliver their part of anagreement on time and to budget; GoP unable tocreate an enabling environment to allow FAUP toflourish; DFID's freeze of aid to Pakistan etc., Bothopportunities and threats/constraints exist withoutreference to the projects own resources but none-the-less can have significant impact on the project.Positive actions are required to take advantage ofthe former and also to minimise the impact of thelatter.

A typical generic example is shown in Box 2-1

It is important to stress that the community alreadyhad mechanisms of resolving communityproblems through collective efforts -albeit in an

Organised Communities of Chak-7jb

2.3 S.W.O.T. Analysis

2.4 Community Vision

"PerformanceEvaluation of FAUP MPCOs".

Strengths

Weaknesses

Opportunities

ThreatslConstriants




Box 2-1:

Strengths

Weaknesses

Opportunities

Threats/Constraints

S.W.O.T. Analysis applied to implementation

of neighbourhood sewerage systems in Chak-7jb

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The implementation of sewerage projects at theneighbourhood level is found to be the most economicalsince all the material, and services of masons / contractors isprocured / availed collectively for a number of projects of theneighbourhood. Hence, economy of scale tends to bring costeffectiveness.

Implementation of sewerage projects at the neighbourhoodlevel ensures integration of all the connected tertiaryprojects.

The neighbourhood level sewerage system is found to beeasier to maintain.

A sewerage system of neighbourhood is the mostappropriate level from the point of view of size and system ofusers to create awareness among users.

Collection of community share at the neighbourhood leveltakes a longer time to complete compared to lane levelprojects. It is much more difficult for the MPCO's and fieldteams to raise community share for neighbourhood levelsewerage system.

The physical implementation process of sewerage projectsat the neighbourhood level is more time consumingcompared to lane level projects.

Integration of neighbourhood level sewerage system withother neighbourhoods or area level systems requiresconsiderable efforts of designing and assessing technicalviability.

A definite model for replication at large scale especially inlight of the Government of Pakistan's Devolution of Powerto the Union Councils Programme

The process provides new learning on account of poolingresources and effective community participation.

Creates social cohesiveness and integration amongcommunities.

It creates capacity and capability among communitymembers to implement sewerage projects at neighbourhoodlevel.

Negation of lane level community organisations. Theseforums may not flourish in the right direction for integrateddevelopment process.

unstructured manner. FAUP streamlined thesemechanisms into a structured forum and facilitatedthe community to use these forums fordevelopment of their areas.

A detailed breakdown of the profile of allneighbourhoods in Chak7 jb is shown in Table 2-2

The Aman Development & Welfare Society is oneof the neighbourhood level MPCOs of Chak-7jbarea created on 96' October 1996. The MPCOcomprises 9 members in it's executive body and110 members in it's general body. Originally theAD&WS was formed at cluster level, covering apopulation that included NH-C, a part of NH-Hand NH-B. All these neighbourhood levelcommunity organisations identified felt needs andsubsequently assigned them different priorities.The felt needs included the following:

It was found that amongst the above list that accessto clean and sweet drinking water was a commonneed of all the neighbourhoods.

As a result, in 1997 FAUP commenced work on thedesign and development of the secondary andtertiary water supply network for this project area.Since the need for drinking water was alreadyunderway, each neighbourhood at this timedecided to reconsider the priority of it's other feltneeds in that particular neighbourhood.

2.5 Community Organisations

2.5.1 Aman Development & WelfareSociety (AD&WS) in NH-C, Chak-7jb

Water supplyProvision of sanitation facilitiesProvision of electricity for some houses

Street lighteningBricks pavement of streets

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Photo: AD&WS recruitinga new member




Table 2-2: Detailed breakdown of profile of all neighbourhoods in Chak-7jb

Description NH-A NH-B NH-C NH-D NH-E NH-F NH-G

Total Houses =

Type of Families: (%)

Joint =

Nuclear =

Average Persons Per House =

Income Range P/House (Rs.) =

Average Area Per House (Marla)=

Drinking Water Facility: (%)

Supply =

Boring (individual / common) =

Can water =

Supply/Boring (Dual Arrangement) =

Disposal of Waste Water: (%)

Drain =

O/Plot =

Sewer =

(Dual Arrangement) =

Solid Waste Disposal:(%)

Street =

O/Plot =

Drums =

Filth Depot =

Information Not Available =

Use of Toilet:(%) Field =

Septic Tank =

Drain Connected =

Sewer Connected =

Information Not Available =

281

24.51

75.49

6.62

1,000-2,000

5.28

NIL

98.85

1.15

NIL

66.46

33.54

NIL

NIL

2.78

94.44

NIL

2.78

0.00

26.04

73.96

NIL

NIL

NIL

277

20.59

79.41

6.76

1,000-2,000

5.11

NIL

87.50

21.31

(8.81)

76.24

23.76

NIL

NIL

16.80

83.20

NIL

NIL

NIL

21.24

76.83

1.92

NIL

NIL

168

24.73

75.27

6.77

1,000-3,000

4.20

NIL

100.00

33.28

(33.28)

60.00

27.83

20.00

(7.83)

NIL

100.00

NIL

NIL

NIL

18.36

41.00

20.65

20.00

NIL

221

24.19

75.81

7.91

2,000-4,000

6.02

NIL

90.29

21.91

12.20

99.49

NIL

NIL

0.51

27.96

71.53

NIL

NIL

0.51

10.65

26.28

68.08

NIL

NIL

184

32.00

68.00

7.50

1000-5,900

7.37

NIL

100.00

44.00

(44.00)

100.00

NIL

NIL

NIL

20.00

80.00

NIL

NIL

NIL

4.00

20.00

76.00

NIL

NIL

281

37.66

62.34

7.19

1,000-3,000

5.64

NIL

100.00

NIL

NIL

89.34

10.66

NIL

NIL

NIL

100.00

NIL

NIL

NIL

25.30

NIL

74.70

NIL

NIL

300

54.55

45.45

9.68

1,000-5,000

8.07

NIL

100.00

NIL

NIL

91.94

34.44

NIL

(26.39)

NIL

100.00

NIL

NIL

NIL

22.22

52.78

25.00

NIL

0.00

As a result of the review of these needs, NH-H andNH-B assigned priority to brick paving, where as,within NH-C, the community members differed intheir preferences. However, the majority ofmembers of NH-C prioritised sanitation facilitiesas their top priority.

Despite the majority agreement, NH-C remaineddivided over this issue and so the communitymembers decided to split the AD&WS MPCO into2 groups -over 70 % of the members from NH-Cstayed together and voted to retain the originalname of AD&WS whilst the remaining memberscreated a new MPCO. The restructuring process ofsocial organisations, around common interests,took about one year time.

As a result of this process, finally the AD&WS hasbeen reformed as a cohesive and stable socialorganisation representing majority households ofNH-C. Over time the consolidation ofcommunities organisation around commoninterest is natural phenomena prevailed in most ofthe community development projects. It isconsidered a healthy sign of community maturityand sustainability.

It can be seen from Table 2-2 that the averagehousehold income of this community was very

low, at around Rs.1000-3000 per month per familyof 6.77 person. At this level of income, ahousehold has very meagre propensity to save.

Comparative analysis of NH-C with rest of theneighbourhoods of Chak-7jb (refer to Table 2-1)shows that the average household size of NH-C issmaller. It comprises 6.75 persons against overallaverage of 7.21 persons. The community of thisneighbourhood had less average income i.e.Rs.2,592 per household against an overall averageof Rs. 3,245 per household of the area. The housesare also smaller as the area of land per house is 4.20marlas compared to the overall average of 5.68marlas. The analysis shows that community ofNH-C is a poor of the poorest communities.

and

Carvan Development and Welfare Organisation isan area level female organisation based inneighbourhood-F (NH-F) within Chak-7jb. TheMPCO was formed on 30th March 1999 andcomprises 75 members in its general body and 10members in its executive body. It's main objectivesinclude: a) socio-economic up-gradation of thewomen in NH-F and then the rest of Chak-7jb;b)improving the welfare of children and the disable.Carvan members have been instrumental inensuring that the secondary sewerage networks arelaid in Chak-7jb and also in raising funds for thetertiary sewerage projects in NH-F.

Al-Shamas Development and WelfareOrganisation is a male Chunghar MPCO formedon 30'x' August 1996 in the poorest area of Chak-7jb and indeed in the complete FAUP pilot projectarea. It comprises 9 members in it's executive bodyand 160 members in it's general body. The mainprofession of Chunghar community is trashpicking, old scrap business and working aslabourers.

Photo: Meeting of Aman Development and Welfare Society

Photo: Fund raising meeting by going house to house inNH-C

Photo: Carvan MPCO holding a regular meeting

2.5.1.1 Profile of NH-C Chak-7jb

2.5.2 Carvan Development WelfareOrganisation in NH-F, Chak-7jb

2.5.3 Al-Shamas Development and WelfareOrganisation in NH-A, Chak-7jb




The MPCO has 3 main objectives namely: a)upgradation of the socio-economic conditions ofthe Chunghar community; b) provision ofeducation for children of the community and c)developing linkages with NGO's for educationalimprovement.

The MPCO has not had much involvement insewerage projects until quite recently as part of alarge area level plan for upgradation of the wholearea.

Al-Aman Development and Welfare Organisationis a male MPCO formed on 18'' October 1998 inneighbourhood-B of Chak-7jb. It comprises 11members in it's executive body and 30 members init's general body.

The MPCO has 3 main objectives namely: a) toresolve the problems of the area through mutualdiscussions; b) to establish linkages with linedepartments and c) to improve the health andenvironmental conditions of the area.


Rehbar Development and Welfare Organisation isa male MPCO formed on 0 June 1999 inneighbourhood-D of Chak-7jb. It comprises 11members in it's executive body and 55 members init's general body.

The main professions of the community membersare farming, retail shops and being labourers.

The MPCO has 4 main objectives namely: a)Improvement of environmental infrastructure; b)build the social interaction among various classesof the area; c) develop linkages with industrialistsfor obtaining financial assistance and d)rehabilitation programmes for special persons.

The MPCO has been very active in collectingfunds and supervising the implementation oftertiary level sewerage projects in it'sneighbourhood and supervising secondary levelsewerage projects in both the neighbourhood andrecently in the area as part of a large area level planfor upgradation of the whole area.

Al-Khidmat Development and WelfareOrganisation is a male MPCO formed on 16thD e c e m b e r 1 9 9 7 a n d i s s p r e a d o v e rneighbourhoodE and neighbourhood-H in Chak-7jb. It comprises 10 members in it's executivebody and 30 members in it's general body.

The main profession found in this area is farming,retails shop keepers and being labourers.

The MPCO has 2 main objectives: a) improvementof environmental conditions in the area and b)construction of additional rooms in schools of thearea.The MPCO has been active in raising funds for theestablishment of solid waste systems of the areaand the enhancement of educational facilities.


Ittefaq Development and Welfare Organisation is amale MPCO formed on 18th July 1997, located inneighbourhood-F in Chak-7jb. It comprises 12members in it's executive body and 57 members init's general body.

The MPCO has been active in raising funds for theimplementation of water projects; arranginghealth camps in collaboration with FAUP andimplementing an awareness campaign for thenecessity for education and health check-ups.

2.5.4 Al-Aman Development and WelfareOrganisation in NH-B, Chak-7jb

2.5.5 Rehbar Development and WelfareOrganisation in NH-D, Chak-7jb

2.5.6 Al-Khidmat Development and WelfareOrganisation in NH-E and NH-H,Chak7 jb

2.5.7 Ittefaq Development and WelfareOrganisation in NH-F, Chak-7jb

Photo: NH-D members actively going door to door to

collect funds




2.6 Change of priority with time

In 1996 most of the communities of Chak-7jb areadetermined drinking water as their most prioritisedneed and thus FAUP accordingly designed boththe secondary and tertiary water supply networks.The project execution was given to WASA in early1998 (with complete 100% funding from FAUP)and it was expected that the construction would becompleted within 5 to 6 months - unfortunately, ittook WASA almost 3 years to complete. Thishorrendous delay in completion by WASA of thesecondary system meant that communities couldnot undertake the tertiary water projects. Thisdelay resulted in a break down of trust between

communities and FAUP team members as well as achange of priority of the majority of communitymembers from implementing tertiary level waterprojects to tertiary level sewerage projects.

The local inhabitants were even more unitedduring the rainy seasons when waste water startedoverflowing onto the streets even more than theusual. Therefore the majority members of most ofthe local MPCO's unanimously decided toprioritise tertiary level sewerage systems over thetertiary level water projects.

Photo: Community chose sanitation projects as their highest priority




Photo: Condition after a secondary level sewerage project in NH-D

Photo: Condition prior to a secondary level sewerage project in NH-D




CHAPTER 3

PROCESS OFIMPLEMENTATION

CHAPTER 3

PROCESS OFIMPLEMENTATION

3.0 PROCESS OFIMPLEMENTATION

3.1 Development of Sub-ProjectProposals

3.2 Community Share

The procedure for undertaking sub projects (likesewerage projects) in the project areas requireslane level MPCO's or Neighbourhood MPCO's orArea Level MPCO's to first discuss a proposal(often initiated by a member) internally and thenwith the local FAUP field team. Providing thesewerage proposal is within the FAUP mandate,the FAUP field team comprising social organisers(male and female) and sub-engineer will thenconduct a technical, social and economic viabilityof the proposed sub project. These findings andrecommendations are then discussed with theMPCO members. Providing that the majority ofmembers are in agreement with the findingsespecially with the probable cost to the MPCOthen a Terms of Partnership (ToP) is developed, thedetails agreed upon with the MPCO executivebody and then signed by the President, Secretary,Treasurer of MPCO and FAUP officials.

The process is outlined as follows:

After identification of the needs for sewerprojects through resolution, the MPCO in itsgeneral body meeting nominated a committeewith consensus. The role of this committee wasto carry out the exact measurement of thesewers along with the FAUP sub engineer.On the basis of these measurements, costestimation were prepared.Based on these cost estimates, the community /per house share was determined and intimatedto the general body of the organisation fordevising time frame for share collection.Likewise, in the general body meeting of theMPCO, members were nominated who wereresponsible to collect the determined share perhouse.The designated members of the MPCOprepared the list of houses indicating theneighbourhood, name of the head of the familyand address. These members were facilitatedby the field team of FAUP to carry out this task.Then each responsible member maintainedrecord of the share collection from thecommunity. For this purpose, the memberissued a receipt to the house which paid theshare. The member also maintained a ledgerindicating details of all houses in consolidatedform.Time period for share collection varied in theseprojects. In neighbourhood-C, organisationtook about three months to collect the sharecollection for their five projects.

In the entire share collection process, meetingsof the community organisation was convenedregularly to keep up the spirit of the membersand pursue the target of share collection.The field team had regular contacts with theexecutive body members of the MPCOs whilethese members were responsible to contact thepeople at household level. In case ofneighbourhood-C, general body meetings ofthe MPCOs were held on a weekly basis whichwere attended by the field team to keep themobilisation process alive.The co-signatories for the joint bank account ofthe tertiary projects were nominated by theMPCOs through resolution. The other memberof these bank account were the social organiserconcerned as approved by the FAUPmanagement.

As the ToP is developed, the community isrequired to commence the collection ofcommunity share (50% of the total cost in the formof cash and/or kind) for implementation of the subproject. In the case of NH-C each house wasrequired to pay Rs.500. At the beginning thecommunity response was not positive becausealthough the MPCO executive body becamefamiliar with the process of communityparticipation, the great majority of the people ofthe area lacked awareness about this and inparticular lacked awareness as to why communitymembers needed to contribute financially and/orotherwise. In order to create the awareness thefield team in collaboration with the MPCOconducted several meetings with communitymembers at lane level as well as at neighbourhoodlevel to acquaint them of the benefits of thesewerage project and the importance of activeparticipation. With the passage of time thecommunity realised the importance of this andthus began the process of share collection from thecommunity by the local MPCO, AmanDevelopment & Welfare Society

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Photo: An active women MPCO proudly shows off itssewerage project


CHAPTER 3PROCESS OF IMPLEMENTATION


The MPCO had to face numerous constraints inthis regard especially with reference to concernsabout the community's inability to pay theirhousehold amount in one go. In order to speed-upthe development works, a well-off communitymember agreed to deposit a considerable amount(Rs.80,000) on behalf of the whole community. Inreturn, the community members agreed to pay himback the amount in instalments. Implementationplan of neighbourhood-C (AD&WS) is explainedin Table 3.1

Some people also contributed their share in kinde.g. by purchasing pipes for the project. The subengineer of FAUP, as a member of the projectimplementation committees, verified and ensuredthat these pipes matched the recommended qualityand standard. Despite this, there still remained 12households that were unable to deposit their sharein any form. In this case, some of the well-offcommunity members decided to contribute ontheir behalf.

When the MPCO had the sewerage projectapproved, in principal, they opened a communityproject account at their local bank.

A separate account is opened for each project.Community contribution to the project is paid intothis account. The FAUP contribution to thesewerage project is also paid into the same accounton project approval usually as a lump sum.

A detailed sub project proposal is developedjointly by the field team and the FAUP sectorspecialist (in the case of infrastructure, this is theFAUP Senior Engineer).

Project implementation starts once the communityhad deposited the required project cost into theaccount and once the project had been approved bythe FAUP Project Approval Committee (PAC).

Payment to the community sub-project bankaccount is made by a crossed cheque signed by theAdditional Project Director and countersigned bythe DFID Project Management Adviser.

3.3 Community sub-project bank account

3.4 Submission of Sub Project ProposalDocument to Project ApprovalCommittee

3.5 Release of funds by FAUP




Table 3-1: Implementation Plan of AD&WS

October

October

Oct.,Nov. & Dec.

December

December

December

December

December

December

The AD&WS passed a resolution for six sewerage projects. The resolution bears signatures or thumbimpressions of almost all members of the society.

The members of the society along with area sub engineer of FAUP carried out the measurement of the sewerlines , prepared cost estimation and drawings of the identified six sewerage projects. The total length of sixprojects was 1,464 running feet, whereas total cost of these projects amounted to Rs. 249,400.

According to the cost sharing policy of FAUP, the beneficiaries concerned raised 50% share for all thesesewerage projects, which amounted to Rs.124,700. The remaining 50% share was provided by FAUP.

Implementation committees were formed for each project separately through a resolution passed in the generalbody meeting of AD&WS. The role of these project implementation committees were to supervise thephysical implementation including purchase of the requisite material, hiring skilled and unskilled labour etc.beside keeping accounts of the fund.

A term of partnership (TOP) was signed between FAUP, AD&WS & WASA. This TOP indicates the role andresponsibilities of the development partners relating to implementation, operation & maintenance of thesesewerage projects until WASA takeover their O&M.

The project approval committee of FAUP approved these projects as per the described details of the projects.FAUP disbursed its share to the MPCO.

The requisite material i.e. pipes, cement, iron, sand and manhole covers etc. were purchased by thecommunity. However, the sub engineer ensured that the material fulfilled the required qualitative standards

Physical implementation was carried out by the project implementation committees through local contractualarrangement on piece meal basis.

During the projects implementation, training was arranged by FAUP staff as to how proper house connectionsare made, in addition to, maintenance of sewer lines

Activity Time Period

Withdrawals from the community sub-projectbank account to purchase goods and servicesrequired for the sewerage project are made bycheques signed by the FAUP field office socialorganiser and countersigned by a representativedesignated by the community.

Any savings realised on completion of thesubproject revert to the community organisationand to the PMU with each receiving 50% of thesaving. Should the funds approved by the PAC,together with the community contribution, proveinsufficient to complete a project, the field officesocial organiser, the relevant PMU Specialist andthe community organisation prepare a request foradditional funds for consideration by the PAC. Thecommunity organisation is encouraged to meet50% of the additional cost if the revised costing isapproved by PAC. As before, the communitycontributions can be either in cash and/or in kind.In the event of the PAC not agreeing to theincreased costs the project is completed to the bestextent possible using existing finance available orfully completed using additional communitycontribution.

Community members for implementationcommittee of each tertiary project are nominatedby the MPCO.

The nominated community members along witharea sub engineer purchased the material, hire theservices of labourers and masons to do the physicalwork of these projects.

The implementation committee takes theresponsibility for the monitoring of quality andquantity of work. If community members have anyreservation or complaints about the physical workof the tertiary project, they are encouraged toapproach the implementation committee, who takethe appropriate decisions at the executive bodymeeting to address these reservations.

Furthermore, the implementation committees ofeach sub project are responsible to prepare therecord of expenditures.

The attitude of local councillors remained positivetowards all the sewerage projects. Inneighbourhood-D, the community members hadhigh hopes from their councillors and as suchmany community members were reluctant to paytheir share for the sub projects including tertiarysewerage network projects. The people were of the

view that the elected councillors would find fundsfrom government to bear the cost of the completesewerage networks - this factor delayed the sharecollection considerably. This issue was finallyresolved in a joint meeting between RahberDevelopment & Welfare Organisation ofneighbourhood-D and the councillors. Thecouncillors together with the MPCO convinced thecommunity members that the government fundsfor undertaking development in their areas wasinsufficient and the communities had a choice -either wait until government provides funds or incollaboration with FAUP the communities had tofinance these tertiary level projects. Eventuallypeople realised that government indeed is notgoing to assist in the immediate future and hencethe process of share collection speeded up.

in the

The farming community of the area has a tendencyto deliberately block the secondary sewerage linesin order to gain access to the waste water andthereby irrigate their surrounding fields. The mainreason is that there does not exist an alternativeirrigation source to these farmers.

Since these secondary sewerage lines are the mainoutlets for all the tertiary lines of the area, theblockage affects the whole area. The communitymembers could have lodged complaints withWASA but instead the community organisationtook the responsibility to solve this issue amicablyby holding a number of meetings with the farmersto resolve this issue.

The farmers are fully aware of the adverse effectsof the blockage and have promised not to block thelines to the extent of damage and offered to clearthe blockage after irrigating their fields.Furthermore, they showed consent to construct anappropriate irrigation system interrelated with thissewerage system and have requested technicalassistance from WASA and/or FAUP engineers.

3.6 Implementation Committee

3.7 Expectations from Local Councillorsin Chak-7jb

3.8 Hindrances operation andmaintenance of sewerage systems

Photo: Deliberate re-routing of wastewaters by localFarmers for use in the fields




4.0 FINANCIAL

4.1 Factor Determining the Cost ofSewers

To get an understanding of how various projects inPakistan determine the cost of their seweragesystems, a comparative cost analysis of both thetertiary and secondary sewerage systems havebeen made. This analysis covers the period 1995 to2001. (Table 4.1) In brief it was found that the costvaries from year to year and even with regard todifferent projects and locations. A number ofcauses were attributed to these variations in thecost are mentioned below.

FAUP believes in using sewer pipes of appropriatespecification i.e. as per the affordability of thecommunity. (A detailed technical FAUP casestudy "Appropriate Standards and DesignSpecifications for Tertiary Sewerage Systems"will be published by January 2002).

The cost of pipes varies from Rs.20 to Rs.60 perrunning foot. FAUP methodology requires that thevarious options that are available are discussedwith the community and it is left to them to decideon the specification which, in the majority ofoccasions is dependant upon their affordabilitye.g. a plain ended pipe is cheap compared to thecollar ended pipe and WASA standard pipes aremore expensive compared to the non-WASAstandard sewerage pipes. In nearly all cases, thecommunities wanted to opt for sewerage systemsrather than open drains. The need to offerchoice/options are considered essential to ensurethat communities are part of a decision makingprocess and in essence "own the system".

The cost of the manhole varies depending upon thetype of construction such as brick manholes(WASA standard) and the PCC circular manhole(commonly called as OPP model). A communitygoing for construction of a sewer has the option toselect the type of manhole they want to use. Thereis a huge difference in cost between these twotypes of manhole.

The depth of the manhole and laying of pipe isanother factor which increases the cost of thesewerage lines. Depending upon the invert level of

both secondary and tertiary sewerage systems, thedepth of manhole and pipe laying is determinedand in some cases this has meant increasing thedepth and therefore increased costs for the sub-project.

FAUP has discovered that despite extensiveexplanations, the community insists on reducingthe spacing between each manholes and thereforeopting for many more manholes than is actuallyrequired. WASA standards require manholespacing to be around 60-70 feet whereas in FAUPareas the manhole spacing is sometimes as little as30-40 feet.

4.1.1 Appropriate Specification

4.1.2 Size and Specifications of ManholeChamber

4.1.3 The Depth of Manhole/Pipe Laying

4.1.4 Distance between Manholes

Photo: Some of the community members insisted on

manholes constructed with bricks

Photo: Construction of PCC circular manhole


CHAPTER 4FINANCIAL


Table 4-1: Details of tertiary and secondary sewerage projects in Chak-7jb (1995 to 2001)

Photo: Communities insist on manhole spacing beinglimited to about 30 to 40 feet

4.1.5 Cost of Transportation of Material

4.1.7 Inflationary effects on Cost

For some sub-projects, material is brought from along distance because it is not manufacturedlocally and so the cost increases.Also, in the low income areas and katchi abadis,material is often taken to the narrow streets usinghand carts or donkey carts.

4.1.6 Masonry cost

Various masons, depending upon their skill level,charge various rates -there is no industry standardon these small projects. Employing a highly skilledmason means quite a large increase in the overallcost of the sub-project.

The cost of material, wages of skilled andunskilled labourers has increased over the 7-yearperiod. One of the reasons for increase in costs isattributed to inflation. This has been noted whilstundertaking the cost analysis of the sewer projectsimplemented by FAUP over the last 7-years e.g.The first sewerage project was undertaken byFAUP in its pilot project area in 1995 and the mostrecent was undertaken in February 2001. In 1995,the price of one bag of cement was Rs.150 and inFebruary 2001 it was Rs.250 - this clearlyincreases the cost of pipes and manholes etc.

In addition to cash, community share is alsoprovided in kind -this usually takes the form ofcommunity providing material (usually pipesand/or providing additional earth for raising thelevel of the lane), labour (usually digging and/ortransportation of material) and time.

The time component is something that is oftenoverlooked by many researchers. In fact a keyFAUP finding is that a lot of time is given bycommunity members:

a) To have frequent meetings to discussproject proposals with the MPCO and othercommunity members

b) To the market for findingrates, purchasing and materials from themarket.

c) Contacting and contracting labourers /mistry to undertake the project.

d) Supervision/monitoring during the executionof the projects.

e) Settling the accounts and ensuring that all thecommunity members are aware of how theircontribution to the funds were used.

4.2 Community share in `kind'

CHAPTER 4FINANCIAL



Year

1995

1996

1997

1998

1999

2000

2001

Total

No. of

Projects

--

12

1

--

--

3

2

18

Length of

pipes laid

(Rft)

--

9,247

300

--

--

4,187

2,335

16,069

--

3,266,400

45,000

--

--

1,238,000

788,000

5,337,400

1

2

3

6

1

13

1

27

304

136

510

1,464

250

3,970

325

6,959

18,800

7,000

26,450

249,400

32,000

498,500

48,000

880,150

Cost ofProject

(Rs.)

Length ofpipes laid

(Rft)

No. of

Projects

Cost ofProject

(Rs.)

Secondary Sewerage Projects Tertiary Sewerage Projects

Table 4-2: Comparison of components included in the cost of tertiary sewerage projects in various partsof Pakistan.

As a rough indicator, FAUP has calculated thatcommunity members spend the following timeperiods on any typical tertiary level sewerageproject:

i) It takes between 2 to 4 days to purchasematerial including time spent on searchingand researching competitive prices.

ii) It takes 4 days to complete 100 feet ofsewerage project.

iii) It can take between 8 weeks to 12 weeks tocollect funds from community members.

iv) It can take between 2 to 4 weeks of attendingmeetings (each meeting of duration 2 to 6hours) to discuss project proposals withcommunity members.

As a guideline, table 4-2 (more details given in

Appendix-1) gives an indication of the variouscomponents that are included in the cost of tertiarylevel projects in Pakistan. This clearly shows thatthere is no uniform standard and methodologybeing adopted in the various national projects.

4.3 Sewerage projects in other parts ofPakistan:

Photo: Community initiating a sewerage project


CHAPTER 5KEY FINDINGS


Variable Unit

Basis of costestimates used

Market/CSR

PCC/RCC

Price of pipeper root

Rs.

Pipe Type-1

Pipe Type-2

Bedding forpipe

Plain ended /Collar ended

None/sand/gravel

Manhole TypeBrick /

PCC (OPPstyle)

Manhole toManholespacing

Feet

FeetAverage Depthof manhole

Restoration ofstreet

Included /Not included


Houseconnection aspart of sewerline cost


InterceptorHodi as part ofthe seweragesystem

WASA(Faisalabad)

CSR(Punjab)

Market

FAUP(Chak-7)

PIEDAR(Quetta)

Market

RCC RCC RCC

Governmentstandard

No information isavailable

45

Collar ended Collar endedNo information is

available

Gravel (4.5inch)

None Sand (2 inch)

Brick(9 inch wall)

Brick(9 inch wall)



60 to 75 40 to 50


4

Included

4

Included Not included

IncludedNot included Not included

IncludedNot included Not included Not included Not included

Not included Not included

Not included Not included

2 2.5

3015

Brick(4.5 inch wall)

PCC (OPPstyle)



None

Plain ended

18Government

standard

RCC PCC

CSR (NWFP)

Pak-CDP(Peshawar)

ASB(Faisalabad)

CHAPTER 5

KEY FINDINGSCHAPTER 5

KEY FINDINGS

BeforeBefore

AfterAfter

5.0 KEY FINDINGS

5.1 Impacts of Sewerage System asViewed By the Community

5.2 Conditions before and afterimplementing a community basedsewerage project in Chak7 jb

5.3 Sanitation Conditions after laying ofSewer lines

Implementation of sewerage projects have hadpositive impacts on the lives of the people as statedby the president of AD&WO. The followingobservations noted from community focus groupsare worth mentioning:

Most community members reported that asmuch as 80% of the expenditure on thepurchase of medicines has been reducedfollowing completion of sewerage sub-projectsin their neighbourhoods.Land value had increased significantly.Most of the time it used to be the women folk ina household who would end up cleaning opendrains in the vicinity of their houses. Thecompletion of the sewerage sub-projects hasallowed them to be free from this duty.

The general conditions of nearly all of the lanesand neighbourhoods prior to implementation ofthe community based sewerage projects wereindeed terrible.

Wastewater was often routed into storm wateropen drains, which in turn frequently overflowedduring rainy seasons. The storm water drains werelaid without any alignment and rarely had propermaintenance. Regular maintenance was mainlythe responsibility of the Faisalabad MunicipalCorporation (FMC).

Quite a number of houses were also disposing offwaste water in the open plots in the area. This oftenresulted in spreading diseases and is one of themain reasons for the poor heath conditions of theresidents living in the area.

The disposal of toilet water was also connectedwith this disposal network as shown in Tablet 2.2The analysis given in the table show that nearly80% of the houses were having hygienicallyunsafe toilet disposal connections due to nonavailability of proper sewerage facilities. This wasone of the major causes of bad smell and pollution,which one could have experienced whilst walkingon the streets.

The improvement in sanitation conditions of thearea are reflected through some photographs, butone can also find the upgrading and change aftervisiting the area and meeting the peopleconcerned.

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Photo: Women used to end up cleaning drains in the

immediate vicinity of their homes.

Photo: Conditions before the community based sewerage

project was extenuated further during rainy seasons




5.4 Community Training

A formal training was arranged for the communityto create awareness among community membersregarding the proper use, maintenance of seweragelines and how to make proper house connections totertiary level sewerage systems.

The training was conducted for the communitiesresiding in each neighbourhood with closecollaboration of AD&WS MPCO members. Athree member committee was formed under thesupervision of the President of the AD&WS toinform both males and females members of the




Photo: Before a community based sewerage project is implemented in Neighbourhood D

Photo: After a community based sewerage project is implemented in Neighbourhood D

society, to decide about suitable time, date andvenue of training, to ensure maximumparticipation of the users. Two training sessions,one for males and other for females were arrangedin each neighbourhood.

The training was carried out in Urdu/Punjabi byteam members which included the Engineers andSocial Organisers. Whilst designing the trainingmodality, the literacy level of the users was keptinto consideration. It was found that the women ofeach of the neighbourhoods were moreenthusiastic about this training event - this was notsurprising since it was also an FAUP finding that itwas the women folk who `suffer' the most from thebad conditions that prevail in the absence of aproper sewerage system and who were the mostproactive in prioritising the sewerage proposals forimplementation on a cost sharing basis with FAUP.

After development of the sewerage system inChak-7jb it is apparent that the general conditionof the environment has been considerablyimproved.

As a result of this improvement the whole area hasbeen upgraded from point of conveyance andsocial interaction. Now residents are observedwalking on the streets even during the rainy seasonwithout any major hindrance. The value ofproperty has increased between 30 to 35% over aperiod of 2-3 years despite a slump in real estatebusiness.

Furthermore, it is believed that the improvedsanitation conditions of the area have had apositive impact on the health conditions ofresidents - A separate case study on the linksbetween improving environmental infrastructureand improvements in health is to be published laterthis year. However, four short interviews withvarious residents of Chak-7jb (Box 5-1, 5-2, 5-3and 5-4)confirm that amongst other things, healthconditions have been improved since expenditureon medical care has considerably been reduced.

All these elements are visible indicators ofimproved living standard.

Photo: Practical community training

5.5 The Impacts on Living Standard of theCommunity




Box 5-1: Interview with Mr. Victor Bhatti ; Age 50 Years; Resident NH-C

Before the sewerage lines were put down, the area was deplorable. Heaps of garbage surrounded the streets and filthy water was flowing from theopen drains resulting in odours, strife and difficulties of easy movement of the inhabitants of the area. Even the pedestrians had to face problems towalk in the streets. Also if someone wanted to visit his kin within the area, it would take a very long time to reach the place. This situation becameworse during the rainy season when water would flow towards the houses and often dampened the foundation of the houses which resulted in thereduction of the market value of the houses.

The filthy water would turn into stagnant ponds due to the lack of any outlet. As a result, mosquitoes were born and usually, epidemics such asMalaria, Cholera etc would result. Huge expenditures were incurred on medical treatment of these diseases which would have often put a hugeburden on the people. It was often the women folk of the area who would end up cleaning the place in front of their houses and this would happenseveral times in a day. Moreover, women would be hesitant to wash clothes because of the absence of any outlet.

When the sewerage projects for the area commenced with community participation and 50% share was required from the community (thisapproximated to Rs. 500 per house), the response was not immediately positive because of the lack of awareness about the benefit of sewerageproject. After awareness campaigns were conducted by FAUP and MPCO's the community started contributing but there were still problems aboutaffordability and people requested to be allowed to contribute in instalment. Luckily, in the mean time the president of Aman development, Mr.Noor Ahmad deposited Rs. 80,000 as payment on behalf of the community so that the project could be started at the earliest. Mr. Ahmad obtained anagreement from the communities that they would pay back their portion of the share over a few months. Other people contributed their share in theform of kind e.g. purchase of pipe for the project. However, there were still houses that could not pay their share because of extreme poverty.

After the implementation of the sewerage projects, the appearance and attitudes of the residents has totally changed. The piles of garbage and odoursdisappeared. Streets became wider because the open drains disappeared and also many encroachments were removed. Now the people can walk inthe streets easily. Similarly, it has also improved the health conditions of the area and thereby reduced medical expenditure. Furthermore, land andhouse prices have risen. A piece of land is now worth Rs. 19,000 per Marla compared to Rs.7,000 per Marla prior to the implementation of thesewerage projects. Like wise, people learnt many lessons from this project such as how to implement the project, how to mobilize the communityand the importance of cleanliness.

5.6 Constraints faced by team whenraising community share

5.6.1 Low Income

50%

5.6.2 Raising of false hopes

Due to the meagre income of communitymembers, it was difficult for the majoritycommunity members to pay their share fortertiary sewerage projects in one go as per policy invogue. To resolve the issue of community share,the MPCO conducted a number of meetings.Ultimately they formed a finance committeecomprising six members to collect the share of thebeneficiaries on weekly basis. The collection ofcommunity share in instalments in ten weeks,solved the problem amicably.

There were about five houses, which were unableto pay the share for sewerage projects. So othermembers of the MPCO (Like AD&WS) decided topay share of these houses collectively.

The lessons learnt from the share raising process ofthese projects signifies the need to startmultipurpose saving programme among FAUPsupported MPCOs. Under this programme thecommunity members would save regularly insmall amounts as per their saving capacity butconsistently to address community needs.

A key finding has been that often influentialpersons raise the hopes of community members bypromising to fulfil a task like laying the seweragesystem without community contributing anyfunds. This has resulted in a very tough task for theFAUP social organisers to mobilise communitiesespecially when requesting funds. Box 5-3 istypical of the constraints that the team have had toface.

Box 5-2: Interview with Mr. Shukat Aarfi ; Age 32 Years; Resident Of NH-D

Before the implementation of the sewerage projects, people had to face many problems such as restrictive movements on the streets, constantodours and heaps of garbage. Filthy water was often overflowing from the open sewer drains. This deplorable condition of the area caused manyproblems for the inhabitants of the area. People could not sit in front of their houses to discuss the routine matter of their life. had tochange their clothes an making ablution several times to offer their prayers because of the stain of filthy water on the (clothes caused by thespraying of filthy water by passing-by motorbikes and vehicles Sometime this resulted in the exchange of harsh words and quarrels. Furthermoresome community members paid Rs. 10 per month to sweepers for cleaning their drains and latrine systems.

When the sewerage projects were completed in partnership with the community, the situation of the area has changed and people started to removethe piles of garbage themselves. The bad odours were eliminated and people could actually sit outside their homes and talk to neighbours. Thevalue of land in the area increased by up to Rs. 800 per Marla. Medical expenditure was considerably reduced.

Now the residents of the area are very happy and no longer are hesitant about inviting relatives. Above all it impacted positively on the social life ofthe area because through this it increased awareness among the people regarding the importance of a clean environment. Furthermore, the projectscreated ownership of the system since they contributed funds, material and time to the sewerage projects.

"Namazees"

Box 5-3: Interview with Dr. Rizwan; Age 32 year; Resident of NH-G

Dr. Rizwan is a Christian and is resident in neighbourhood-G where most of the community members are also Christians. Most of the people inNH-G are very poor. When FAUP introduced the community participatory approach, funding mechanism and asked them to participate in thesewerage projects, the community members were reluctant mainly because they were under the impression that the development of their areawould be done without spending any money by the community. This understanding had arisen because many NGOs, that were working for theChristian community in the area had promised them that funds for the development of the area could be brought in from outside the area.Unfortunately, these NGOs only paid lip service and ended up doing very little for the area. The example of the NGO, QariTas, was quoted bycommunity members. Apparently, some minor drains were constructed by this NGO but no major development work appeared.

With the assistance of FAUP, a local MPCO called Christian United Development was formed and at the same time a member of Provincialassembly (MPA), Mr. Jacob Siamon Gill asked FAUP to prepare cost estimates for the whole area and Mr. Siamon announced that he woulddeposit 50% share on behalf of the Christian community - the funds would be obtained as a government grant. This was rejected by FAUP sincecommunity ownership was not apparent. No real progress has been made in the development of this area by anyone and communities remainedreluctant to participate on a cost-sharing basis with FAUP.

The situation remained like this until February 2001 when FAUP offered an area development package to all residents of Chak7 jb, which includedwater, sewerage, street lights and paving/roads. This was done using an Area Level Organisation, which also had representation from the residentsof NH-G. Since it was announced that FAUP was to close in June 2002, and following tremendous amount of dialogue by the Area LevelOrganisation and the FAUP social organisers, residents of NH-G finally agreed to contribute whatever amount they were able to.




5.6.3 Government responsibility

5-4

Many people especially the financially well-offresidents of the area were strongly of the view thatconstruction of sewerage systems should and is thefull responsibility of the government linedepartments. Box illustrates one such view.

The external constraints that FAUP has facedduring sanitation projects (or indeed in most of theother tertiary level projects) include:

The local politicians like municipal councillors,members of provincial and national assembliesusually make false promises with the communitiesof their constituencies to develop infrastructurelike sewerage, drains, water supply and paving ofstreets etc. But these promises are never fulfilled.However, this situation adversely affectsdevelopment initiatives of the organisedcommunities being supported by FAUP. When anycommunity is given such commitment by localpolitician, the community looses motivation fortheir participation and projects under processthrough community participation are delayedconsiderably. On a number of occasions, suchsituation has arisen among organised communitiesincluding NH-C of Chak-7jb area.

FAUP has overcome this situation by getting awritten agreement from WASA that no sanitationprojects can be undertaken in the FAUP projectareas without the written consent of ProjectApproval Committee (PAC) of FAUP.

The lessons learned by FAUP from this situation

are, firstly to ensure close co-ordination betweencommunity and the local politicians to avoid falsecommitment. Secondly to create awareness amongpoliticians as well to adopt FAUP model forutilisation of their allocated funding fordevelopmental scheme. The communityparticipation in such schemes would double thenumber of schemes and broaden the beneficiariesbase.

The tertiary sewerage projects are being built onthe Government land with equal contribution ofcommunity and FAUP. From the legal point ofview, the ownership of tertiary infrastructure ofsanitation system has yet to be decided. FromWASA's prospective, the ownership of all thesesewer projects should have been transferred tothem so that their proper operation & maintenanceshould be ensured.

WASA is a counterpart line department fordevelopment of sanitation system. As alreadymentioned, WASA is responsible for planning,designing, implementation and maintenance ofsecondary and primary infrastructure. Theoffshoots of these infrastructure i.e. tertiaryprojects are implemented by the communities.Hence, any delay on the part of construction ofsecondary or primary infrastructure system effectsdevelopment and use of tertiary projects. FAUP isfacing such problems in all the areas. The overallintegrated planning of a sanitation system, whichcovers tertiary and secondary infrastructure, cansolve these issues. Therefore, FAUP is nowfocusing on area level planning to develop thesanitation system.

5.7 External Constraints Faced by FAUP

a) Political Interference

b) Legal Implications of Ownership

COMMUNITIES TAKE CHARGE OF LOCAL SANITATION FACILITIES · 2014. 3. 9. · 1.5 Definition of...

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