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STUDY: Rural Water, Sanitation and Hygiene (RWASH)
Program Development Study
COUNTRY: Liberia
STUDY REPORT
July 2012
Task Team
Team Leader:
Team Members:
Sector Director
Reg. Director
Sector Manager
Resident Rep
Rees Mwasambili
Ms. Mose Mabe-
Koofhethile
Mr. E. K. Kuatsinu
Mr. S. Bruce-Smith
Mr. S. Jallow
Mr. F.J.Perrault
Mr. K. Ba
Ms. M. Kilo
Task Manager, Senior Water and
Sanitation Engineer, OWAS.1
Principal Procurement Specialist
Consultant, OWAS.1
Consultant, ORPF.2
OWAS/AWF
ORWB
OWAS.1
LRFO
Peer
Reviewers
Basil Jones Principal Institutional Capacity Development officer; OSFU
Andrew Mbiro Water and Sanitation Specialist; OWAS/UGFO
Eskinder A. Demissie Sr. Water and Sanitation Engineer, OWAS.2
TABLE OF CONTENTS
LIST OF ACRONYMS i
GRANT INFORMATION ii
PROJECT SUMMARY iii
RESULTS-BASED LOGICAL FRAMEWORK iv
1. INTRODUCTION AND BACKGROUND 1
2. THE PROPOSED STUDY 3
2.1 OBJECTIVES 3
2.2 OUTCOMES 3
2.3 OUTPUTS 3
2.4 SUMMARY DESCRIPTION AND ACTIVITIES 3
3. COSTS ESTIMATES AND FINANCING PLAN 5
3.1 COST ESTIMATES (FOREIGN AND LOCAL) 5
3.2 FINANCING PLAN 6
4. EXECUTION OF THE STUDY 6
4.1 EXECUTING AGENCY: ORGANIZATION AND MANAGEMENT 6
4.2 FINANCIAL MANAGEMENT ARRANGEMENTS 7
4.3 PARTICIPATORY APPROACH 8
4.4 IMPLEMENTATION SCHEDULE 8
4.5 PROCUREMENT ARRANGEMENTS 9
4.6 DISBURSEMENT ARRANGEMENTS 11
4.7 AUDITING 11
5. JUSTIFICATIONS 12
6. GRANT PROTOCOL OF AGREEMENT 12
7. CONCLUSIONS AND RECOMMENDATIONS 12
7.1 CONCLUSIONS 12
7.2 RECOMMENDATIONS 13
ANNEX 1: LIBERIA DEVELOPMENT INDICATORS
ANNEX 2: DETAILED STUDY COST ESTIMATES (IN EURO)
ANNEX 3: PROGRAM DEVELOPMENT IMPLEMENTATION SCHEDULE
ANNEX 4: STUDY AREA - MAP OF LIBERIA
i
LIST OF ACRONYMS
CSB Community Services Bureau
CSO Civil Service Organization
CSP Country Strategy Paper
DP Development Partner
GOL Government of Liberia
JMP Joint Monitoring Program
LBPWU Labour-Based Public Works Unit
MDG Millennium Development Goal
LISGIS Institute of Statistics and Geo-Information Services
MLME Ministry of Lands, Mines and Energy
MPW Ministry of Public Works
MTEF Medium Term Expenditure Framework
NGO Non-Governmental Organization
NWSHPC National Water, Sanitation and Hygiene Promotion Committee
PFMU Public Finance Management Unit of the Ministry of Finance
NRWSSP National Rural Water and Sanitation Program
PRS Poverty Reduction Strategy
RWSD
RWASH
Rural Water Supply Division
Rural Water, Sanitation and Hygiene
RWSSI Rural Water Supply and Sanitation Initiative
SL Short-List
TOR Terms of Reference
WASH Water, Sanitation and Hygiene
WSSC Water Supply and Sanitation Commission
WSSP Water Supply and Sanitation Program
ii
Grant Information
Client’s Information
GRANT RECEPIENT: Republic of Liberia
BENEFICIAY/EXECUTING AGENCY: Ministry of Public Works – Community
Services Department
Financing plan
Source Amount (EUR) Instrument
RWSSI-TF 0.677 million Grant
Government of Liberia 0.072 million Government
TOTAL COST 0.749 million
ADB’s key financing information
RWSSI-TF Grant Currency
EUR
Timeframe - Main Milestones (expected)
Study approval October 2012
Effectiveness November, 2012
Completion February , 2014
Last Disbursement August 2014
Last Repayment NA
iii
Project Summary
Project
Overview
Project Name: Liberia: Rural Water, Sanitation and Hygiene Program Development
Study
Geographic Scope: Entire Country
Project Objectives and Expected Outputs: The overall objective of the study is to
provide the Government of Liberia with sufficient information and justifications to
make an informed decision on the most appropriate options for delivering sustainable
and equitable access to safe and affordable drinking water supply, basic sanitation and
hygiene services in rural areas. The outputs of the study will include; (i) National
Program and Operational Plan for Rural Water, Sanitation and Hygiene services for the
rural areas of Liberia for 2012 - 2017; (ii) Program Implementation Manual; (iii)
Monitoring and Evaluation Framework and (v) Operational and Maintenance Plan for
rural WASH.
Implementation Framework: 2012 – 2014 (15 Months including disbursement
effectiveness and procurement - 9 months Study Implementation)
Project Cost: Euro 749,347 (UA 645,564) of which Euro 677,347 (UA 583,644) is
RWSSI TF grant and Euro 72,000 (UA 61,920) is government in-kind contribution).
Project direct beneficiaries: The direct project beneficiary is the Rural Water Supply
Department in the Ministry of Works, the Ministry for Health and Social Welfare and
the counties.
Needs
Assessment
The rationale for the project can be put in the broader context of the Bank’s support for
Liberia’s emergence from a recent past of conflict to a path of stability, growth and
poverty reduction, accompanied by improved infrastructure rehabilitation and
development. Current Development Partners’ support to the Liberian Water Sector is
project based, and largely fragmented. Coupled with weak government capacity, this has
tended to reduce the efficiencies that would be gained from a programmatic approach, in
addition to increased transaction costs, and inability by government to effectively lead
and coordinate the sector. Thus the need to harmonise on the part of the donors and to
align to government efforts calls for development of programmatic framework for
planning, financing and implementation. This Bank support will assist the Government
to elaborate such a comprehensive framework, which will also be integrated.
Bank’s Added
Value
The proposed RWASH Program Development Study will complement the
implementation of the Liberia WASH Program and build on previous operations and
programs financed by the Bank and other Development Partners (DPs). These include
the Monrovia Water Rehabilitation project, the on-going Urban Water and Sanitation
project, financed by the Bank through this support and engagement with other donors,
the Bank has acquired substantial knowledge and experience on challenges facing
Liberia’s Water Sector. The Bank’s field presence is also an important asset that allows
it to have full engagement in the country’s development agenda.
Knowledge
Management
Financing of the proposed study will complement the Bank’s knowledge products in
water supply and sanitation sector in Liberia, notably the Support to the Water Sector
Reform Study financed through the African Water Facility, and the World Bank’s
support to Liberia in the preparation of the Water and Sanitation Investment Plan and
the Sector Investment Model. Knowledge will be gained through skills transfer from
advisors and consultants to the staff of MPW and other government institutions and
through the Study and various data and information platforms and manuals to the users,
as well as through the various field trips training courses and workshops. Knowledge
gained from this project will also be captured through careful monitoring and evaluation
of expected outputs and outcomes, supervision missions, and the Project Completion
Report.
iv
RESULTS-BASED LOGICAL FRAMEWORK
Country and Project Name: Liberia: National Rural Water, Sanitation and Hygiene Program Development Study
Purpose of the Project: To undertake a study to lead to development of the National Rural Water, Sanitation and Hygiene Program
(NRWASHP) RESULTS CHAIN PERFORMANCE INDICATORS Means of RISKS/
Indicator
(Including CSI)
Baseline Target Verification MITIGATION MEASURES
Imp
act
Improved and equitable access to
safe water supply and sanitation,
and improve hygiene practices,
thereby contributing to improved
human welfare, development and Liberia’s long term sustainable
growth
% Access to water supply and
improved sanitation
Water supply: 51%
Sanitation: 25%
Service coverage in rural areas
increased to 67% for water supply
and 57% for improved sanitation
1.1 Water Sector Reports
1.2 Government statistical
bulletins and economic reports
1.3 JMP report
Risk Inadequate financing
Mitigation
- Enhanced sector efficiency
- Improved accountability of budgets and spending
ensuring water, sanitation and hygiene are each separately and clearly identified
- Advocacy for sector financing
Ou
tco
me
2.1 Improved Framework for sector coordination, planning,
management and efficiency in the
delivery of investments in Rural water supply, sanitation and
Hygiene services.
2.2 Improved GoL capacity to lead
and coordinate the sector;
2.1.1 Technically and economically sound NRWASH Program
developed.
2.1.2 A comprehensive Water
Supply and Sanitation Policy
Framework that gives clear direction and well defined roles and
responsibilities on the development
and management of RWASH sub sector
2.2.1 Effective RWASH planning
and programming leading to equitable, transparent and efficient
allocation of 2.2.3 The profile of the
WSS sector raised in national planning and allocation of resources
and increased stakeholder
participation and buy in into the RWSS programme
2.2.2 A sustainable national and
county based RWASH management
information system providing up-to-
date RWSS information for national
and county levels planning, monitoring and decision-making
purposes
No program 2.1.1 NRWASH Program approved/adopted by Government
and Development partners by end of
2013 2.1.2 NRWASH Program
Implementation by 2014
2.2.1 Functional Program
Management Team in place for
implementation by Jan. 2014.
2.2.2 RWASH Annual Budget for 2014 in accordance with Program
Operational Plan
2.1. Program Report MoU between DPs and GoL on the
Program;
2.2.1 Sector Report
2.2.2 Liberia 2014-2015 Annual Budget
Risk: Poor buy in by DPs and other key stakeholders Mitigation:.
- Consultations with all potential partners during the
program development process - Timely reports to all stakeholders during the
programme development process
Risk: Marginalization of hygiene and sanitation
Mitigation: - Dedicated hygiene and sanitation subprogram
operational plan and budget
- Close collaboration with MoHSW, MoE, MoLG&D and NGOs
v
Key
Act
ivit
ies
- Recruit consultants
- Undertake Studies and develop required products - Conduct On the job training and study tours
- Hold stakeholder consultative workshops
Risk Implementation delays
Mitigation: - TA support to Program Management Development
Team
- close supervision by the PMPW/RWSD and oversight by Government and Bank’s supervision.
Costs (UA,)*
Source FC LC Total
RWSSI TF 428,554 155,790 583,644
GOL - 61,920 61,920
Total 428,554 217,710 645,564
* including contingencies
Ou
tputs
1.1:NRWASH Program and
Investment Plan; 1.2: Framework for operation and
maintenance of RWSS facilities
1.3 NRWASH Implementation Manual
1.4: M & E Framework
1.5: RWASH Program Management Capacity
1.6: Draft Financial Mobilization
White Paper
1.1:NRWASH Program and
Operational Plan; 1.2 Framework for operation and
maintenance of RWSS facilities
1.3 M & E Framework 1.4: NRWASH Implementation
Manual
1.4: k 1.5.1Established and equipped
RWASH Program office
1.5.2 Number of workshops and study tours
1.6: Draft Mobilization White Paper
NA 1.1 NRWASH Program and
Operational Plan by Oct.2013 1.2 NRWASH Implementation
Manual by November 2013
1.3 Framework for operation and maintenance of RWSS facilities by
October 2013
1.4 M&E framework by .November 2013.
1.5.1 Fully established and equipped
RWASH Program office by March 2013
1.5.2 3 workshops and 1 study tours
by October 2013 1.6 Draft Mobilization White Paper
by December 2013
- Study Consultancy
progress reports (inception, monthly,
completion);
- EA’s quarterly reports
- Bank supervision
mission reports
Risk: Delays in implementation and government endorsement of
outputs. Mitigation: Govt will be the main driver of the study to ensure full
ownership of the process and its outputs.
1. INTRODUCTION AND BACKGROUND
1.1 Liberia’s fourteen-year civil conflict (1990-2003) greatly undermined its development
prospects. The protracted conflict had a devastating effect on both infrastructure and the
human development of Liberia, due to dried up investment for the former and many of the
most qualified and experienced persons leaving the country for the later. Post-conflict
reconstruction of service delivery and sustainability of existing infrastructure remain as the
main challenges. Rural water supply coverage is currently (2010) estimated at 51% against
the MDG target of 67%, while rural sanitation coverage is 17% against the MDG target of
57%.
1.2 The Government of Liberia in 2008, embarked on water sector reforms that are aimed
at improving the management and efficient delivery of services. An integrated Water
Resources Management Policy (IWRM) as well as a Water Supply and Sanitation Policy
were approved by the Cabinet in 2008 and 2009 respectively. In addition, the Water,
Sanitation & Hygiene Sector Strategic Plan for 2011 to 2017 was completed at the end of
2011.
1.3 During this period the Bank supported the GoL and has emerged as the lead donor in
the water sector with 4 operations (valued at approximately 32 million UA) addressing
immediate, medium, and long term needs: 1) Monrovia Water Supply and Sanitation
Rehabilitation project 2) Urban Water and Sanitation Study for Monrovia and 3 towns of
Buchanan, Kakata and Zwedru, 3) Water Sector Reform Study and 4) The Urban Water and
Sanitation Project for Monrovia, Buchanan, Kakata and Zwedru.
1.4 The reforms and support provided by the Bank and other Development Partners
notwithstanding, Government capacity to lead, coordinate and deliver services which was
severely compromised by the conflict is still weak. It is critical to make a full transition to
country-led processes in service delivery, data management, regulation and sector oversight.
In addition, in recognition that the policies were not being fully operationalized the
Government of Liberia and development partners including AfDB negotiated the Liberia
Water, Sanitation and Hygiene (WASH) in 2011. The Compact emphasizes that water and
sanitation facilities must be accessible, affordable and available to both rural and urban
communities. The Compact made 4 key commitments (1. Establish and strengthen
institutional plan, 2. Ensure equity and prioritised service provision, 3. Develop a monitoring
system and 4 Improve sector financing mechanisms). The Compact set out a roadmap with
targets and responsibilities for achieving the agreed indicators. These developments have
moved the sector to a position where a programmatic approach is now required to enhance
aid effectiveness in accordance to the Paris Principles of harmonization and aid effectiveness.
1.5 The World Bank is currently supporting the GoL to develop a Water Supply and
Sanitation Sector Investment Plan (WSS-SIP) and a Water Supply and Sanitation Sector
Investment Model (WSS-SIM). The objective of the WB financed Investment Study is to
provide a ground-up facility based investment plan for urban and rural water supply and
sanitation infrastructure covering capital expenditure for rehabilitation, replacement and new
facilities. These will cover the hardware needs of the rural as well as the urban sub-sectors.
The GoL requested for the Bank’s assistance for a study to develop a National Program for
Rural WASH. The proposed National RWASH programme Study will provide the framework
of operationalizing the hard infrastructure investments (subject of WSP study), covering the
whole spectrum of program components that will include both the hard and soft aspects
2
required for sustainable management of rural water supply, sanitation and hygiene. The Study
is required to provide a common integrated framework for the rural sub sector development,
harmonize donor support, improve sector management, coordination and efficiency, and
service delivery to the rural communities and will include Water governance, policy
institutional aspects, capacity development, sector coordination and management, financial
and technical sustainability, private sector participation, environmental and climate change
adaptation.
1.6 The financing of the proposed study will address the above shortcomings and will
complement the Bank’s knowledge products in water supply and sanitation sector in Liberia,
notably the Support to the Water Sector Reform Study financed through the African Water
Facility, and the World Bank’s support to Liberia with the preparation of the Water and
Sanitation Investment Plan and the Sector Investment Model.
1.7 The proposed study will be financed through a Rural Water Supply and Sanitation
Initiative Trust Fund (RWSSI TF) only.
1.8 Lessons learned from Bank Group operations in the Country, Sector, and from
implementing similar program development studies in other countries have shaped the project
design in the following areas: Close supervision and follow-up: The Bank has been financing the Support to Water Sector Reform
Project through the African Water Facility. The main lessons learned is the importance of strong Bank
follow-up and supervision during recruitment and implementation of consultancy services to ensure
Government leadership and active participation/inputs by all key stakeholders. Due to lack of supervision
capacity in-country, the implementation of the Project lagged behind and led to very slow implementation
and lack participation of key stakeholders. The proposed project will have dedicated management team
from the government supported by a Technical Assistant that will work with and supervise the
consultancy to ensure government ownership, quality and timely delivery of the outputs. The Bank’s
supervision missions and well as the Bank’s office in Liberia will also follow up closely.
Effectiveness/Disbursement: (i) simplification of grant conditions to speed-up effectiveness and
disbursement; (ii) the Bank with the support of the current Consultant to the Water Sector in Liberia, will
facilitate the appointment of the appropriate staffing of the Government’s Program Development Team
(PDT) and carry out preparatory activities prior to approval of the grant and (v) Provide continuous
follow up through provision of Technical assistance to the EA in the management of the study.
Sector Performance: Capable sector management is key to successful operations and long term
sustainability of the study outputs. The project will: (i) strengthen the capacity of the PDT of the Ministry
of Public Works to implement, monitor and evaluate project progress with the support of Technical
Assistance. Support will also be provided to build capacity through study tours to key stakeholders and
actors . The study will include an analysis of the governance arrangements, institutions and actors that
shape the performance of the sector. In addition to the sector policy and regulatory framework, the water
sector governance assessment will cover:
- Water sector and decentralized governance arrangement (devolution, delegation and de-concentration)
- Citizen’s participation
- Transparency, and accountability
- Water sector financial management and procurement
- RWASHP budgeting and investment planning and the medium-term expenditure framework.
Inclusive Growth: in accordance to the Liberia Agenda for Transformation (PRSPII), the project will
ensure integration of the key crosscutting issues of Gender Equity, Peace Building, Environment, HIV
and AIDS, Children and Youth, Human Rights, the Disabled, Conflict Prevention and Developmental
Capacity. One of the key outcome indicators for WASH in the PRSP II is “Increased share of households,
institutions, and communities that have adequate quality WASH services, including in the poorest and
most vulnerable communities”. The study will devise the mechanisms for operationalization of the key
indicator.
Sustainability: the program development will include (i) the development of O&M framework and
elaboration of O&M manual as well as the development of M&E Framework to Improve RWASH sector
monitoring capacity and communication of results.
3
2. THE PROPOSED STUDY
2.1 Objectives
2.1.1 The Objective of the study to prepare a comprehensive National Rural Water,
Sanitation and Hygiene Programme in order to harmonize current efforts and improve and
speed up implementation in order to meet MDG targets.
Specific objectives
i) To undertake an assessment of the problems of rural beneficiaries in relation to water
supply, sanitation and hygiene, and a situation analysis of rural WASH;
ii) To formulate a program concept paper on the components of the national program
which will take into account the various concerns and aspirations of the key actors;
and serve as basis for the development of the fully fledged national program;
iii) To elaborate a national program with detailed costs of the program components (both
soft and hardware); and an operational plan and Manual;
2.2 Outcomes
The National Rural Water, Sanitation and Hygiene Program (NRWASHP will enable and
lead to improved framework for sector coordination, management and efficiencies, improved
planning and sustainability, and increased investments. GoL capacities to lead and coordinate
the sector will also be strengthened. It is also expected that all this will lead to an increased
access to safe water supply and sanitation and improved hygiene practices.
2.3 Outputs
- A consolidation of information relevant to the sustainable management and delivery
of Rural WASH services (Situation Analysis Report)
- NRWASH Program
- Program Implementation Manual
- Monitoring and Evaluation and O&M Plans
- Strategic Environmental Assessment Report and Climate Change Adaptation
Strategy
- Draft Resource Mobilisation Paper
2.4 Summary Description and Activities
The following tasks will be undertaken:
Task 1: Situation Analysis (Issues to be addressed in the Program)
Key elements to be covered in the situation will include Water governance, policy
institutional and legal aspects, capacity development, sector coordination and management,
financial and technical sustainability, private sector participation, environmental and climate
change adaptation, amongst others. The analysis will also include pertinent cross cutting issue
of gender.
Task 1(a) Rapid Sanitation and Hygiene baseline Survey
Building on from the Water point Atlas prepared in 2011, the situation analysis will also
include a baseline data survey of the sanitation and hygienic situation in rural Liberia through
a Sanitation inventory survey. This will entail field spot surveys as well as collecting data
from MPW WASH Focal people, the MOH Environment Health Technicians and the NGOs
working in the counties. The survey will include inventory of WASH for all schools, health
4
and social welfare institutions and public places such as the markets. Data from the survey
will be gender segregated. A sanitation Atlas will be produced.
Task 2: Development of National RWASH Program (2012-2017)
Based on the Program components agreed at a national consultative workshop, the National
RWASH Program will be elaborated. The program components will include rural water
supply and sanitation infrastructure, capacity building and institutional strengthening,
promotion of hygiene and sanitation, program management, and monitoring and evaluation,
operation and maintenance, amongst others agreed as priorities.
Sector performance standards and indicators; implementation monitoring, reporting and
accounting formats for use at community, county and national level will be determined as
part of the program development. Key Performance Indicators (KPIs), research and
development and system for dissemination of information will be developed. In line with the
Sanitation for All Compact for Liberia the RWASH Program development will include
baseline data desegregated by gender and will be designed such that bi-annually, the CSO
scorecard will be used to turn input, output and outcome data into information on how the
sector is performing. The program development study will also include a “randomized
control evaluation study”, which would be used to measure the impact of the program i.e.
improved human welfare, development and Liberia’s long term sustainable growth.
Coordination, coherent sector development, transparency, accountability to users/citizens and
the practice of good governance also mean that MPW/RWD have the obligation to increase
the level of sub sector information so that all stakeholders can examine where the sector
needs are, where the funds were spent, the outcomes gained as a consequence and the plans
and initiatives being taken by different actors.
This task will also address financial sustainability (and availability and sufficiency of sector
finances), including criteria for allocation of resources to local government administration,
and will incorporate within the NRWASHP, key performance indicators related to financial
management in line with the PRSP2.
Task 3: Development of Operation and maintenance Framework for Rural Water Supplies
and Sanitation Facilities
The O and M Framework will define the critical principles required in the sector and in all
project implementation that will ensure sustainability of the facilities. The O and M
Framework will address the following elements amongst others;
Operations and maintenance and facilities management plans.
Cost recovery mechanisms.
Community-level training for operations and maintenance.
Performance-based service contracts.
Supply chain management for water supply and sanitation facilities.
Task 4: Development of NRWASHP Implementation Manual
The activity will develop the Program Implementation Manual (PIM). The PIM will contain
the full project cycle of implementing the various Program components. Further, the PIM will
contain the definition of the stakeholders and their role vis-à-vis the implementation of the
program, planning cycle and process, implementation approaches (decentralization,
community participation, demand-responsive approach and cost-recovery principles),
eligibility criteria for investments; methodology for project implementation and monitoring;
5
technical and design aspects; procurement management; training and capacity building;
financial management, environmental and social issues; climate change and gender, amongst
others. The PIM will also include a section on Operation and Maintenance- Manual for O&M
of rural water and sanitation facilities.
Task 5: Development of a Monitoring and Evaluation Framework
This task will review the existing RWASH M&E framework, including the indicators, and
develop and define measurable indicators linked to ensuring development effectiveness and
achievement of the government targets, Impact on health, poverty and gender, environment,
climate change and other relevant WASH benchmarking systems. It will also identify the
various institutions and their mandates that will be involved in M&E.
The M & E framework, harmonized with PRSP II indicators, will set a viable M&E system
for the sector, and should allow for scope to widen the system to include establishment of
modalities for sector-wide information management, i.e. rather than establishing a “RWASH
sector M&E system” as an end state, this would be a building block to the establishment of a
“sector information management and monitoring system”, with this further development
taking place incrementally once the core M&E is fully institutionalized and operational. This
approach will allow for a more holistic approach to sector information management, which
among other things would enable better horizontal integration of various sector information
management systems, of which the M&E system would be one.
Task 6: Preparation of Resource Mobilization Paper
A Resource Mobilization document will be prepared based on the emerging consensus in the
sector, in close liaison with GoL, for mobilizing financial resources to implement the
NRWASH. The task will also include facilitation of arrangements for a donors’ conference
and preparation of conference materials (donor mobilization document).
3. COSTS ESTIMATES AND FINANCING PLAN
3.1 Cost Estimates (foreign and local)
3.1.1 The total cost is estimated at Euro 749,347 (UA 645,564) (excluding taxes and
customs and duties), of which Euro 497,505 (UA 427,854) will be in foreign currency and
Euro 251,842 (UA 217,710) will be in local currency. The cost per category of expenditure is
summarized in Table 1 below.
Table 1: Project cost by category of expenditure
EUR UA % of FC
Category of Expenditure FC LC Total FC LC Total Total
Consultancy Services 373,141 15,200 388,341 320,901 13,072 333,973 96%
T A 61,370 61,370 52,778 52,778 100%
Workshops and study tours 17,124 70,918 88,042 14,726 60,989 75,715 19%
Audit 20,995 20,995 18,056 18,056 100%
Operating Costs 84,732 84,732 73,939 73,939 0%
GoL Offices 68,400 68,400 58,824 58,824 0%
Total Base Cost 472,630 239,250 711,880 406,462 206,824 613,286 66%
Physical contingency (5%) 24,875 12,592 37,467 21,393 10,885 32,278 66%
Total Cost 497,505 251,842 749,347 427,854 217,710 645,564 66%
6
3.2 Financing Plan
3.2.1 The assignment will be financed by the Rural Water Supply and Sanitation Initiative
Trust Fund (RWSSI TF) and the Government of Liberia as shown in the table 2 below. The
RWSSI-TF financing will cover: (i) the cost of consultancy services for the study (ii)
Technical Assistance to the Rural Water Supply Division of the Ministry of Public Works
(MPW), (iii) Audit services, and (iv) Program development management costs in
RWSD/MPW consisting of general operating costs including cost of workshops, study tours,
procurement of basic office and IT equipment (computers, printers etc.), etc.
Table 2: Estimated Cost by Financing Plan
Source UA Euro %Total
F.C LC TC FC LC TC
GoL - 61,920 61,920 - 72,000 72,000 10%
RWSSI-TF 427,854 155,790 583,644 497,505 179,842 677,347 90%
Total 427,854 217,710 645,564 497,505 251,842 749,347 100%
4. EXECUTION OF THE STUDY
4.1 Executing Agency: Organization and Management
4.1.1 The Government has created the National Water, Sanitation and Hygiene Promotion
Committee (NWSHPC) as a resource group made up of the Line Ministries and service
agencies, civil society and development partners. The committee is responsible for
operationalizing the NWSSP including the development of strategies, and coordinating all
water supply and sanitation activities. NWSHPC will be the steering committee of the study.
4.1.2 The Study will be executed by the Ministry of Public Works (MPW). MPW is in
charge of Infrastructure and Basic Services under Pillar IV of the PRS. It has also led the
sector coordination at national level. The Ministry is technically oriented, and handles among
other tasks, the national rural water supply program. The ministry implements directly, and/or
through contractors and NGOs. The Rural Water Supply Division (RWSD) in MPW will
coordinate the program development process and study and will manage daily
implementation activities, including, monitoring of activities and reporting.
4.1.3 However, due to capacity constraints in MPW, the Project financial management will
be the responsibility of the Project Financial Management Unit (PFMU) of the Ministry of
Finance, which is already established by the World Bank. The PFMU has a Financial
Management Specialist, as Unit Manager, several Accountants (about five), and an Internal
Auditor. Sun Accounting software system has been installed at the PFMU, which the unit
uses to capture and report on financial transactions of the many projects it manages. The
PFMU will provide on the job training for seconded staff of the MPW under a Memorandum
of Understanding (MOU) to be signed between PFMU and MPW. A draft MOU has been
discussed with both parties.
4.1.4 Procurement under this project will be carried out by the Infrastructure
Implementation Unit (IIU). The Infrastructure Implementation Unit provides procurement
support to the MPW. The IIU is headed by a Program Director who in turn has two Deputy
Directors, responsible for Engineering, Admin & Finance and Monitoring and IT.
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4.1.5 The MPW shall establish a Program Development Team (PDT), led by a Program
Development Coordinator from RWSD with three other staff, to drive the development
process and to ensure a speedy execution of the assignment. The PDT will develop and
maintain liaison with all Government organs for the purpose of facilitating the work of the
consultants. Members of the PDT will be seconded to the project, and will comprise a
Water/Sanitary Engineer and a financial specialist from RWSD/MPW; and a hygiene and
sanitation specialist from the Ministry of Health and Social welfare. The MPW will appoint
the PDT prior to the start of the assignment.
4.1.6 Technical Assistance through a combination of Individual Consultancy and a series of
capacity strengthening activities which will include provision of various equipment (IT,
internet, GIS etc.), will be provided to the government to support it during the development
process and in the management of the study. The TA Individual Consultant will provide
advice, assistance and training to the Team and the RWSD in MPW to ensure a successful
undertaking of the study, and ultimately the development of the National Rural Water,
Sanitation and Hygiene Program.
4.1.7 A multi-disciplinary and reputable consulting firm with capability and demonstrable
experience in the field of the assignment and in comparable assignments shall undertake the
study. The consultants’ team would have the following core experts: Rural Water and
Sanitation Engineer (who will also be the Team Leader), Sanitation/environmental specialist,
Rural WASH Expert, Sociologist (Gender/poverty), Development Economist/financial expert
and institutional/governance expert. The consultant will be free to procure short-term experts
as required. The expert consultants of the firm must have the requisite qualifications and
expertise to undertake their respective assignments in the study.
4.1.8 The GoL will be responsible for approving the validated outputs and outcomes of
the assignment.
4.2 Financial Management Arrangements
4.2.1 An assessment of the executing agency, the MPW revealed that it had no capacity for
financial management. Project financial management will be the responsibility of the Project
Financial Management Unit (PFMU) of the Ministry of Finance, and already established by
the World Bank. The PFMU has a Financial Management Specialist, as Unit Manager,
several Accountants (about five), and an Internal Auditor. Sun Accounting software system
has been installed at the PFMU, which the unit uses to capture and report on financial
transactions of the many projects it manages.
4.2.2 The assessment of the PFMU concluded that there is sufficient capacity to meet the
accounting and reporting requirements of the proposed project. The Ministry of Public Works
will second an accounting staff to be trained by the PFMU under a negotiated MOU during
the study period with a view to build FM capacity at the MPW for managing future project
FM assignments.
4.2.3 In championing the use of the World Bank created PFMU efforts have been made to
align the Bank’s requirements for the proposed project with those of other existing donors
working with the institution to increase harmonization of procedures and practices amongst
8
the donors. PFMU is currently managing the FM aspect of the Labor Based Public Works on
behalf of the LBPWU.
4.3 Participatory Approach
4.3.1 During the implementation of the study, three national workshops/seminars involving
all stakeholders shall be held. The consultant in collaboration with the Program Development
Team/MPW and the TA will make all preparations necessary to carry out the workshops,
including drawing up the participant list, locations of the workshops, and items to be
discussed. During the conducting the workshops, organizers will ensure participation of
women. The stakeholders would include government departments, counties, donors, NGOs,
representatives of the community-based organizations and the private sector operators
involved in the sector. The locations of the workshops would be spread over the study area to
ensure participation of all stakeholders especially the beneficiaries of the systems. Each
workshop shall have a duration of about two-days whereby institutional, organizational,
developmental, environmental, financial and cross cutting issues of the study will be
discussed.
4.3.2 The consultant will propose the sequencing of workshops, but it will be expected that
these will be held to discuss the major outputs of the assignment
4.3.3 Dissemination of the study outputs. The study workshops and other sector meetings
will constitute important dissemination outlets for the study outputs. In addition, the
Consultancy Study will produce a brief dissemination outline strategy targeting the important
stakeholders.
4.4 Implementation Schedule
The total implementation period of the study will be 18 months after Grant approval.
The first six months after Grant signature will be used for the procurement of the consultancy
services and TA contract. The Study Consultant shall commence work within one month of
receipt of Notice to Proceed and shall complete all work within a maximum period of 9
months. The details of the proposed implementation schedule are given in Annex 3. Target
dates for key activities by calendar months are shown in Table 3 below.
9
Table 3: Implementation Schedule
Activity Time in
Months
Responsible Agency
RWSSI TF Grant Approval C AfDB
Grant Signature C AfDB/GOL
Submission of Short List of Consultants and RFP C+ 1 MPW
Approval of SL and RFP C+ 2.5 AfDB
Submission of Proposals C+ 4 Consultants
Submission of Evaluation Report C+ 5 MPW
Approval of Evaluation Proposals Report C+ 5.5 AfDB
Negotiation and Award of Contract C+ 6.5 MPW
Mobilization of Consultants C+ 7.5 Consultants
Inception Meeting C+ 8.5 Consultants/ MPW
First Workshop C+9.5 Consultants/ MPW
R WASH Program Concept paper C+10.5 Consultants/ ADF/MPW
Second Workshop C+ 11 Consultants/ MPW
Revised R WASH Investment Plan C+ 11.5 Consultants/ AfDB/MPW
Third Workshop C+13 Consultants/ MPW
PIM,O&M and M&E C+14 Consultants/AfDB/MPW
Submission of final Reports C+15 Consultants
4.5 Procurement Arrangements
4.5.1 The project’s procurement arrangements are summarized in Table 4 below. All
procurement of goods and acquisition of consulting services financed by the RWSSI-TF
Grant will be in accordance with the Bank's Rules and Procedures for Procurement of Goods
and Works (May 2008 Edition) or, as appropriate, Rules and Procedures for the Use of
Consultants (May 2008 Edition), as the case may be using the relevant Bank Standard
Bidding Documents. Procurement arrangements are summarized in Table 4 below.
Table 4: Procurement Arrangements (UA)
Category Shortlist Other* Total
Goods
IT Equipment (Laptops , photocopiers office printers) - 11,202 11,201 [11,201]
Office Equipment/furniture 2,752 2,752 [2,752]
Total - 13,954 13,954 [13,954]
Services
Program Study Consultant 351,551 351,551 [351,551]
Technical assistance 55,556 55,556 [55,556]
Workshops and exchange visits 65,747 65,747 [65,747]
Audit 19006 19.006 [19.006]
Total 426,113 65,747 491,860 [491,860]
Operating Costs (travel, office supplies, communications) - 139,751 139,751 [77,831]
TOTAL 4,26,113 245,767 645,564 [583,644] *others may be Individual Consultants; National Shopping; GoL Procedures
Figures in brackets are amounts financed by the RWSSTF as the case may be [ ]
4.5.2 Goods: The acquisition of laptops and office equipment valued at a total of UA
11,201 will be carried out through national shopping. This procurement will be in two lots
estimated at UA 11,201, and UA 2,752, for IT equipment and office equipment respectively.
These are off the shelves goods and readily available in Liberia.
10
4.5.3 Consultancy Services: The acquisition of consultancy services for the main study in the
amount of UA 351,551 shall be through competition among short-listed qualified consulting
firms, using Quality and Cost-Based Selection (QCBS). Technical assistance amounting to UA
55,556 shall be procured using shortlisting of individual consultants. Audit services amounting
to UA 19,006 shall be procured through shortlisting, using Least Cost Selection (LCS).
4.5.4 For consultancy contracts which are valued at less than UA 200,000, the Borrower may
limit the publication of the announcement to national or regional newspapers. However, any
eligible consultant, being regional or not, shall be considered if they express their desire to be
short-listed. For contract valued at more than UA 200,000 for Firms and UA 50,000 for
individuals, advertisement of the procurement must be placed on the UNDB online and the
Bank’s website.
4.5.5 Operating Expenses: Expenditures during the project implementation including office
supplies, utilities consumables, advertising expenses, internet service communication,
consultative workshops, study tours and staff allowances will be procured through the
Government of Liberia (GoL) procedures acceptable to the Bank.
4.5.6 Review Procedure: The following documents are subject to a no objection by the
Bank before promulgation: ement Notices,
Reports, including recommendations for Contract Award (goods/works), or Reports on
e have been
amended and differ from the drafts included in the tender documents,
Evaluation of Consultants' Financial Proposals, including recommendations for Contract
award, minutes of negotiations and duly initialed contracts documents..
4.5.7 Post Review: Contracts for goods valued up to UA 15,000 shall be approved by the
Executing Agency, and will be subject to post review by the Bank. Procurement documents,
including solicitations of price quotations, evaluation sheets and contract awards will be kept
by the EAs for periodic review by Bank supervision missions. The procurement post review
audits to review the correctness of the procurement activities will be carried out during the
first supervision mission after the procurement activities are completed. However, the Bank
reserves the right to conduct its procurement audit at any time during the project
implementation.
4.5.8 General Procurement Notice: The text of a General Procurement Notice (GPN) has
been agreed with the Government of Liberia and it will be issued for publication in UN
Development Business and the Bank website, upon approval by the Board of Directors of the
Grant Proposal.
4.5.9 National Law and Regulations: Republic of Liberia’s national procurement law and
regulations are governed by the Amendment and Restatement of Public Procurement and
Concessions Act (PPCC) 2005, which was approved September, 2010. The Act applies to
procurement of goods, works and services, financed in whole or part from public funds. A
Public Expenditure Management and Financial Accountability Review (PEMFAR) 2009,
prepared by World Bank confirmed that the Act complies with the international best
standards. It however, states that due to lack of capacity, application of the Act and
procedures is not consistent with good practice and poses high risk on the public finance
system. The PEMFAR has recommendations for areas for improvement for sound
11
procurement system. These include: (i) Eligibility of Parastatal organizations and state
enterprise; (ii) advance contracting and retroactive financing; and (iii) margin of domestic
preference. This was confirmed by the recently concluded NCB Assessment which was
carried out by the Bank. As the recommendations have not been fully implemented by the
GOL, in the interim, procurement under Bank financing will be in accordance with the
Bank’s rules and procedures.
4.5.10 Assessment of the Executing Agency: The Ministry of Public Works (MPW) will be
responsible for the implementation of the Project. Procurement under this project will be
carried out by the IIU. The Infrastructure Implementation Unit (IIU) provides procurement
support to the MPW. The IIU is headed by a Program Director who in turn has two Deputy
Directors, responsible for Engineering, Admin & Finance and Monitoring and IT. The
Procurement Unit reports to the Head of Engineering and has four Procurement Officers. An
assessment of the capacity of the IIU concluded that it has been exposed to other Donor and
MDB procurement procedures as well as for the Bank under the Labour-Based Public Works
Unit (LBPWU).
4.5.11 Procurement Plan: The Bank shall review the procurement arrangements proposed
by the Borrower in the Procurement Plan for its conformity with the Loan Agreement and its
Rules. The Procurement Plan shall cover an initial period of at least 18 months.. The
Borrower shall update the Procurement Plan on an annual basis or as needed always covering
the next 18 months period of project implementation. Any revisions proposed to the
Procurement Plan shall be furnished to the Bank for its prior approval.
4.6 Disbursement Arrangements
Three Disbursement Methods will be available for use by the study namely: i) the
special account method, ii) the direct payment method, and iii) the reimbursement guarantee
method. The Special Account method (SA) shall be used for payments of goods, services and
operating costs, while Direct Payments shall be used for payments under the, services
contracts for the study. The reimbursement guarantee method will be used for imported goods
in case the suppliers choose to complete the transaction by way of letter of credit. A foreign
exchange Special Account will be opened specifically for the project in a commercial bank
and will be managed by the PPFMU, which is already managing the Special Accounts for the
funding from the World Bank and the African Development bank. The PFMU will also open
a local currency (Liberian Dollar) Project Account to support the operation of the Special
Account and facilitate payments in local currency, if this becomes necessary. All
disbursement will follow the procedures outlined in the Bank’s Disbursement Handbook.
4.7 Auditing
The General Auditing Commission (GAC), headed by an Auditor General, has
primary responsibility for the external audit of all government projects. Under the project, the
GAC shall approve of the selection of an independent private audit firm, using the Bank’s
procurement guidelines, for the project audit. The appointment of private external auditors for
the project, under terms of reference and with selection procedures satisfactory to the Bank,
would be finalized within six months of effectiveness in order to comply with audit covenants
and ensure timely audit of project expenditures. The report on the audit shall be submitted to
the Bank for review and approval, prior to payment of any associated audit fees, within six
months after the project’s fiscal year end.
12
5. JUSTIFICATIONS
5.1 Since emerging from the civil conflict, the Government of Liberia, with the assistance
of the donor community, has shown commendable efforts and commitment in addressing the
challenges of providing water, sanitation and hygiene services, especially to rural
communities. To improve the organizational, legal and regulatory framework of the sector,
the GOL embarked on reforms that led to development of an Integrated water Resource
Management Policy (IWRM) as well as a Water Supply and Sanitation policy (WSSP)
approved by the Liberian Cabinet in 2008 and 2009 respectively. The Agenda for
Transformation- Poverty Reduction Strategy (PRS) 2 (2012-2017) has as one of its priorities
to increase access to safe water supply and sanitation and improve hygiene practices. Some of
donors in the country have also financed investments to the sector, however these
investments are not well harmonized and not led by Government
5.2 The preparation of the National RWASH Program as proposed in the present study
will support and complement the Government’s efforts to review its sector policies and
strategies, and the constraints. The Program will enable the GoL to carry out an integrated
implementation plan and a capital expenditure program in order to ensure sustainable
development in the sector in the medium and long term periods. The implementation of the
study recommendations will promote coordination, harmonize the support of donors and
government, introduce sector efficiencies through reduced transaction costs, and lay the
ground for a sustainable development and management of the rural water, sanitation and
hygiene sector. The Program when ready will also attract financing. This outcome will lead to
increased access to drinking water supply, improved sanitation and hygiene practices by the
Liberians in rural areas. The Program will also contribute towards the institutional
strengthening and capacity building in the sector which is currently a major constraint to
sector development.
5.3 The Bank has previous experience in financing similar studies which led to
development of National Programs under Rural Water and Sanitation Initiative (RWSSI) in
other RMC, and has evidence of its demonstrable effectiveness in promoting transparency,
equity, decentralized implementation, and increased participation of women, amongst other
good principles. The study will support the development of these principles in Liberia.
6. GRANT PROTOCOL OF AGREEMENT
Upon approval of grant request, the Grant Agreement will come into effect on the date of
signature by the Government of Liberia and the African Development Fund.
7 CONCLUSIONS AND RECOMMENDATIONS
7.1 Conclusions
The proposed study constitutes a major element to support the existing sector policies
and development activities in Liberia aimed at rational development of the rural water and
sanitation sector. The study will provide as major outputs, program and an investment plan in
the rural water supply, sanitation and hygiene services to satisfy the projected future needs of
the population in rural areas. The study will also serve as a guide to the donors and authorities
13
responsible for planning, operation, and maintenance of water supply and sanitation services
as well as the allocation of investment resources.
7.2 Recommendations
It is recommended that a grant not exceeding Euro 677,347 (UA 583,644) from the
RWSSI TF resources be extended to the Government of Liberia in order to carry out the
development of a National Rural Water, Sanitation and Hygiene Program. The grant and its
entry into force would be subjected to the following conditions:
A. Conditions Precedent to entry into force of the Protocol of Agreement
The Grant Agreement shall enter into force upon its signature.
B. Conditions Precedent to First Disbursement
The obligation of the Bank to make the first disbursement of the Grant shall be
conditional upon entry into force of the Agreement and the following conditions,
namely, the Recipient shall have provided evidence in form and substance acceptable to
the Bank of having opened a foreign currency Special Account (SA) in a bank
acceptable to the Bank for the deposit of the proceeds of the grant.
ANNEX I: LIBERIA DEVELOPMENT INDICATORS
Social Indicators Liberia
Africa Developing
countries 1990 2011 *
Area ( '000 Km²) 111 30,323 80,976
Total Population (millions) 2.1 4.1 1,044.3 5,732.2
Population growth (annual %) -1.5 3.3 2.3 1.3
Life expectancy at birth, total (years) 48.5 59.1 56.0 67.1
Mortality rate, infant (per 1,000 live births) 138.4 91.3 78.6 46.9
Physicians per 100,000 People … 1.0 58.3 109.5
Births attended by skilled health staff (% of total) … 46.3 50.2 64.1
Immunization, measles (% of children ages 12-23 months) … 64.0 77.9 80.7
School enrollment, primary (% gross) … 96.0 100.4 107.2
Ratio of girls to boys in primary education (%) … 90.7 90.9 100.0
Literacy rate, adult total (% of people ages 15 and above) … 59.1 65.1 80.3
Access to Safe Water (% of Population) 57.0 68.0 64.5 84.3
Access to Sanitation (% of Population) 40.0 17.0 41.0 53.6
Human Develop. (HDI) Rank (Over 187 Countries) … 182 n.a n.a
Human Poverty Index (% of Population) … 35.2 34.7 …
Liberia
Economy 2000 2009 2010 2011
GNI per capita, Atlas method (current US$) 139 196 205 …
GDP (current Million US$) 661 879 1,300 1,409
GDP growth (annual %) 36.1 4.6 5.7 5.9
Per capita GDP growth (annual %) 29.8 -0.1 1.6 2.6
Gross Domestic Investment (% of GDP) 23.5 66.9 76.0 80.4
Inflation (annual %) 5.3 7.6 7.8 8.5
Budget surplus/deficit (% of GDP) 0.3 -1.6 1.3 -2.0
Trade, External Debt & Financial Flows 2000 2009 2010 2011
Export Growth, volume (%) … … … …
Import Growth, volume (%) … … … …
Terms of Trade (% change from previous year) … … … …
Trade Balance ( mn US$) -2 -410 -652 -717
Trade balance (% of GDP) -0.2 -46.6 -50.2 -50.9
Current Account ( mn US$) -93 -292 -532 -547
Current Account (% of GDP) -14.0 -33.2 -40.9 -38.8
Debt Service (% of Exports) … 352.4 168.8 0.8
External Debt (% of GDP) 625.2 191.1 8.1 8.5
Net Total Inflows ( mn US$) 631.6 1,663.2 … …
Net Total Official Development Assistance (mn US$) 67.4 505.0 … …
Foreign Direct Investment Inflows (mn US$) 20.8 217.8 248.0 …
External reserves (in month of imports)
0.0 1.8 1.8 …
Private Sector Development & Infrastructure 2000 2005 2010 2011
Time required to start a business (days) … … 20 6
Investor Protection Index (0-10) … … 3.7 3.7
Main Telephone Lines (per 1000 people) 2.4 0.6 1.5 …
Mobile Cellular Subscribers (per 1000 people) 0.5 50.3 393.4 …
Internet users (000) 0.2 6.3 0.7 …
Roads, paved (% of total roads) 6.2 … … …
Railways, goods transported (million ton-km) … … … …
Source: ADB Statistics Department, based on various national and international sources
* Most recent year
October 2011
ANNEX 2: DETAILED STUDY COST ESTIMATES (in Euro)
Units QTY Unit Cost Total Cost FC LC
1 Programe Development Experts
1.1 Expert Fees
WSS Engineer (Team Leader) M/M 9 11,900 107,100 107,100
Rural WASH Expert M/M 6 10,800 64,800 64,800
Institutional/Sector Governace Expert M/M 3 10,800 32,400 32,400
Sanitation/Environmental Expert M/M 4 10,800 43,200 43,200
Sociologist M/M 4 10,800 43,200 43,200
Public Finance Expert M/M 2.1 10,800 22,680 22,680
1.2 Reimbursables -
International travel Unit 12 2,200 26,400 26,400
Field Survey Project Vehicles No 2 26,500 53,000 53,000
Local Travel Unit 10 1,600 16,000 16,000
408,780 392,780 16,000
2 Technical Assistance, Workshops and exchange visits
2.1 Individual Consultant
2.1.1 Consultant fees MM 6 10,400 62,400 62,400
2.1.2 International travel (reimbursable) Unit 1 2,200 2,200 2,200
2.2 IT /Office Equipment
2.2.1 Laptops No 2 1,200 2,400 2,400
2.2.2 Printer No 2 1,025 2,050 2,050
2.2.3 Photocopiers No 1 5,165 5,165 5,165
2.2.4 Desk top computers/GIS software No 1 3,410 3,410 3,410
2.2.5 Office furniture LS 1 3,200 3,200 3,200
2.3 Workshops and Study visits
2.3.1 Consultation workshops LS 3 21,150 63,450 63,450
2.3.2 Donor Conference LS 1 8,000 8,000 8,000
2.3.3 PDT international travel Unit 1 5,000 5,000 5,000
Sub-Total 3 157,275 82,625 74,650
3 Audit Services
Audit Services LS 1 22,100 22,100 22,100
Sub-Total 3 22,100 22,100
4 Operating Costs
4.1 Transport operating costs PM 12 900 10,800 10,800
4.2 Office Supplies PM 10 400 4,000 4,000
4.3 PDT Performaanc related allowances PM 12 2800 33,600 33,600
4.4 Reports and Printing LS 1 2,900 2,900 2,900
4.5 Coordination meetings LS 5 1,500 7,500 7,500
4.6 Field allowances (PDT) day 61 265 16,165 16,165
4.7 Financial Mgt by PFMU Month 12 650 7,800 7,800
4.8 Procurement Support by IIU Month 6 655 3,927 3,927
4.9 Communication Month 12 208 2,500 2,500
Sub-Total 4 89,192 89,192
5 Government Contribution
Offices and utilities Month 15 4,800 72,000 72,000
Sub-total 5 72,000 72,000
749,347 497,505 251,842
RWSSI Trust Fund Grant 677,347 497,505 179,842
Description
Grand Total
Sub-Total 1
ANNEX 3: PROGRAM DEVELOPMENT IMPLEMENTATION SCHEDULE
ACTIVITY
S O N D J F M A M J J A S O N D J F
Month 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18
Board Approval and GPN
Grant Signature
Shorlist of Consultants and RFP
Technical and Financial Proposal
Bid Evaluation Report
Negotiation and Award
Mobilisation
NRWASH Development Study
RWASH Program and Operational Plan
Program Implementation Manual
O & M Framework
M&E framework
Draft Program Mobilisation Paper
Final Reports
Workshops/Meetings
Submissions
Inception Report
Situation analysis Report
Monthly Progress Reports
Completion Report
2012 2013 2014
ANNEX 4: STUDY AREA - MAP OF LIBERIA
STUDY: Rural Water, Sanitation and Hygiene Program
Development Study
COUNTRY: Liberia
TERMS OF REFRENCE
RWASH PROGRAM DEVELOPMENT STUDY AND TECHNICAL ASSISTANCE
July 2012
1
LIBERIA
Rural Water, Sanitation and Hygiene Program Development
Study
ANNEXES
Annex A Terms of Reference: National Rural Water, Sanitation and Hygiene Program
Development study
Annex B Terms of Reference for Technical Assistance to the Ministry of Public Works
in support of National Rural Water Sanitation Hygiene Program Development
Study
A: TERMS OF REFERENCE: NATIONAL RURAL WATER, SANITATION AND HYGIENE
PROGRAM DEVELOPMENT STUDY
1. BACKGROUND
1.1 The Government of Liberia has requested the African Development Bank for financial
support to develop a National Rural Water Supply and Sanitation Programme (the National Rural
Water, Sanitation and Hygiene Program (RWASHP)) and an accompanying investment plan. These
Terms of Reference describes the Consultancy Services required to undertake the task.
1.2 Liberia has an estimated population of 3.73 million people (LISGIS Census 2008), of which
about 2.23 million live in rural areas. The 2008 figure corresponds to an average density of 93
persons / square mile. Monrovia, the Capital is the largest city with a population of 970,824 million.
About 47% of the population lives in urban areas, with 53% in rural areas. Liberia is divided into 15
major administrative subdivisions called Counties. Civil war and mismanagement have destroyed
much of Liberia’s economy, especially the country’s infrastructure while international sanctions on
diamonds and timber exports limited growth prospects for almost half of a decade during 2000–2007.
1.3 Since emerging from civil conflict, Liberia has embarked on economic reforms and
reconstruction. The first Poverty Reduction Strategy (PRS) was implemented from 2008 to 2011
which has been followed a second PRS for 2012 – 2017 that was concluded at the end of 2011. Both
PRS included targets for water and sanitation. An integrated Water Resources Management Policy
(IWRM) as well as a Water Supply and Sanitation Policy were approved by the Cabinet in 2008 and
2009 respectively.
1.4 According to the JMP 2010 report, coverage of access to water supply and sanitation in
Liberia in 2008 was 51% and 17% respectively. A rural water point inventory survey conducted in
2011 indicates that 60% of the existing water points are fully functional, 10% partly functioning and
30% broken down. According to 2008 World Health Statistics, 20% of children were reported to have
diarrhea in a two week period and over 80% of diarrheal disease is associated with contaminated
drinking water and poor sanitation and hygiene.
Water supply and Sanitation in Rural Areas
1.5 Population projections by LISGIS Census indicate that Liberia’s population in 2011 was 3.73
million people; 1.37million lived in urban areas and 2.11 million (56.6%) lived in the rural areas. The
rural population is projected to rise to 4.08 million in 2015 and 4.27 million in 2015. Liberia’s rural
population is characterised by high levels of poverty; there is generally lack of employment, resulting
in low income, and low access to basic services including schools, health centres, safe water supply
and sanitation. Based on JMP Report (2010) the estimated coverage of access to water supply and
sanitation in Liberia was 68% and 17% respectively. A rural water point inventory survey conducted
in 2011 indicates that 60% of the existing water points are fully functional, 10% partly functioning
and 30% broken down.
1.6 Lack of access to safe water supply and sanitation in Liberia’s rural areas is a major
contributing factor to poverty in rural areas. There is relatively high incidence of water and sanitation
related diseases (particularly malaria and diarrhea), which result in high health costs to individuals
and communities. According to 2008 World Health Statistics, 20% of children were reported to have
diarrhea in a two week period and over 80% of diarrheal disease is associated with contaminated
drinking water and poor sanitation and hygiene. Furthermore, women and children spend a
disproportionate amount of time and effort in daily chores of water collection, and in caring for those
suffering from water and sanitation-related diseases.
1.7 Under its first PRS, Liberia aimed at increasing coverage to 50 % of the population by 2011,
from 25% baseline water coverage of 2008. For sanitation, the PRS initially targeted 40% of the
2
population but this was revised to 33% in 2008 owing to a sector assessment that pointed to slow
progress. The second PRS sets national targets at 77% for water supply and 56% for improved
sanitation. Rural targets are 67% and 57% respectively.
1.8 Government Capacity to lead, coordinate and deliver water and sanitation services was
severely compromised by the conflict, but is now re-emerging albeit slowly to make a full transition
to a country-led process in service delivery, data management, regulation and sector oversight.
Recognizing that the sector policies were not being operationalized, and that most donors financed
projects were stand-alone projects, the government and development partners negotiated the Liberia
WASH Compact. The Compact, agreed in 2011 as part of the Sanitation and Water for All (SWA)
initiative, sets out four joint commitments as follows: (i) institutional capacity, (ii) equity, (iii)
monitoring, and (iv), finance.
1.9 Furthermore, in view of the post-conflict environment, this study will look at sector
governance challenges and underlying drivers of the water supply and sanitation in Liberia. The
development of a national rural water and sanitation program will look at existing institutions and
structures to understand why the sector works as it does and how the sector works, what are the main
hindrances to success and what opportunities are there for improvements. The purpose of the sector
governance analysis is to develop a better understanding of the overall governance decision-making
process, the relations between the state, service providers and users as well as the interaction of state
and non-state actors at central and country or district levels. It will also review the power within
decision-making process at a sector level, and the accountability patterns between the state and non-
state actors in the delivery of potable water and sanitation services to the rural population in Liberia.
1.10 There are various factors that contribute to the performance of the sector that need to be
addressed if these targets are to be achieved. These include problems with implementation of policy
and institutional capacity building; marginalization of sanitation, unreliable data; severe financing
constraints and lack of coordination of sector aid, amongst others.
2. OBJECTIVES
2.1 Objectives
2.1.1 The Objective of the study is to provide the Government of Liberia with sufficient
information and justifications to make an informed decision on the most appropriate options for
delivering sustainable access to safe and affordable drinking water supply and basic sanitation and
hygiene services in rural areas. The study will develop a coherent National Rural WASH Program by
recommending and providing costs to ensure the long-term sustainability of water supply, sanitation
and hygiene services and by enabling Government to prioritize works and to develop an investment
program and implementation manual.
2.1.2 The outputs of the study will include a National Program for Rural Water, Sanitation and
Hygiene services for the rural areas of Liberia, a Rural WASH Program Implementation Manual, a
Monitoring and Evaluation Framework and a Framework for Operational and Maintenance of the
rural WASH facilities including sustainable supply chain for use during implementation..
Specific objectives
i) To undertake an assessment of the challenges facing rural beneficiaries in relation to
RWASH and a situation analysis of rural WASH disaggregated according to supply/demand
zones;
ii) To formulate a program concept paper on the components of the national program which will
take into account the various concerns and aspirations of the key actors;
iii) To outline a national program with detailed costs of the program components; and an
implementation plan;
3
iv) To outline a Program implementation Manual; and,
v) To draft a Resource Mobilisation Paper
The program will be developed with a view to harmonise the support of Development Partners (DP)
around one common programme and ultimately with one joint funding mechanism.
3. SCOPE OF ACTIVITIES
3.1 General Scope
The general scope of this study will be to analyse the current situation in the provision of water
supply, sanitation and hygiene education to the rural areas. The practices and constraints of the
various actors active in the sector will be detailed, drawing examples from typical representative areas
in different parts of the country. The study will address all the aspects of water supply, sanitation and
hygiene service provision, i.e., legal, technical, financial, institutional, social, economic,
environmental, climate change, coordination etc. The study will seek to identify key issues and build
consensus of stakeholders from policy makers, financiers, planners, implementers, service providers
(including private sector, NGOs, community based organisations and individuals) and the
beneficiaries/users on the key priority components to make up the Program.
Based on the consultations on key issues with stakeholders lessons will be drawn for development of
the various study outputs.
3.2 Detailed scope of Activities
Task 1: Situation Analysis
The Situation analysis will be informed by a rigorous literature review of the important decisions
about the sector that have been made in the recent past. Consolidation of information and a situation
analysis will provide a common understanding of the current sector status, its short-comings, and
serve to support the development of program components and their options. The situation analysis
will also reaffirm the relevance of a N RWASH programme and ensure a programme is designed to
meet the real needs and problems of target beneficiaries. The Consultants’ will confirm the
following:
the coherence of a NRWASH program within the overall framework of national development,
policies, the Long-term vision – Liberia RISING 2030 and the medium term economic
growth and development strategy etc.
the nature, number and type of beneficiaries and other stakeholders that the proposed program
will potentially affect;
all organizations and agencies affected by or involved in the proposed program;
all major problems experienced by the supposed beneficiaries of the program and by any
other parties likely to be involved, the causal interrelationships of these problems, and the
intersect oral links,;
the accountability relationship and power relations between key actors (the state, service
providers and users) in the water supply and sanitation.
the financial management capacity (budget formulation and execution, expenditure control,
and procurement) in the water sector and sanitation service delivery
other interventions or priorities by any national organization or donor which may be affected
by the proposed program;
Information from previous studies and evaluations relevant to the proposed program.
A list of essential documents is provided at the end of the TORs. An indicative list of issues for
verification and analysis is given below but this is not exhaustive and the consultant should develop
4
their own comprehensive list of issues and tasks and this will form part of the basis for the evaluation
of proposals:
Water Governance (Institutional, legal and Policy Arrangements): Assess and review water sector
governance through an analysis of the governance arrangements, institutions and actors that shape the
performance of the sector. In addition to the sector policy and regulatory framework, the water sector
governance assessment will cover:
Governance arrangement including the structure and capacity to deliver WASH programs
Identify and document the roles and responsibilities of various government institutions,
county entities and service providers under the new policy and decentralisation strategy;
Decentralization and effective structure for water supply and sanitation in rural areas
Water sector and decentralized governance arrangement (devolution, delegation and de-
concentration);
Citizen’s participation; ownership of assets etc.;
Transparency and accountability arrangements to improve the delivery of WASH services;
Water sector financial management and procurement; and
RWASHP budgeting and investment planning and the medium-term expenditure framework.
Community Participation
Ownership or management of facilities and assets
- levels of contribution towards scheme development
- level of community participation in design, implementation, management and M&E
- who owns assets and what role in management -direct, independent, indirect.
Planning for WASH activities by communities
Planning for good practice in citizens participation and transparency of the WASH programs
Roles and responsibilities of community based organizations.
Funding/Medium Term Expenditure/Financing Arrangements:
Review the existing financing mechanism and sources of finance for the sector. Identify the
financing flows from national to community levels;
Alignment of the sector policy priorities and the medium term expenditure frame work and
the annual budget cycle
In collaboration with the World Bank Sector Investment Plan preparation team establish
prioritized regional investment plans rolled up into the national investment plan that sets out
financing requirements in phases (Detailed Phase I - 2012 to 2015 and indicative Phase II -
2015 to 2017) for water supply, sanitation and hygiene separately to achieve the targets;
identify commitments made, financial gaps and possible sources of funding; the plan will
include an updateable (Excel spreadsheet) model for scenario development with identified
variables. The plan will verify and build on the provisional Sector Investment Costing of
which the first draft was developed by the government in August 2011.
Examine potential financing mechanisms such as sector Budget Support (BS) and
program/project funding, etc. in conjunction with relevant authorities and development
partners and make specific recommendations for a viable financing mechanism for the Rural
WASH sub-sector. The review shall include examination of the MOHSW Pool Fund
mechanism and a feasibility study on a WASH Pool fund.
5
Economic and social impact analysis; calculate ERR and Economic NPV of the program taking account
of the following with clear assumptions:
a) Benefits in the form of economic revenues from water services
b) Health sector savings, income gained due to diseases avoided
c) Time lost for illness and income from off work days avoided
Prepare Social Impact Analysis (SIA) to identify externalities and employ distributive analysis, which is
the allocation of the externalities among the project stakeholders. While some of the involved parties may
gain due to the project activities, the others may have to incur a loss.
Technology: Choice of - availability of options in relation to country skill availability for O+M,
market, supply chain, and role/process of decision making. The consultant shall also need to look into
standardisation issues and identify the most common technologies and strategy for adoption of
sustainable technologies.
Private Sector Participation
i) Identify and specify the role and contribution of the private sector, including general
organization and capacity, in the implementation, operation and maintenance of the water
and sanitation systems, including their potential roles in supply chain activities;
ii) With reference to supply chain liaise with potential business groups to identify existing
local capacity for delivery of goods, works and services on the basis of business
opportunities which will be created when the Program is launched. Rapidly assess the
procurement and disbursement procedures of the development partners in country against
the typical values of goods, works and services contracts which could be available to local
contractors, consultants and NGOs;
iii) Examine the situation on the ground and propose strategies, in line with the sector strategic
plan for ensuring regular and affordable access to equipment like pumps, pipes, spare parts,
etc.; also to explore the establishment of sani centers and;
iv) Examine the existing environment and prepare strategy to strengthen the private sector
engagement, including capacity building and business opportunity information and
operational knowledge dissemination.
Strategic Environmental Assessment and Climate change
i) Identify potential environmental and socio-economic as well as climate change issues and
impacts pertaining to the proposed program, and propose appropriate environmental and
social mitigation as well as climate adaptation measures;
ii) Prepare SEA report and climate change adaptation strategy in collaboration with the
Environmental Protection Agency (EPA), and integrate climate change adaptation as well as
environmental and social impact mitigation measures in the design of the RWASH program
Monitoring and Evaluation
This task will review the existing RWASH M&E framework, including the indicators, and develop
and define measurable indicators linked to ensuring development effectiveness and achievement of
the MDGs, Impact on health, poverty and gender, environment, climate change and other relevant
WASH benchmarking systems. It will also identify the various institutions and their mandates that
will be involved in M&E. Develop an outline of a RWASH performance monitoring and evaluation.
The framework should include monitoring and an evaluation instrument for tracking participatory
development activities at the community level and for assessing interactions between communities
6
and implementation agents as well as mechanisms for annual sector reviews and dissemination. This
will be based and build on work undertaken by the Water and Sanitation Program (WSP).
The M & E framework will set a viable M&E system for the sector, and should allow for scope to
widen the system to include establishment of modalities for sector-wide information management, i.e.
rather than establishing a “RWASH sector M&E system” as an end state, this would be a building
block to the establishment of a “sector information management and monitoring system”, with this
further development taking place incrementally once the core M&E is fully institutionalized and
operational. This approach will allow for a more holistic approach to sector information management,
which among other things would enable better horizontal integration of various sector information
management systems, of which the M&E system would be one. A wider sector information
management system could include the following features:
Sector M&E measuring effects/impact of sector interventions
Information database on GoL and donor programmes
Linkages between M&E at the program level and the sector-wide M&E system
Linkages between the sector-wide M&E system and the CPRGS and other cross cutting
planning/M&E frameworks
Linkages between the sector information management system and the proposed Matrix of
Affiliation (the Matrix is aimed at relating GoL/donor programme inputs to the strategic
sector interventions included in the strategic plan for the sector).
Sector Co-ordination and DP harmonization and alignment:
- Review existing coordination mechanisms within government, and between government and
non-state actors including development partners:
- Level of government leadership in coordination;
- Coordination between the key actors/agencies in central and local government/county
administration
Rapid Sanitation and hygiene baseline appraisal
Undertake a baseline data survey of the sanitation and hygienic health situation in the country and
establish the sanitation coverage by carrying out Sanitation Point Mapping and then producing a
sanitation point atlas. This can be done by organizing data through the MPW WASH Focal People,
the MOH Environment Health Technicians and the NGOs working in the counties. The survey should
include inventory where required and should cover WASH for all schools, all health and social
welfare institutions and public places i.e. markets and data should be gender segregated.
Task 2: Development of National RWASH Program (2013-2017)
Based on the agreed Program components, elaborate and develop a National RWASH Program for
2012-2017 along with an implementation Plan. All the Program components will be costed. The
program will include a monitoring and evaluation framework.
A sector based MIS system has been established in MPW with assistance from WSP. This system has
base-line information on sector coverage in terms of water points depicting the type of technology and
its location (using a Geographical Information System (GIS). There is a considerable challenge ahead
to combine the centrally run MIS with the County generated data on investments made and ensure
system updating.
As well as the MIS system there is a need to increase the level of information within the Rural WASH
sub sector as whole in order to increase the ability of the various different actors to learn and as an
essential element of the demand responsive approach which is based on informed decision making by
the communities.
7
Coordination, coherent sector development, transparency, downward accountability and the practice
of good governance also mean that MPW/RWD have the obligation to increase the level of sub sector
information so that all stakeholders can examine where the sector needs are, where the funds were
spent, the outcomes gained as a consequence and the plans and initiatives being taken by different
actors.
Sector performance standards and indicators; implementation monitoring, reporting and accounting
formats for use at community, county and national level will be determined as part of the program
development to be disseminated. Key Performance Indicators (KPIs), research and development and
system for dissemination of information will be developed. In line with the Sanitation for All
Compact for Liberia the RWASH Program development will include baseline data desegregated by
gender and will be designed such that bi-annually, the CSO scorecard will be used to turn input,
output and outcome data into information on how the sector is performing. The program development
study will also include a “randomized control evaluation study”, which would be used to measure the
impact of the program i.e. reduction of poverty among the rural population of Liberia.
Task 3: Prepare National RWASH Operational Plan (2013-2017)
This will entail a review of the RWASH Sector Investment Plan and Model under development by the
Water and Sanitation Program (WSP), and an elaboration/detailing of the financial plan/model and
proposed financing mechanisms in the NRWASHP. This task will also address financial sustainability
(and availability and sufficiency of sector finances), including criteria for allocation of resources to
local government administration, and will incorporate within the NRWASHP, key performance
indicators related to financial management in line with the PRSP2.
Task 4: Development NRWASHP Implementation Manual
This activity will develop the Program Implementation Manual (PIM). The PIM will contain the full
project cycle for implementing the various Program components. Further, the PIM will contain sets
of eligibility criteria for RWASH for investments; a methodology for identifying, preparing and
appraising community water projects; methodology for project implementation and monitoring;
technical and design aspects; training and capacity building; financial management, environmental
and social issues; climate change and gender, amongst others. The manual will encompass all of the
above and the following but not limited to:
a. a methodology for identifying, preparing and appraising community water projects by
communities with the assistance of local level government institutions and/or NGOs;
b. criteria for the review, screening and processing of ‘lowest level’ project proposals through
the appropriate levels of authority of local government to final approval;
c. roles of the different levels of government and/or civil society including NGOs in project
vetting, procurement, disbursement and supervision for sub-projects; and
d. ways of ensuring sustainable operation and maintenance of the water supply and sanitation
facilities by communities, government institutions, NGOs, or private sector depending on the
types and complexity of the facilities.
Task 5: Development of Operation and maintenance manual for Rural Water Supplies and
Sanitation Facilities
The O and M Framework will define the critical principles required in the sector and in all project
implementation that will ensure sustainability of the facilities. The O and M Framework will address
the following elements amongst others;
i. Operations and maintenance and facility management plans. Operations and maintenance
plans should not only list maintenance tasks, but also provide a detailed task schedule focused
8
on preventative maintenance and specifying responsibilities. The project operations manual
can provide guidance or models for such schedules, relying on, for example, color-coded
cards and other management techniques for regular maintenance and monitoring;
ii. Cost recovery mechanism. Outline an effective system for user payments for achieving
sustainable service delivery;
iii. Community-level training for operations and maintenance. Numerous methodologies have
been developed for community-level training in RWASH services. An excellent source can be
found in Operation and Maintenance of Rural Water and Sanitation Systems – A Training
Package for Managers and Planners (WHO);
iv. Performance-based service contracts. Where applicable, this approach, which aims to
remunerate a contractor for providing a service at a predefined quality standard, rather than
pay the contractor based on time, works, or materials, should be proposed.
Task 6: Development of a Monitoring and Evaluation Framework
This task will review the existing RWASH M&E framework, including the indicators, and develop
and define measurable indicators linked to ensuring development effectiveness and achievement of
the government targets,, Impact on health, poverty and gender, environment, climate change and other
relevant WASH benchmarking systems. It will also identify thevarious institutions and their mandates
that will be involved in M&E. The task will also develop an outline of a RWASH performance
monitoring and evaluation. The framework should include monitoring and an evaluation instrument
for tracking participatory development activities at the community level and for assessing interactions
between communities and implementation agents as well as mechanisms for annual sector reviews
and dissemination. This will be based and build on work undertaken by the Water and Sanitation
Program (WSP).
The M & E framework, harmonized with PRSP II indicators, will set a viable M&E system for the
sector, and should allow for scope to widen the system to include establishment of modalities for
sector-wide information management, i.e. rather than establishing a “RWASH sector M&E system” as
an end state, this would be a building block to the establishment of a “sector information management
and monitoring system”, with this further development taking place incrementally once the core M&E
is fully institutionalized and operational. This approach will allow for a more holistic approach to
sector information management, which among other things would enable better horizontal integration
of various sector information management systems, of which the M&E system would be one.
A wider sector information management system could include the following features;
Sector M&E measuring effects/impact of sector interventions
Information database on GoL and donor programmes
Linkages between M&E at the program level and the sector-wide M&E system
Linkages between the sector-wide M&E system and the CPRGS and other cross cutting
planning/M&E frameworks
Linkages between the sector information management system and the proposed Matrix of
Affiliation (the Matrix is aimed at relating GoL/donor programme inputs to the strategic
sector interventions included in the strategic plan for the sector).
Task 7: Preparation of Resource Mobilization Paper
A Resource Mobilization document will be prepared based on the emerging consensus in the sector,
in close liaison with GoL, for mobilizing financial resources to implement the NRWASH. The task
9
will also include facilitation of arrangements for a Donors’ conference and preparation of conference
materials (donor mobilization document).
4. IMPLEMENTATION METHODOLOGY
Program Development
The Government has created the National Water, Sanitation and Hygiene Promotion Committee
(NWSHPC) as a resource group made up of the Line Ministries and service agencies, civil society and
development partners. The committee plays the steering role for the sector, and is responsible for
operationalizing the NWSSP including the development of strategies, and coordinating all water
supply and sanitation activities. NWSHPC will be the steering committee of the study.
The Study will be executed by the Ministry of Public Works (MPW). MPW is in charge of
Infrastructure and Basic Services. It has also led the sector coordination at national level. The
Ministry is technically oriented, and handles among other tasks, the national rural water supply
program. The ministry implements directly, and/or through contractors and NGOs. The Rural Water
Supply Division (RWSD) in MPW will coordinate the study and will manage daily implementation
activities, including acquisition of services, monitoring of activities and reporting.
The MPW will constitute a Program Development Team (PDT) comprising a Study Coordinator from
RWSD and three other staff to ensure speedy execution of the study by liaising with all Government
organs for the purpose of facilitating the work of the study consultants. The staff, all to be seconded to
the project, will comprise a Water/Sanitary Engineer and a financial specialist from RWSD/MPW;
and a hygiene and sanitation specialist from the Ministry of Health and Social welfare.
Technical Assistance (TA) through an individual consultant will be provided to the government to
support in the management of the study. The TA will work closely with the consultant to ensure
timely delivery of project outputs.
4.1 Consultations and Consensus on Key Issues
Participatory Approach
During the implementation of the study, three workshops/seminars involving all stakeholders shall be
held. The consultant in collaboration with the Study Management Team/MoPW and the TA will make
all preparations necessary to carry out the workshops including names of the stakeholders, locations
of the workshops, and items to be discussed. The stakeholders would include government
departments, counties, donors, NGOs, representatives of the community-based organizations and the
private sector operators involved in the sector. The locations of the seminars would be spread over the
study area to ensure participation of all stakeholders especially the beneficiaries of the systems. Each
workshop shall have a duration of about two-days whereby institutional, organizational,
developmental, environmental, financial and cross cutting issues of the study will be discussed.
The consultant will propose the sequencing of workshops, but it will be expected that these will be
held to discuss the major outputs of the assignment. The consultant will also largely determine the
approach used in arriving at the draft situation analysis report, however it should include interviews
and getting responses from people on the ground. The consultant will prepare a proposal on the
approach to be used, which will be used in discussion with the CSB/RWSD for adoption.
One of the outcomes of the Stakeholders workshop on the Situation Analysis Report and PCN should
be an outline of the Program document (with agreed Program components) into which the Consultant
will feed details to be obtained from subsequent work.
10
Dissemination of the study outputs. The study workshops and other sector meetings will constitute
important dissemination outlets for the study outputs. In addition, the Consultancy Study will produce
a brief dissemination outline strategy targeting the important stakeholders.
4.2 Develop Program and Program Implementation Manual
After the consultant has received feedback from the stakeholders he will prepare a draft NRWASH
Program incorporating the key issues and other matters arising from the workshop. The draft Program
will be presented and discussed at a stakeholders’ workshop. The Final Program, Investment Plan,
and Implementation Manual reflecting consensus reached at workshop will then be prepared.
4.3 Timing
The total implementation period for the consultancy assignment is expected to be for 9 months..
Target dates for key activities by calendar months are shown in Table 1 below. The Consultant will
however, be free to suggest alterations to the work program.
Table 1: Implementation Schedule
Activity Time in Months Responsible Agency
Inception Meeting End of 1st month Consultants/ MPW
First Workshop 1.5 months after start up Consultants/ MPW
R WASH Program Concept paper 2.5 months after start up Consultants/ ADF/MPW
Second Workshop 3.5 months after start up Consultants/ MPW
Revised R WASH Investment Plan Month 5 Consultants/ AfDB/MPW
Third Workshop Month 6 Consultants/ MPW
PIM,O&M and M&E Month 8 Consultants/AfDB/MPW
Submission of final Reports End of 9th
month Consultants
4.4 Reporting
The consultant shall report to the Head of the Community Services Bureau.
5. Professional profiles and Inputs Required
It is envisaged that the Consultants’ core team with relevant water supply and sanitation experience
will be comprised of:
Rural Water and Sanitation Engineer (Team Leader/Co-ordinator)
Sociologist/Gender
Sanitation/environmental expert
Public Finance specialist (Development Economist/Financial specialist)
Sector Institutional/Governance Expert
Secondary competencies of core team are to include climate change, participatory techniques,
institutional analysis, gender analysis, private sector participation and policy planning.
Key Consultant Personnel Profile
Team Leader: The Team Leader will have a master’s degree in water/civil engineering, or
other relevant to this assignment with at least 15 years of experience (of which at least 5 years
should be in the developing world) in the field of rural water supply and sanitation sector
reform and specific experience in program development;
Rural WASH Expert: The expert will have a degree with specialization in water and
Sanitation/Environmental Engineering or other closely related field and at least 10 years of
11
relevant work experience in WASH development of which 5 years is in the rural WASH
sector. She/He should have a sound understanding of rural water supply and sanitation
program and project design and management, with experience in operation and maintenance
system of rural WSS facilities, community management approaches and working with
government institutions and NGOs.
Sociologist: The Specialist should have a degree in sociology/ related subject with at least 10
years of experience (of these at least 5 years in the developing world) in the field of rural
water supply. Knowledge of gender aspects of water, sanitation and hygiene development is
essential.
Sanitation/environmental Specialist: with relevant water quality and environmental skills.
The Specialist should have a degree in civil engineering – or relevant discipline – with at least
10 years of experience (of these at least 5 years in the developing world) in the fields of off-
site sanitation in rural areas.
Specialist in public finance: The Specialist (financial analyst/development economist)
should have a relevant degree with at least 10 years of experience (of these at least 5 years in
the developing world) in the field of public and utility finance and private sector participation
in the WSS sector.
Specialist in sector governance: The specialist (economist and public policy analyst) should
have expertise in government systems or core public sector reform agenda. S/he should have
knowledge and experience (of at least 5 years) in international good practice in public sector
governance, or voice and accountability agenda.
The Team Leader and relevant specialists should have excellent communication skills (verbal and
written) of the English language.
6. DELIVERABLES
- Inception Report and background literature review setting out detailed approach,
implementation schedule]
- Situation Analysis Report
- Program Concept Note
- Draft Program and Investment Plan
- Final Program Document and Investment Plan
- Operation and Maintenance Framework
- Monitoring and Evaluation Framework
- Program Implementation Manual
- Strategic Environmental Assessment Report and Climate Change Adaptation Strategy
- Draft Resource Mobilisation Paper
7. SERVICES AND FACILITIES TO BE PROVIDED BY THE CLIENT
To the extent possible the Client (Government of Liberia) shall provide the following:
Documents: access to all available data and reports relevant for carrying out the assignment. MPW
will also provide the consultant with a directory of institutions/firms/persons (at national, county and
community levels) with relevant information;
Attachment of staff: Three members of staff ; a Program Coordinator, WSS Engineer and Socio-
economist/Monitoring and Evaluation officer will work with the consultant on all aspects of Program
development.
12
Facilities and Exemptions
The liability of the Consultant for the payment of taxes and duties and the granting of any
privileges of these by the government are included in the Letter of Invitation (LOI).
Office accommodation adequately equipped with basic furniture.
8. RESPONSIBILITIES OF THE CONSULTANT
The Consultant is responsible for the following:
Securing own equipment, materials and transport use during the assignment. The Consultant
shall also make necessary provision for secretarial services and necessary office equipment
for the duration of the assignment.
Local transport: Procurement of project vehicles under this support, which will be handed
over to the MPW at the end of the Project. During the assignment, he will be responsible for
managing the vehicles including all costs of fuel and driver, for all field trips outside
Monrovia required to carry out the assignment
At the end of the assignment all such equipment, materials and transport purchased with the project
funds shall be handled over to the Ministry of Public Works.
Production/reproduction of all reports, and stationery required for all participants in the
consultative meetings;
The copyright of all documents prepared by the Consultant in connection with this study rests with the
Government of Liberia. The Consultant may make copies of such documents but shall not use the
contents thereof for any purpose unrelated to the service without prior written approval of the
Government of Liberia.
LIBERIA RURAL WATER, SANITATION AND HYGIENE PROGRAM
DEVELOPMENT – ORGANISATION CHART
Technical Assistant
General Study Execution/
Supervision of Consultant
(procurement , review of study
reports, communication with
Bank)
NWSHPC & WSSC
Program Preparation studies and
Outputs (Ref TOR)
Consultancy Firm
Ministry of Public
Works
(Community Services
Bureau)
Partner Institutions (MLME,
MOHSW,MOE,MIA, MOF,
MPEA, MoGD, LISGIS,
LWSC, DPs, NGOs, CSOs
etc.)
MPW Study Team (Rural
Water and Sanitation
Division)
13
List of relevant policies, strategies, documents
1
A. National Policies and Strategies
GoL (2008) Poverty Reduction Strategy Paper http://www.liftliberia.gov.lr/doc/prs.pdf
GoL (Forthcoming). Poverty Reduction Strategy 2
GoL (2011). Liberia Rising. http://www.liftliberia.gov.lr/content.php?main=83&related=83
B. Sector Policies and Strategies
GoL, Ministry of Lands, Mines and Energy (2007). National Integrated Water Resources
Management Policy http://wash-liberia.org/Documents.html
GoL, Ministry of Lands, Mines and Energy (2009). Water Supply and Sanitation Policy. http://wash-
liberia.org/Documents.html
GoL, Ministry of Health and Social Welfare (2010). National Environmental and Occupational Health
Policy. http://wash-liberia.org/Documents.html
GoL, Ministry of Public Works (2010). The Guidelines For Water and Sanitation Services In
Liberia. http://wash-liberia.org/Documents.html
GoL, Ministry of Lands, Mines and Energy (2012). Water Supply, Sanitation And Hygiene (Wash)
Sector Strategic Plan For Liberia. http://wash-liberia.org/Documents.html
GoL (draft 2011). Liberia Wash Compact. Sanitation and Water for All: A Global Framework for
Action. http://wash-liberia.org/Documents.html
C. Sector Background Papers
AMCOW Country Status Overview on Water Supply and Sanitation (2011). Water supply and
sanitation in Liberia: turning finance into services for 2015 and beyond. Water and Sanitation
Program, Nairobi. http://wash-liberia.org/Documents.html
GoL (2011). Liberia Waterpoint Atlas. http://wash-liberia.org/Documents.html
1 WSP (2011). Liberia: Draft WSS Sector Investment Study TOR
14
B. TERMS OF REFERENCE FOR TECHNICAL ASSISTANCE TO THE MINISTRY OF PUBLIC
WORKS IN SUPPORT OF NATIONAL RURAL WATER SANITATION HYGIENE PROGRAM
DEVELOPMENT STUDY
1. Background
1.1 The Government of Liberia has submitted an application to the African Development Bank,
for funding the preparation of a program aimed at assisting the Government to review the current
implementation of Rural Water and Sanitation (RWSS) services and to prepare a Planning Framework
and Investment Plan (PFIP) for its RWSS program to meet national and MDG targets. Accordingly,
the Bank has allocated the required funds from the Rural Water Supply and Sanitation Initiative Trust
Fund (RWSSI-TF). These Terms of Reference describes the Technical Assistance to support the
Ministry of Public Works (MPW) to manage and supervise the preparation of the RWSSP and
associated activities.
1.2 The Liberian Government is taking the initiative to shape and drive the re-development of
water, sanitation and hygiene (WASH) services in the country. The Liberian Government adopted, in
2009, a new sector policy (2009) that incorporates IWRM principles and a Water Supply and
Sanitation Policy which focuses on sector governance, among other key components, for a full sector
wide approach. In addition, Water, Sanitation & Hygiene Sector Strategic Plan for the MDGs - 2012
to 2017 was completed in August 2011. The Liberian Government has committed to the eThekwini
Declaration and has also joined the Sanitation and Water for All (SWA) as a result of which a two
year road map WASH Compact has been jointly developed.
1.3 Liberia’s population is approximately 3.5 million people (LISGIS Census 2008) with an
annual growth rate of 2.1%. Monrovia, the Capital is the largest city with a population of 1.01 million.
About 40% of the population lives in urban areas and 60% in rural areas. Liberia is divided into 15
major administrative subdivisions called Counties. Civil war and mismanagement have destroyed
much of Liberia’s economy, especially the country’s infrastructure while international sanctions on
diamonds and timber exports limited growth prospects for almost half of a decade during 2000–2007.
1.4 According to JMP 2010 report coverage of access to water supply and sanitation in 2008 was
68% and 17% respectively. The rural water point inventory survey conducted in 2011 indicates that
60% of the existing water points are fully functional, 10% partly functioning and 30% broken down.
According to 2008 World Health Statistics, 20% of children were reported to have diarrhea in the past
two weeks and over 80% of diarrheal disease is associated with contaminated drinking water and poor
sanitation and hygiene.
1.5 The current Poverty Reduction Strategy (PRS 1) 2008-2011, plans to increase access to safe
water from 25% to 50%, and access to sanitation from 14% to 33% of the population. The draft
Water, Sanitation & Hygiene Sector Strategic Plan for the MDGs - 2012 to 2017 aims to achieve an
overall coverage of 78% and 70% for water supply and sanitation respectively by 2017. In the rural
areas the coverage is proposed to be 67% and 62% for water supply and sanitation respectively by
2017.
1.6 However, there are various factors that contribute to the performance of the sector that need
to be addressed if these targets are to be achieved. These include problems with implementation of
policy and institutional capacity building; marginalization of sanitation, unreliable data; severe
financing constraints and a lack of effective sector coordination of, amongst others.
2. Context
2.1 The AfDB is supporting the Ministry of Public Works to develop the RWSSP. This support
involves providing expert input and guidance in three specific areas that will lead to the definition and
preparation of the National RWSS Program. These include:
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i) Technical assistance for the development of the RWSSP (2012-2017) in line with the sector
strategic plan that was completed in August 2011 and the capacity building plan for all levels
of the WSS management ladder that will be completed in early 2012. Also supporting the
development and establishment of monitoring and evaluation mechanisms for keeping data
current, supply chain and the role of NGOs and private sector, and the appropriate
institutional arrangements for implementation of the Program, as well as the financial
requirements under the guidance of the sector investment plan that will be completed by WSP
in early 2012. Development of a Private Sector Investment/Public Private Partnership strategy
for Liberia and research into appropriate financing mechanisms for the sector, in particular
undertaking research regarding appropriateness of a WASH Pool Fund. The detailed TOR for
program development are attached.
ii) Technical Assistance to facilitate capacity building for Rural Water Supply and Sanitation
sub-sector management and implementation. This will mainly include support of
implementation of key general water sector legal and institutional reforms which are relevant
to rural water and sanitation.
Objective of the Assignment
The Objective of the Technical Assistance is to provide advice, assistance and training to the Ministry
of Public Works (MPW) to ensure successful management of the development of the National Rural
Water, Sanitation and Hygiene Program study and to provide general support to the sub-sector
management activities.
Specific Objectives of the TA will include the following:
To train counterpart staff on study management
To review consultant’s outputs;
To offer operational and administrative support
To support to program development/analysis
To support development and implementation of study monitoring and supervision program
Advice on Performance and operational improvement of the RWD
Scope of Work
The Technical Assistant’s primary function will be to assist the MoPW in ensuring that the
management of the study is efficiently conducted and that the Rural Water Supply Department in the
Ministry of Public Works builds the requisite capacity to enable it to effectively continue with
program implementation after the end of TA. The Tasks of the Technical Assistant will include but
not be limited to the following:
Task 1: Management of the RWASH Program Development Study:
The TA will assist and mentor counterpart staff in RWSD in effective management of the study to
ensure a timely delivery of quality and acceptable outputs. The TA will also offer operational and
administrative support to the department. This will entail:
Assisting the RWSD to prepare for the consultancy study with all requisite materials;
Assisting in the review of consultancy documents/outputs;
Provide expert guidance to the Rural Water Supply Division (RWSD)/Community Services
Bureau (CSB) of MPW with regard to management and supervision of the consultant;
Provide expert support to the management of the consultancy to ensure delivery of quality
work in accordance with the TOR and contracts and budgetary allocations, and on time.
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Review study planning material, progress reports and all other reports; assist in timely
mobilization of relevant stakeholder representatives and facilitating their due participation
and meaningful contribution to the program development process and products, as well as
ensuring due communication with the Bank regarding program progress
Task 2: Operational and Administrative Support
Assist and support in the procurement processes as well as in financial management of the
RWSSI-TF Grant in accordance with the applicable Bank’s rules and procedures;
Manage the ensuing relationships including communicating with the Bank, facilitating inter-
agency meetings, and with other stakeholders;
Coordinate with responsible government agencies and the RWSSP study consultancy firm to
ensure adequate and timely delivery of RWASH inputs for the GoL budget.;
Coordinate with study consultant, responsible government agencies and the Bank and
facilitate organization of resource mobilisation workshop/donors’ conference;
Undertake any other duties related to the proposed program that may be assigned in the
course of undertaking the assignment.
Obtain details of the scope and relevant outputs(draft and otherwise) of on-going studies
and/interventions including UNICEF-funded capacity building plan, WB-WSP funded sector
Investment Plan, Sanitation point mapping and national water quality sampling and AWF
funded Water Sector Reform Study (WSRS); and available building blocks including the
Water Point Atlas (rural and urban), Water, Sanitation & Hygiene Sector Strategic Plan for
the MDGs including preliminary Sector Investment Cost, Integrated Water Resources
Management Policy (IWRM), the Water Supply and Sanitation Policy (WSSP), the National
Environment and Occupational Health Policy, Guidelines for Water and Sanitation Services
in Liberia and the draft PRS II (2012–2017) and undertake consultations for an appreciation
of the issues pertaining to the rural WASH sector.
Task 3: Training, coaching and mentoring
Under this task, the TA will methodically and closely involve and work with RWSD staff when
undertaking his activities. This will entail including the RWSD staff in planning for the above TA
activities, attendance in all meetings with consultants, in the analysis of the consultant’s outputs etc,.
The TA will also facilitate together with the study consultant functional training of sector staff during
the program development (equip staff with skills in the management/conducting of participatory
meetings/workshops, study visits to countries like Ghana, Uganda and Ethiopia as part of the program
development through learning from others).
Deliverables
The following are the expected key deliverables:
TA’s work-plan within three weeks of commencement of assignment outlining the approach
and methodology for undertaking the prescribed activities/tasks and the expected outputs and
their timing
Monthly Reports including activities accomplished, monthly work plan, and
issues/impediments for redress, if any, and proposed actions for resolving the impediments.
The report is to give special focus on capacity building of the MPW counterpart team and
stakeholder mobilization and participation activities.
Comments and recommendations on reports from the study consultant produced within a
maximum of 3 working days of receipt/submission of the reports. Relevant stakeholder
review workshops conducted within 5 working days of receiving the consultant’s reports. The
shall take into account relevant comments from, the relevant national/local authorities and
other stakeholders and shall be responsible, in liaison with the CSB and Consultant’s study
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team, for ensuring the accuracy of all generated data and its analysis, observations, proposals,
conclusions and recommendations.
Comments and recommendations on various documents/requests submitted by the study
consultancy firm to the Executing Agency to be submitted to the Bank within 5 working days
of receipt of the documents/requests.
A Completion report documenting activities, achievements, best practices, lessons and
recommendations for improving the management of future of similar nature.
Reporting
TA shall report to the Director of RWSD
Qualification Requirements
The Technical Assistant should have the following minimum qualifications and competences:
A minimum of Master degree in Water Supply and/or Sanitation Engineering or equivalent
with demonstrated experience of strategic planning, with 15 years of experience of which &
must be in a developing country.
Competence in programming, planning, implementation and supervision of both water and
sanitation programs and projects.
Must also show strong knowledge and experience in water sector policy, governance,
planning and management and institutional development.. Knowledge and experience donor
funded programs and projects and a solid understanding of the work of Development Partners
in general is essential. .
Good track record of delivery and managing complex tasks, requiring sound technical
knowledge and experience, personal maturity and political judgment; demonstrated
experience and ability to work with clients and partners to positively advise and influence
collaboration as well as efficient implementation of projects and programs in a particularly
challenging environment; and proven ability in both delivering on own-managed work plans
and dealing sensitively with others in a multi-cultural context will be required
Proficient knowledge in the use of the computers (word, excel, MS Projects, Powerpoint)
7. Implementation of the Consultancy Assignment
7.1 Administrative Arrangements: The TA shall work closely with staff of the Ministry of Public
Works and report directly to the Assistant Minister for Community Services, who is the of the
Community Services Bureau. Quarterly performance targets based on the outputs outlined above and
the TOR for the program development consultant will be developed and agreed on commencement of
the assignment. The agreed quarterly targets will be used for performance review which will be
undertaken by the head of the Community Services Bureau. The outcome of the performance review
shall be communicated to the Bank within five days of the end of each quarter.
7.2 Duration and Timing of Assignment: The duration of the assignment for the TA will be Six
(6) months. The assignment is expected to commence by ……2012.
8. Responsibilities of the Government of Liberia
8.1 The Government through Program Coordinator shall furnish the TA with all documents
relevant to this assignment. Such documents shall comprise but not be limited to reports on previous
studies related to WSS in the areas to be covered by this study. The Program Coordinator shall also
facilitate the Consultant’s contacts with all relevant agencies. Ministry of Public Works will provide
a fully furnished office and transport for TAs activities.
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9. Responsibilities of the Consultant
9.1 In carrying out his/her work, the TA shall, through the Community Services Bureau of the
Ministry of Public Works cooperate and liaise fully with the local authorities in the respective
counties, and all relevant government institutions and other agencies on matters pertaining to the
assignment. The TA shall exercise all due skills and diligence in the performance of the services, and
shall carry out all his/her responsibilities in accordance with recognized professional standards.
9.2 The copyright of all documents prepared by the TA in connection with this assignment rests
with the Government of Liberia. The TA may make copies of such documents but shall not use the
contents thereof for any purpose unrelated to the service without prior written approval of the
Government of Liberia.