52747
A Concept Paper




AN INTEGRATED APPROACH TO
WATER RESOURCES MANAGEMENT:
STRATEGY FOR SUB-SAHARAN AFRICA



Initiating Memorandum




December 1, 1994
                                    AN IN INTEGRATED APPROACH 

                                                            TO 

                                WATER RESOURCE MANAGE:MENT: 


                           A STRATEGY FOR SUB-SAHARAN AFRICA
     .

                                                     CONTENTS

          I Introduction ..................................................................................... 1 

          n. Background ...................................................................................3 

                   Topography and CliInate ...............................................................3 

                   Drainage Basins .......................................................................... 3 

                   Sub-Regional Characteristics .......................................................... 4 

          m.   Justification, Scope, and Objectives ...................................................9 

          IV. Key ProbleDIS and Issues ................................................................. 11 

                   Highly Variable Water Supply and Drought........................................ 11 

                   Health and Enviromnent Problems ................................................... 12 

                            Health ............................................................................ 12 

                            Enviromnent .·.........·...·...........·...........·.....·...................·.. 14 

                   Management Institutions. Mecbanisms. and Capacity ............................15 

                            Fragmented Water Resources Management ...............................15 

                            Limited Water Resource Management Capacity .........................16 

                            Underpricing. Inefficiency. and Allocation Problems................... 18 

                            Lack of Stakeholder Panicipation ........................................... 19 

                  Data. Information. and Knowledge ...................................................21 

                  Problems Associated with International Water Resources....................... 22 

          V. Methodology, Expected Output, and Intended Audience ......................... .25 

                  Methodology ....·........·...........·...·...·......·...........·..·....·.·...............25 

                  Collaborative approach...............·.............·..... '.............·.................26 

                  Background Studies and Position Papers ............................................26 

                  Technical Workshops ...................................................................27 

                  Expected Output ..........................................................................27 


.,
VI.  Proposed Timetable and Manpower Requirements ................................28 

       Manpower ............................................................... ,.................28 

       Financial Support ........................................................................29 



       Annex 1: Core Team ...................................................................30 

       Annex!.l : Africa Region's Water Thematic Team .............................31 

       Annex 1.2: Steering COnunittee .....................................................31 

       Annex 1.3: African Advisory Group ...............................................32 

       Annex 1.4: Technical Advisory Group ............................................33 

       Annex 2: Position Papers ..............................................................34 

       Annex 3 Draft Annotated OUtline .....................................................35 

                                           I. INTRODUCTION

      1.      Through an ongoing political and economic transfonnation, Sub-Saharan Africa (SSA)
      can exploit the region's potential for economic and social change. The challenge for sustained
     economic growth and poverty alleviation in the region is heightened by the present growth trend in
"    the region's population, which is projected to reach one billion within the next two decades.
     Among other things. the region's long-term economic development is closely associated with
     sustainable use ofnatura1 resources, including water, land, and forests, and better management of
     the environment. In this context, the implementation ofa long-term national program based on a
     multisectoral approach to water resources management by countries in SSA will improve hwnan
     welfare, ensure more efficient use ofscarce water resources, maintain water quality, and provide
     options for future use.

     2.      The availability ofwater in the region is highly variable because of pronounced differences
     in average annual rainfall, evapotranspiration, and hydrogeology. Some areas of the region, such
     as the Sahelian countries, have a limited supply of freshwater, while other areas, particularly the
    humid tropical zone in Central and West Africa, have abundant water. Even within countries, e.g.,
    in Eastern and Southern Africa, the availability ofwater varies considerably, influenced by
    physical characteristics and seasonal patterns of precipitation. Many areas within the region, most
    recently West and Southern Africa, have experienced recurrent droughts, interspersed with
    destructive flooding. Water stress is DOW becoming more widespread in many localized areas
    throughout the region.

    3.      Water is becoming an increasingly scarce commodity in many areas ofSSA because 'of
    increased population, rapid urbanization, and expanded economic activities. The cost ofexploiting
    new water supplies is also rising sharply, particularly costs associated with recovering
    groundwater and transferring water from rivers and Iakcs to distant places. Inefficient pricing and
    cost recovery measures contribute to over<Xploitation of water resources, excessive consumption
    for low value uses, and financial weaknesses ofwater utilities and public agencies dealing with
    water resources.

    4.       In addition, the competition among various activities-domcstic conswnption, agriculture,
    industry, power supply, livestock, wildlife rcsourccs, and recreation-for use of water has now
    become more intense, requiring better management of this resource, and mechanisms for conflict
    resolution. Hwnan health concerns are widespread bocausc ofa lack of access to safe drinking
    water and inadequate sanitation/sewage collection systems, and pollution of large bodies of water.
    As the region is served by several major dramage basins, management ofwater resources requires
    better coordination at the country level, as well as cooperation at the regional level.

    S.       New modes of thinking about improving water resources management endorse an
    integrated, multisectoral approach in a political economy fIamework, including (a) treating water
    as an economic, social, and environmental good; (b) relying on markets and pricing to detennine
    water allocation among various sectors and user groups; (c) involving local people and the private
    sector in managing water at the lower appropriate levels; and (d) recognizing that water is a finite
    resource that contributes to economic development (including human health) and supports natural
systems. Such new approaches, adjusted to reflect country conditions and capacity, have been
given momentum by the international initiatives at Copenhagen, Dublin, and Rio de Janeiro and are
included in the new World Bank's Policy Paper on Water Resource Management.

6.        The proposed strategy for the water sector will be developed in close cooperation with the
Africans and other multilateral and bilateral agencies involved in the sector. The strategy will
support key development objectives for sustained economic growth, poverty alleviation, food
security, and environmental protection. It will be consistent with the Bank's recent Water
Resources Management Policy which underscores the urgency to implement policy and
institutional changes, build country capacity, involve people and the private sector, and support
quality investments for sustainable use of water resources.

 7.     The subsequent sections of this paper will provide a background on water resources in
 SSA. followed by a brief statement on the scope and objectives of the strategy paper. Against
this backdrop. the paper will focus on the principal problems and issues relating to water use,
conservation. and management. In addition. the paper will outline the methodology that will be
used to (a) determine policy and investment options. and trade-off for strategic interventions by
African countries, individually and collectively; and (b) articulate the role of the World Bank.
drawing from lessons from past and ongoing operations. in assisting African countries. Finally,
the paper will identify the expected output of this exercise, and intended audience.




                                                                                                   2
                                          II.   BACKGROUND


     Topography and Qimate
      8.      The SSA is characterized by a series of undulating plateau slopes, surrounded by narrow
     coastal belts bounded by the Atlas Mountains in the northwest and the Cape ranges in the
\
     southeast. The northwestern portion ofthe region lies mostly below SOO meters in altitude, while
     the southeastern portion averages 1000 meters above sea level. High mountains are found in the
     east (in Sudan, Ethiopia, Kenya, Uganda, and Tanzania) as are the large Jakes ofthe East African
     Rift system.

    9.       Most ofthe African continent lies within the tropics, making rainfall the most important
    differentiating climate element. The region bas high interannual variability of ra.infall, with 30
    percent deviation from normal levels ofprecipitation accruing frequently. The arid and semiarid
    regions show the greatest variability; consequently, average or normal precipitations in these
    regions are insufficient to dctennine water availability. Southeast Africa appears to have a cycle
    of 10 wet years followed by 10 dry years, and the Sahel bas seen a significant decline in ra.infal1
    over the past 30 years, which may be part ofa longer cycle. Droughts, mainly in arid and semiarid
    areas, are a common phenomenon in the region.

    Drainage Basins

    10.      All of the countries in continental SSA share one or more international river basins,
    and there are at least 50 rivers or water bodies that cross or form international boundaries.
    The table below shows the main river basins, including data on catchment area and population.
    The six largest combine to affect 27 SSA countries and Egypt. The challenges associated with
    international water resources are discussed in sections 88 through 95.

    11.     The aVailability of water in the region is highly variable because of significant
    differences in average rainfall, evaporation, and hydrogeology. The mean annual renewable
    water resources in SSA totals about 3.800 billion m3 per year (or 3,800 lan3/year), of which
    about 15 percent is groundwater.




                                                                                                     3
 12.     The table below shows the main river basins by ~b-regions, including data on catchment
 area and population.


   Name of basin          Catchment         Water resources       Population            Predominant
                          (000 km 2)            (km3/yr)          (% of total)           sub-region

LAKE CHAD                  1,900                  74                  2          I The Sahelian Belt
SENEGAL                      340                  34                  1          I
NIGER-BENUE               2,230                 216                  18          1&11 Shared
VOLTA                       390                 396                   3          II West & Central Africa
OGOOUE                      220                 209                    1         II

ZAIRE (CONGO)             3,690                1,520                  9          m The Congolese Basin
AWASH.                      120                    8                   1         m
NILE                      2,850                 118                  14          IV East Africa
LAKE TURKANA                500                   2                   0          IV
JUBA-SHEBELLI               4SO                  24                   2          IV

ZAMBEZI                   1.290                 274                   5          V Southern Africa
LIMPOPO                     400                   7                   4          V
OKAVANGO                    320                  13                   0          V
ORANGESENQU                 800                  20                   2          V
RUVUMA                      ISO                  15                   5          V
CUNENE                      110                  17                   4          V
SAVB (SABlE)                103                   7                   0          V
OTHER BASINS                                    760                  24


 Sub-Regional Characteristics

13.     The countries in the region differ greatly in terms of water availability, climate, and
ecology. In terms of spatial and temporal dimensions. the five sub-regions l shown in the map on
page nine exhibit four cbaracteristics: too much water, too little water, water in the wrong place,
and water at the wrong time. A fifth characteristic has been introduced as a result ofhuman
intervention-contamination. A conunon concern facing these sub-regions is water availability,
accessibility, and quality on a sustainable basis. The discussion below provide a briefdescription
of the main features of each sub-region. The sub-regional division is based on an eco-politica1

        Subregion I: The Sahelian Belt (Burkina Faso, Cape Verde, Chad, The Gambia. Mali, 

        Mauritania, Niger, Senegal) 

        Subregion D: The humid and subbumid zones of West and Central Africa (Benin, Cameroon, 

        Cote d'lvoire, Equatorial Guinea, Gabon, Ghana, Guinea, Guinea Bissau, Liberia, .Nigeria. 

        Sierra Leone, Togo). 

        Subregion m: The Congolese Basin (Central African Republic, Congo, Zaire) 

        Subregion IV: Subbumid East African Highlands (Burundi, Djibouti, Ethiopia, Kenya, 

        Madagascar, Rwanda, Somalia, Sudan, Uganda) 

        Subregion V: Southern Africa (Angola, Botswana, Lesotho, Malawi, Mozambique, Namibia, 

        Republic of South Africa, Swaziland, Tanzania, Zambia, Zimbabwe) 


                                                                                                       4
 grouping of countries, combining natural resource and political bowlCiary considerations. The
 country aggregation could be subject to adjustments during the preparation ofthe strategy
 document to develop the most appropriate grouping ofcountries in terms ofwater resource
 management typologies. The strategic implications of the variability ofwater resources are more
 thoroughly addressed in sections 30 through 35.

  Sub-region I: The Sahelian Belt

  14.     This region is dominated by the resource-constrained countries of the Sahel with limited
 supply of renewable water resources. The region bas experienced below nonnal precipitation for
 two decades, which has led to dramatic changes in the environmental conditions, for example, the
 Lake Chad Basin. The drying up of Lake Cbad, the intrusion of the desert, and the decline of
 aquaculture. livestock. and fisheries, threaten the social and economic well-being ofthe people
 living in the basin countries of Cameroon, Cbad, Niger, and Nigeria.

 15.     Sahel wetlands are characterized by a high primaty production and a diversity ofhabitats
 and natural resources. The inner deltas ofNiger and Benue ofthe Sahel Wetlands are very
 important ecosystems with an extremely high nature ofwildlife values, including millions of
 migratory birds. These areas also play an important role in the rural economy ofthe region.

 Sub-region n: The Humid and Sub-humid Zones of West and Central Africa

 16.     In the humid countries ofWest Africa, the main international river basins are Niger-Benue,
Volta and Ogooue. The Niger and its principal tributary flow through the territory of nine riparian
states, all ofthem members of the Niger Basin Authority. The resources of Niger and its
tributaries have been substantia1Iy developed, and there are new schemes under way. The projects
cover the whole range ofwater uses, such as flood control, hydropower generation, irrigation,
water supply and navigation. The lower Niger and the Benue are navigable, however, commercial
navigation on the Benue is restricted by the very low dry season flows.

 Sub-region m: The Congolese Basin

17.      The Zaire River basin covers an area of4,000,000 Ian2 across the equator. The Zaire
River is the fifth longest in the world at 4,373 bn, but second in terms ofmea.n annual runoff
(41,000 m3/s) and catchment size. The river bas a high discbarge regularity; on an annual basis the
maximum and minimum discharges vary by a factor of only 2. Recently, several proposals have
been made to divert water from the Zaire to the Lake Chad Basin.

 Suh-region IV: The SUh-humid East African Highlands

 18.     Most of the countries in this sub-region are members of the Intergovernmental Authority
on Drought and Development (lGADD). These countries form a complex interlinked hydrological
situation, dominated by the highlands ofEthiopia, Kenya, and Uganda from which a number of
rivers originate. Although the major river system is the Nile, with two sources around the East
African Lakes and Western part of Ethiopia, a number of important rivers , the Sbcbelli, Juba,
Tana and Ge1ena, flow southeast toward the Indian Ocean. The average rainfall in the region is
largely related to latitude and elevation, so that areas of high rainfall are concentrated in the

                                                                                                     s

  Ethiopian highlands and the equatorial regions of Kenya and Uganda. Potential evaporation is high,
. and annual runoff is extremely sensitive to variations in rainfall from site to site and from year to
 year. The sub-region is highly dependent on groundwater resources, which are wInerable to
 periodical long lasting rainfall deficiencies, as in the desert regions, or to seasonal deficits which
 are intensified during drought periods.

  Sub-region V: Southern Africa

 19.      The Southern Africa sub-region, mainly the SADC-countries, has a predominantly arid
and semi-arid climate. This zone is crossed by one major perennial river, the Zambezi, and several
smaller river basins, including Orange Senqu, Ruwma, Cuene and Save. The Okavango River
rises in Angola and enters the unique wetlands ofthe Okavango Swamps. In Southern Africa there
is also the Kalahari desert covering parts of Namibia and Botswana. In Eastern and Southern
Africa, the availability ofwater varies considerably, influenced by seasonal and periodical
variations ofprecipitation.

20.     The Okavango River Basin provides natural resources which are ofsignificant economic
and environmental importance to the people of Angola, Botswana and Namibia, but conflicts
between development and conservation int:eIests are likely to remain and intensify as populations
increase. The ecological and aesthetic value of the Okavango wetlands is immense, and will
become even more unique as the wildlife ofAfrica's wetlands diminishes. The Southern Africa
region was recently stricken by drought, which cspecialIy affected Zimbabwe, Zambia, Malawi,
and Mozambique.




                                                                                                          6
                                             SSA                    - SUBREGIONS 



U   I
        Subregion I
        The Sahellan Belt
                                                  1111
    ;1i);~.~·\okai:~'·'~~'~M~l!.!!.~.ii2~'al!'!·!:2J~;~,~!....--,
    I   Subregion II
        The humid and subhumld
        West and Central Africa


        Subregion III
        The Congolese Basin
             ........
        ....4 ~f             :f"}~T'V"i-"'~~l'L




        Subregion IV
        East African Highlands



        Subregion V
        South Africa
 21.     The average figures, as shown below, provide a broad sub-regional view. However,
 there are significant variations in tenos of space and time at both local and regional levels
 within a country. An assessment of scarcity proposed by Falerunark suggests that, under
 African conditions, scarcity begins to exist when the population as a proportion of renewable
 water resources exceeds 500 persons per million m3 per annum.

           Population Distribution and Renewable Water Resources by Region

                                                               Sub-reeion
                                 Year         I          D           m          IV         V           Total
  Population                    1990         34        175           48        116       112            485
 (million)                      2025         74        378          105        252       242           1050
  Water resources               1990        165       1309         1581        211       495           3761
 (Jan31year) 

  Ratio (people per million     1990       206         134           30        549       226 

 m3tyr)                         2025       445         288           66       1194       489 


 22.     It is important to note that only a small portion of the per capita renewable water resources
is used for consumptive purposes. This is illustrated in the table below which shows the demand by
economic sector. Even with intensive development of the irrigation potential, only a small
proportion of the total renewable water resources is likely to be used. This is the myth ofabundant
water supply in the region: in reality many areas within the region suffer from water scarcity as
water is unevenly distributed throughout the region, and the costs to transfer water is likely to be
prohibitive. As a result, several proposals have recently bec::n made to divert water from the Congo
River to the Lake Chad Basin and to take water from the Zambezi River and divert it southwards
into the Southern Aftica Region.

                     Current and Projected Water Demands (Jan3 per year)

         Sector                       Current         Scenario 1 2025        Scenario 2 2025
 Agriculture                         200                    200                    400
 Urban water supply                    6                     17                      17
 Industrial water supply               3                      6                       6
 Industrial water supply               4                       9                      ·9
 Total consumption                   213                      232                     432
 Total renewable resources          3761                     3761                    3761
 Percent ofsources used              5.7%                     6.2%                    11.5%


23.      Presently, thirteen countries2 in the region are facing water stress (mo~ than 500 persons
per mill m3 per year or less than 2,ooOm31person1year), and it is projected that with current trends
in population, consumption, and economic activities, at least three-fourths ofSSA will be facing
some fonn ofwater scarcity within 30 years. Water stress also occurs often in localized areas,
especially in arid and semi-arid areas, as well as in other countries in the region.


2 Botswana, Burundi, Cape Verde, Comoros, Djibouti, Kenya. Malawi. Mauritius, Niger, Rwanda,
Somalia, South Africa, Sudan.

                                                                                                    8
                      III.   JUSTIFICATION, SCOPE, AND OBJECTIVES 




  24.     As in other regions ofthe world. freshwater resources have sigDificant economic, social,
 and environmental values in SSA. They contribute to economic development and provide valuable
 environmental services. The need for more efficient management of water resources, in tenns of
 availability, accessibility, and quality, calls for countries in the region to tackle water-related issues
 (including policy, technical, institutional, and legal aspects) in the broader context of natural
 resource management and sustainable development. It also ca1Is for the countries to act collectively
 in order to address issues that have transboundary implications given the importance of
 international rivers in the region (over 40 countries ofSSA share at least one river or lake).

 25.     It is desirable for the countries in SSA to work together and develop mechanisms for
 regional cooperation in dealing with water scarcity problems and in promoting better management
of river and lake basins for mutuallong-tenn benefits. Regional cooperation is needed for
addressing critical areas, such as collection and monitoring ofhydrological data, strengthening
river basin organizations, and promotion ofmulti-country investments, research, and training. A
regional strategy will provide the framework for examining these overarcbing issues and resolving
water-related conflicts, as well as give guidelines for countries to develop effective long-term
strategies and programs for improved management of water resources for rura1 and urban areas.
As a resuh ofthis examination of regional experiences and opportuDities,linkages will be made to
regional development programs in SSA.

26.      An important objective of the proposed water strategy for SSA will be to guide the Bank's
 operational staff and provide a framework and guiding principles for countries in the region to
develop gradually a more comprehensive aPProach to water resources development and
management. The Bank has been involved in assistinS countries in SSA to develop their water
resources since 19605, but it needs to place more emphasis on cross-sectoral issues, capacity
building, involvement of local people and the priVate: sector, and correction of distortions resulting
:from market and policy failures. The strategy will also serve as a vehicle for developing a dialogue
and consensus among the countries in SSA, donor agencies, and NGOs to develop a c:ommon
approach to conservation and development of water resources. The proposed strategy will focus
on appropriate approaches at the country and regional levels to achieve more efficient management
of water resources and identify priorities for Bank attention.

27.       The strategy paper will give an overview of water resources in the region, emphasizing the
sub-regional differences in the availability of water. The paper will examine the key issues,
problems, and constraints facing countries in the region. Often. the approach to water resource
utilization and management in the countries is highly fragmented and narrowly focused by sector.
Countries generally Jack the capacity to manage water resources effectively, with clearly defined
roles for the public and private sectors, as well as for local communities.

28.      Moreover, in many countries, water is often under-priced, delivery ofwater-related.
services is poor, policies are weak, regulatory frameworks are inadequate, investment costs are
high, and the data base and information systems are outdated or lacking completely. Traditional
management institutions have not been able to respond to (a) the need for improved water resource
management; (b) competing and shifting water uses; (c) increasing water scarcity; (d) declining
                                                                                                         9
 water quality; (e) operation and maintenance requirements; or (f) water allocation conflicts and
transboundary issues. These iDstitutions frequently rely on centralized interventions, command
and-control, and inconsistent water allocation schemes. Lack ofenforcement of existing rules and
regulation is also a common problem in many countries. In addition to ,analyzing these issues, the
paper will identify major externalities. examine underlying socioeconomic and political factors that
contribute to these problems and propose solutions. The paper will also focus on resettlement
issues resulting from water development programs.

 29.      The strategy paper will discuss how countries can approach management of water
 resources supporting development and conservation aims in keeping with their needs (both rural
 and urban) and priorities. In this context, the paper will examine the policy options and investtnent
 possibilities for countries for sustainable development of water resources. The paper will also
 focus on the difficult tradeoffs between economic growth and conservation considerations relating
to water use and management. Finally. the paper will address bow the Bank can assist countries in
 SSA through lending operations, policy dialogue, and technical assistance to develop and manage
water resources in a way that promotes economic growth and conservation. It will identify the
Bank's comparative advantages by drawing on lessons learned from past and ongoing projects in
water resources sector and define priority areas in which it should be involved in assisting SSA
countries. Finally, to ensure that the strategy paper internalizes African concerns and priorities.
an African Advisory Group has been formed to be actively involved in the preparation of the
final product.




                                                                                                   10
                               IV. KEy PROBLEMS AND ISSUES

 Highly Variable Water Supply and Drought

 30.      Sub-Saharan Africa spans latitudes that include both desert and tropical weather
 conditions. Precipitation over the continent varies from near zero over the Horn of Africa and the
 Namibian desert, to over 1600 mm/yr in the western equatorial region. A large portion ofthe
 continent consists ofsemi-arid zones with 200-800 mm/yr generally concentrated in a single rainy
 season. Average annual rainfall in this semi-arid zone exhibits a large variability as measured by
 the average departures of about 20-30 percent from the long-term annual mean.

 31.      The variable rainfall pattern in many SSA countries affects the entire hydrological cycle,
 e.g., water level in lakes, aquifers, and rivers. This implies complicated managerneDt problems,
 such as optimal water storage capacity, allocation ofwater among competing uses, and long-term
 water planning and conservation.

 32.     In addition to the naturally bighly variable water supply, many countries also face long
 periods ofsevere drought conditions. Droughts might be the resuh of long periods with low or no
precipitation, or, human induced droughts can resuh from, among other things, increased demand
for water or poor management of water and land rcsourccs. Some parts of SSA are prone to severe
droughts, especially the Sahel. Southern and Eastern Africa. The Sahel region has continued to
experience a decline in rainfall for about 25 years. Further, 28 countries in the region experienced
more than two consecutive years of drought during 1974-1985 period {UN, 1986). During the
same period, several countries, including Cape Verde, Mauritania, Senegal. The Gambia,
Guinea-Bissau, Sudan, and Ethiopia have experienced two drought periods-with each period
lasting two or more years.

 33.      Drought-related impacts have serious economic, social and environmental consequences
(e.g., relocations, famine, diseases, land degradation, loss ofvegetation, loss ofwildlife resources
and loss of human lives). Countries also experience serious reduction in agricultural production.
In 1983,22 countries in the region experienced a significant decline in food production because of
droughts. In 1986, about 185 million people living in the African dryland were at risk, with 30
million immediately threatened. In addition, over the past half-century, 65 million ha ofproductive
land have become desert on the southern edge of the Sahara region alone {UN, 1986).' Estimates
of the impact ofthe 1973 drought in Africa include 100,000 deaths in Ethiopia (UN, 1975);" a
drop in the water table levels of aquifers from 2to 15 meters, depending on location; and decreased
flow rates in all rivers in the Sahel {UN, 1975).

34.     Ahhough variable water supplies and droughts are both hard to predict and to prevent, the
adaptation of water resource management to these extreme conditions might ease their impact. It is
obvious that in addition to general drought contingency plans, a comprehensive approach to water


  3
      CounU'ies sU'ilcen by desertification and drought. General Assembly. Economic and Social Council. June 9.
      1986.
  4
      Drought in Africa. A report by che United Nations Development Program 197.5.

                                                                                                            11
 resource management may help mitigate the negative~. A coordinated plan should involve all
 stakeholders, include all affected sectors, and encompasS all different water supply sources.

 35.     Important considerations in assessing \\-ater variability and drought-related issues are:

 ·  how to incorporate highly variable water supply and droughts in the design ofwater projects~

 ·  how to determine the most appropriate planning level to incorporate water variability/drought
    considerations in water resource management programs and in the allocation of water for
    different uses;

 ·  how to identify locations prone to desertification and to evaluate measures for preventing and
    reducing the impact ofdrought conditions;

 ·  how to design water pricing policies under drought conditions;

·  how to integrate land and water resource management so as to minimize loss and 

   contamination ofwater resources due to inappropriate land use practices; 


·  how to identify a strategy for using surface and groundwater to deal with water scarcity 

   problems during short- and long-tc1Dl variable supply cycles, including droughts; 


·  how to include environmental considerations in short- and long-tenn drought planning;

·  how to tie efforts of the drought-affected countries into a comprehensive plan for joint water
   resources use in drought-affected regions;

·  how to promote agricultural development strategies that are more suitable for variable water
   supply and drought conditions.

Health and Environment Problems

Health

36.      The World liealth Organization estimated in 1990, that SSA bad more people without
access to safe water than any other demographic region (52 percent versus 40 percent for the next
highest region), Approximately 62 percent of the population did not have access to sanitation
services, a statistic second only to India (wbere 84 percent lack adequate sanitation).

37.      Health hazards arise from contamination ofwater used. for bathing, washing, and drinking;
lack of facilities for excreta disposal; and, wbere present, poorly designed or maintained sewerage
systems. Inadequate sanitation is not only a major cause ofmorbidity and mortality through water
related diseases, but it is one of the most important factors in degradation of surface and
groWldwater supplies. Preventing other water-related diseases such as Malaria, schistosomiasis, as
well as river blindness also present challenges to water managers.



                                                                                                     12
 38.      A report by the Environment Division oftbe Africa Region assessed the major
 enviroDlIlClital problems in most countries comprising SSA.s Of these countries, 35 (80 percent)
 reported at least one major environmental problem pertaining to either safe water, scarce water,
 sanitation, pollution, and/or water environmental issues. However, regions in SSA where health
 problems related to water are most critical have not been evaluated in a comprehensive way so that
 this information can be used in project planning and design.

 39.      Water quality degradation is a growing issue in SSA as more monitoring reveals the extent
 of the problem, population continues to grow, and both new and reopened industrial facilities
 continue to pollute. Water quality is especially poor in urban areas (at least 60 cities in SSA have
 over 250,000 inhabitants) where industry is concentrated and human sewage is inadequately
 collected and treated. Water is simply unsuitable for most uses in many cities, and it constitutes a
 health hazard for drinking, bathing and food preparation. While there is a need to focus on simple
 but effective sanitation facilities and educating people on the relationship between sanitation and
 health, there is also an wgc:nt need to provide sewage collection and proper treatment in cities for
 health and pollution conccms. Industrial pollution continues unabated in many nations with
 virtually no effective treatment and little atteDtion to pollution prevention.

40.      In addition, poor land use practices in agriculture, forestry and mining and runoff of
agricultural chemicals result in "non-point source" water pollution that is more diflicult to control
than discrete "point" sources from industries or sewage, where identifying polluters and
determining liability is generally easier. In Nigeria. for example, pollutants from irrigated
agriculture result in degradation of fishery communities that they depend On to feed their families.
In Mozambique, salinization ofsoil caused by irrigation projects in Gaza and Mapato provinces
causes on-site productivity losses as well as off-site pollutant loads. Erosion from poor
agricultural practices causes environmental degradation from sedimentation as well as filling
important hydroelectric impoundments like those on the Tana River in Kenya.

41.      Many SSA countries do not have enforceable legislation, water quality standards, or water
pollution control programs for effectively achieving abatement of point and non point sources of
pollution. Water quality sampling UDits and Jaboratories are under-funded and limited by poor
equipment and lack oftraining. Some countries (such as Liberia, Sierra Leone and Sudan) have
inadequate or nonexistent environmental policies mandating water pollution prevention, pollution
control, and enviroiunental assessment rcqujrements for new industries. How to design, fund, and
foster these needed policy reforms and institutions will be a focus ofthis strategy.

42.      Because the costs of implementing water pollution prevention and control can be
substantial, another issue is how to balance the high potential costs ofreducing health hazards with
what is realistically achievable for SSA Other priority issues to be considered as part of the
strategy include: how to focus Bank and country atteDtion on proper sanitation/sewage treatment
in infonnal settlements of large cities; how to use health information to target sanitation projects;




  5   ·Country Capacity to Conduct Environmental Assessments in Sub-Saharan Africa.· Environmental
      A.sscssmcnt Working Paper No.1. World Bank. Africa Region, 1991.

                                                                                                    13
 how to incorporate erosion control and agricultural pollution control into the Bank's agricultural.
 sector work and target it where needed for water resources management reasons; and how to
 apportion more support and technical assistance for addressing these concerns.

  Environment
 43.      Much ofthe development that has occurred over the last 30-40 years in SSA has been 

 accomplished without adequately addressing environmental concerns. This has resulted in 

 significant environmental damage which in tum has adversely affected the poor. In fact, water

 related environmental issues have been identified as an important priority, along with 

 sanitation/pollution, in a recent SSA survey. 


 44.    The highly variable water discharges necessitate the construction of dams and storage
reservoirs to regulate the seasonal and periodical discharge variations. SSA presently has the
smallest number of dams and the lowest storage capacity. Still, while many of the large water
projects responsible for the adverse impacts have been essential. to provide water and power for
development, the environmental and social impacts have yet to be mitigated. Some of the projects
have increased diseases, degraded wetlands, impaired riverine fisheries, impoverished resettlement
neologism and pastoralists, and disrupted coastal zone fisheries important for providing income
and protein to the poor. It should be noted, however, that storage reservoirs are necessary not only
for hydropower production, but also for reliable water supply for domestic uses and irrigation
schemes. An important consideration is how to ba'ance the negative environmental impacts against
development needs.

45.      During the wet season, rivers such as the Zambezi and Niger used to flood riverine
wetlands providing for tIaditional recession, agriculture, favorable conditions for fish breeding, and
recharge ofgroundwater. With dam construction in the midst of tangible benefits, there are a
number of environmental consequences: for instance, to some extent wildlife have been impacted;
fishing has been reduced; water wells have dried up; and diseases have increased substantially.
Even the coastal zone has become impaired with salt water intrusion up the river because of
reduced flows. FJoodplain agric:ulturc is no longer profitable, and poor fishcnnen have lost incOme
and protein from reduced fisheries. Wetland and coastal zone ecosystems are some of the most
valuable natural aspects ofSSA and their value in support ofsustaining the poor should be
recognized. Controlled "artificial" floods caD be created at dams to mitigate such environmental
concerns. This has occurred in the Senegal River Valley and is seen as a huge benefit by officials
and the pUblic.

46.      In addition to the proper amount, quality, and timing of water, aquatic life require suitable
habitat for survival and management measures to pTCMmt over-harvesting. Accelerated soil erosion
results in sedimentation that k:iIls fish food organisms and reduces fish habitat. Coastal zones and
their estuaries provide essential habitat in need of proper planning processes to achieve sustainable
use. But proper management of coastal zones in SSA is often inadequate. Institutions to prevent
over-harvesting of fish are often inadequate (where they exist) in SSA. How to facilitate coastal
zone management planning and establishment of fish harvesting limitation represent key water
resources ISsues.



                                                                                                       14
 47.      Water scarcity bas become a key impediment to development in SSA. The challenge in
 meeting funJre demands then involves avoiding the creation of new adverse impacts from future
 and currently planned projects as well as correcting, rehabilitating, and retrofitting old projects
 which are impairing the environment and the lives of the poor. How to ensure that these existing
 environmental and social impacts receive priority attention in Bank policy dialogue with countries
 will be addressed.

 48.      Rehabilitation, retrofitting of water projects, and changes in operation may yield vast 

 environmental. agricultural and social benefits. How to conduct needed capacity building for 

 coastal zone management and establishment ofinstitutions for preventing overfishing and 

 destructive harvesting techniques will also receive attention. How to raise awareness to build 

 capacity to analyze these problems. and to devote priority for funding will be included in this 

 strategy development process. Also to be considered is how .cnvironmenta1 issues affect or are 

 affected by implementing a policy where water is treated as an economiclsocialgood. where 

 decentralized demand management is used, where stakeholder participation is encouraged, and 

 where a comprehensive approach is required for water resources management. 


  Management Institutions, Mechanisms, and Capacity

 Fragmented Water Resources Management

49.      Water resources problems in SSA are not usually addressed in a coherent, comprehensive
manner. Within any one country, (e.g., Tanzania, Zimbabwe, COte d'Ivoire, Ghana, Malawi) water
uses by different sectors, such as agriculture, industry, and municipal. are managed by separate
agencies. Functionally related issues are often bandIed by pa.rallel. overlapping administrative
structures. Moreover, issues of water quality and quantity are considered separately as are
groundwater and surface water. As a result, decision-making is most often fragmented,
uncoordinated, and short-sighted. Often, environmental quality considerations are ignored as
sectoral agencies plan for their single purpose use of water resources. The sectoral and
department/divisional structure of the Bank further compounds this problem.

SO.      Fmgmentation also occurs as a result of the actiOns of different administrative units of
government witlUn a country. Domestic, industrial. and conunercial supplies often are provided by
local government units. which are not coordinated with provincial or national water departments.
This detacbmcnt maY lead to situations in which di1fereot agencies are developing the same water
source for different uses. These problems are also compounded by external support agencies that
have in the past by-passed relevant ministry officials to deal with political officials in a certain
region of a country for which they have interest. The lade: of involvancnt of ministry officials and
users in planning bas resulted in inappropriate projects, imported materials and equipment which
are not locally serviceable, and water conflicts.

51.      While river basins are the natural unit for water management, the importance of such a
holistic or comprehensive approach is only now being widely recognized as the conflicts over
resource allocation increase. These conflicts concern not only the quality of resources but also the
timing oftheir availability and their quality as diffeJCDt sectors attempt to meet growing needs.
Insufficient attention is being paid to managing water resources for multiple uses (including
environmental protection) witlUn river basin frameworks in SSA. With its many large international

                                                                                                      15
  river basins, regional organizations have been created but IJ'WlY have either too narrow or too
  broad mandates. The success ofthese organizations in promoting regional cooperation has been
  mixed and environmental/social considerations have frequently been neglected.

  52.     Through the utilization ofa comprehensive multi-sectoral approach, processes can be 

  conducted to integrate disparate interests, sectoral uses, and other demands in focusing on 

  improved management ofwater resources. 


 53.     There are a number of institutional issues that need further consideration:

 ·  how to integrate disparate private and public interests, sectoral uses, ministries, and levels of
    government to improve water resources management;

 ·  how to develop rational and coherent legislative, regulatory, and enforcement institutions that
    can balance command/control and economic incentives for both demand and supply
    management as well as environmental protection;

 ·  how to provide a range of support mechanisms to facilitate and assist preparation of country
    water resources assessments and water resources management strategies that adopt a
    comprehensive, ecosystem-based approach;

 ·  how to design processes for determining roles and functions of different levels of the public 

    sector and the private sector in basin water management; 


 ·  how to establish, develop, and strengthen (semi-) autonomous bodies to carry out decentralized
    functions delegated to them by government; and ·

·  how to incorporate eross-sectoral water resources management elements into the Bank's policy
   dialogue with borrowers;

·  how the Bank should facilitate cross-ministerial, cross sectoral, and donor coordination.

 Limited Water Resource Mtmllgement Capadty

54.       While there have been improvements in rccc:nt years, countries in SSA generally lack the
institutional capacity necessary for long-term, comprehensive, and sustainable water resources
management. This holds for the public and private sector at all levels: ministerial departments,
local governments, basin-wide, district, and community organi7JItions, as well as for educational
and research systems. For example, many countries lack the people, funds, equipment. facilities,
and monitoring and information systems necessary for resource management. At the policy level,
few countries have adequate national water policy statements, national water plans which are
integrated with national economic policies, water legislation and coordination mechanisms, and
cost recovery measures.

SS.     The capacity-building implications are considerable. The capacity of both existing
organizations and the institutional setting-the enabling environment that defines the
responsibilities of organizations and their interrelationships-must be addressed.

                                                                                                      16
  56.     With respect to organizations, while countries in SSA have different organizational
 arrangements in place for water resources management, they nevertheless share common capacity
 building challenges. On one hand, a widespread challenge arises largely because of the generally
 weak and overextended managerial capacity ofcentral governments, namely, how to decentralize
 management structures so that water is managed at the lowest appropriate levels, especially for the
 delivery of water services. An integrated and holistic WRM approach could, on the other hand
 encourage a strengthened central regulatory capacity. The strategy paper will address the potential
 conflict between the need for a centralized bureaucracy and the principles of management at the
 lowest appropriate level through dece:ntralization and involvement ofmajor stakeholders.

57.       Related issues include how to define the "appropriate" lowest level for different water
resources management problems; how to define the roles and responsibilities ofnational, regional,
district, and community organizations, as well as the public and private sectors; how to build the
capacity of each level for the tasks it is being asked to assume; and how to balance decentralization
with the need for integrated, cross-sectoral management approaches. Other common challenges
include how to allocate scarce management resources among different managerial units, and how to
best utilize the many existing organizations without creating new ones.

58.      Despite progress in SSA in recent years, the institutional setting-in tenus of statutory,
legal, regulatory, cnforcernent, financial management and administrative frameworks-remains
largely inadequate. Key issues concem how to design, evaluate, and implement these frameworks.
Related issues include how to: develop incentives that are consistent with. treating water as an
economic, social, and environmental good; develop effective systems ofaccountability; and resolve
conflicts over resource allocations. Ofparticular importance for SSA are the institutional barriers
that undermine the vibrant infonnal sector. The infonnal sector, which lacks official recognition
and support. is actively involved in and relied upon for the provision of water supply and waste
disposal services.

 59.     St:rengthening the capacity ofinstitutions is, in large part, enhancing the capacity ofthe
people who run them. Education and skills devdopmcnt-especially in the areas of science and
technology, policy fonnu1ation and analysis, and other disciplines necessary for managing complex .
water systems-are generally weak in the region. The nwnber of technical specialists also remains
small because ofunattractive salaries and poor can:er prospects. The development oftcchnical
expertise has been further compromised by SSA's over·reliance on external technical assistance,
which has not given sufficient attention to either devdoping indigenous capabilities or adapting to
the constraints imposed by local circumstances.

60.     Although high quality research is camed out at some centers in the region, national
research systems have not been too effective. Issues relate to the extent to which R&D should
emphasize application, relevance, and priority areas; how to reduce the isolation of researchers;
and how to foster cooperation.      - - -.

61.     Of crucial significance for building managerial capacity in SSA is the availability of
hydrogeologic and hydrometeorologic information. Adequate and reliable information is essential
for making sound water resources management decisions. Some countries do have advanced data
management systems, and there are some notable regional (donor~ored) hydrometric
programs. But in general, there is an immediate need to improve virtually all aspects of water
resources assessment in SSA.
                                                                                               17
 62.       For example, data collection networks are widely deficient and/or deteriorating; there is a
 general lack ofequipment and laboratories; and data are often either inadequate or nonexistent.
 Inadequate funding, organizational and administrative problems, and political instabilities are
 common constraints that seriously undennine the ability ofhydrometric agencies to function (lBRD
 ct. al, 1992). Issues relate to identifying and mobilizing the human, financial, and technical
 resources necessary to create information systems that are sustainable and adequate for addressing
 decision-making priorities. Discrepancies in the level of sophistication among different SSA
 countries has many ramifications, including for international water resources management.

  Underpricing, Inefficiency, and Allocation Problems

 63.      For optimum allocation, the price ofwater should reflect its scarcity value. This implies
 that the price should be set to reflect the opportunity cost ofproviding it. Appropriate pricing
 schemes may reduce the need to administer detailed allocation ofwater to different users. However,
 pricing to induce efficient use requires the ability to monitor use on a volumetric basis.

64.      The use ofproper prices induces an allocation of water to its best use, as well as provide
incentives for efficient use within the user sub-sector. Often, opportunity cost pricing is politically
unachievable in the short term, or difficuh to calculate and enforce. In this case, a second best
approach is a price scheme that will recover the operation and maintenance costs as well as a
significant portion of the investment cost of the project over its life span.

65.      Agriculture consumes on the average about 90 perccDt of the available water in SSA
countries. Therefore, appropriate pricing schemes for agricultural water projects may result in
substantial water savings and improved allocation efficiencies. However, physical and institutional
setups of the agricultural producers make it difficuh to collect the water fees from individual users.
A possible implication ofunderpricing ofagricultural water may be the misallocation ofwater
between relatively low value agricultural uses compared to relatively higher value of urban and
industrial uses.

66.      Not much information is provided about pricing and cost recovery of agricultural water
projects in SSA. The situation in SSA countries is probably similar to other developing countries.
Cost recovery was examined in 106 projects ofthe 208 evaluated projects by OED, and was found
unsatisfilctory in 68 percent of these projects.

67.     Review of cost recovery in urban and sanitation projects funded by the World Bank. does
not provide specific statistics for SSA countries. Of the 129 urban supply and sanitation projects
evaluated in countries around the world (World Bank, 1992), only 12 countries were in full
compliance with the cost recovery criteria. For example, Botswana used water pricing to control
demand, promote efficiency in the use of water, and enhance conservation.

68.      If the price of water does not reflect its true value, it may result in o\ter-use and
misallocation of the water resource. However, when poverty alleviation considerations are taken
into account, pricing issues become more complex because the demand for water to meet human
needs is quite inelastic at low levels. This can imply a heavy burden on the poor. A solution
adopted by many countries, for domestic and industrial users ofwater, is a progressive, tiered
pricing scheme with increased prices for increasing water consumption.
                                                                                                     18
  69.      However, in many SSA countries, often one jo~ water meter is used per apa.rt.rnent
  building that is occupied by many poor families. This may increase the average per family
  spending on water to the highest price step. Therefore, poor households may spend a substantial
  portion of their income on water. For example, the tiered price structure in the Botswana Water
  Utility Corporation (a project funded by the World Bank) may lead an average poor family to pay
  more than 8 percent of its income for water.

  70.      An implication of water underpricing in SSA urban water utility projects is the chronic
  financial deficit that leads to management problems and frequent cuts in services penalizing mainly
  the poor. As a result, poor households in urban an:as may be forced to use polluted sources of
  water, or are obliged to acquire water from expensive vendors. This causes increased health
  problems, and expenditure ofan even higher ratio of the income for water.

 71.      Water supply to the rural an:as in SSA is a worse situation. Fewer residents of rural areas
 benefit from public water and sanitation utilities. Because water sources are often far, the time
 cost required to fetch water is high. In addition, water supply in rural an:as is often provided from
 open streams. The sanitation level of such supply sources is very poor. The rural population thus
 may face substantially higher health risks compared to the urban population.

 72.        Underpricing and cost rccovety issues which merit further consideration include:

 ·  how governments should apply more efficient water pricing;

 ·  how locations and aggregations of water supply utilities, via economies of scale and lower 

    conveyance cost, may affect costs and tariffs and allow a lower per unit price for water; 


 ·  how pricing ofwater may improve environmental sustainability of water resources (e.g., the 

    introduction of the "polluter pays" principle); 


 ·  how di1ierent pricing schemes may signal the opportuDity cost ofwater, provide for cost
    recoveIY, promote conservation, and allow afFordable water supplies to the poorest segments of
       society.

Lack ojStakeholder Participation

 73.      The participation of all stakeholders-of all parties who affect or are affected by water
use-is an essential ingredient for successfUl water resources management in SSA. Through
participation, parties have the opportunity to influence, and develop a sense of involvement in, the
policies, projects, and operations that affect their daily lives. For example, participation allows
users to reveal their needs and demands, thus improving the cJumces for system responsiveness. It
is a vehicle for mobilizing "community savings" (i.e., through fees and labor), which helps to
ensure the financial viability of enteIprises and empower users to demand improved services. It
also fosters responsibility, self-reliance, and conunitment by ma.king users accountable for
efficient, cost-effective, and equitable management practices.

74.     A highly participatory approach to water resources management would be consistent with
SSA's rich social and cultural traditions of community and group 'Welfare, sharing among people,
grassroots initiatives, and group actions. But there have been few government efforts to elicit
                                                                                                   19
     community participation in the water sector. Without effective participation, project results tend to
     be disappointing: water supply services operate inefficiently; water supply' facilities fall into
     disrepair; and projects cannot muster financial support. The lack of participation is cited as one
     important reason why the objectives of the International Water Decade have not been met in SSA,
     especially in rural areas.

    75.      By contrast, the positive benefits of involving local populations in the design, construction,
    operation, and maintenance of water supply projects (notably, rural water supplies in most SSA
    countries) are already evident. When communities have actively participated in project
    implementation and management, projects have been financially sustainable-aIl the more striking
    given that revenue collection in SSA is "notoriously poor". For example, the provision of reliable,
    safe, and accessible drinking water to one million people under the Malawi Rural Piped Water
    Program is Jargely attributed to the program's strong community-participation component.

     76.      The need for increasing user participation in the delivery of services is now widely
    accepted. But stakeholder participation also is important for overall water resource management.
    Ensuring that all stakeholder interests are well-represented in water resource management decisions
    is likely to encounter special difficulties in SSA because of the preponderance of Jarge numbers of
    very small-scale and informal stakeholders, the wide variety of "stakes,II and the often competing
    traditional resource management systems of stakeholders. Key issues include: identifying the
    different stakeholder groups, defining the appropriate roles for different stakeholders in the
    management process, evaluating the effectiveness with which stakeholders can perform their
    functions, assessing the impacts ofalternative water policies on different stakeholder groups, and
    promoting a conservation approach to water utilization among various stakeholders.

    77.      In general, participation will be enhanced to the extent that decision-making is,.
    decentralized to the lowest appropriate level, namely, to the level of stakeholder interests. Of
    course, some governmental responsibilities (e.g., utility regulation, arrange financing/planning for
    Jarge investments environmental protection, and pollution control) would require government
   intervention. Key issues involve how to define the role ofthe government and balance
   responsibilities among the public and private sectors and communities. Rdated issues include how
   to develop consensus and devolve responsibilities fiom powerful government institutions to the
   private sector and community; how to coordinate governmental, private, and local efforts; and how
   to build capacity at all levels (e.g., in village and ward associations at the grassroots level, local
   NGOs and cooperative unions at the intermediate level, and chambers of commerce, industry and
   trade associations, umbrella NGOs, and professional associations at the country-wide level).

   78.      Special attention needs to be given to the role ofwomen. The involvc:rnent ofwomen in
   local management decisions in SSA has been minimal although womcn-who are the main
   collectors of water and producers of food-are the ones most a£fccted ,by poor access to water.
,- While some donors do require the participation ofwomen in water supply projects, women's
   participation is not similarly.required in resource management.

   79.      The success ofparticipatory approaches depends, in large part, on an informed and aware
   population. Stakeholders must understand their stake and that their interests are best served by
   participation. In general, water will be better managed to the extent stakeholders understand the
   interactions between local activities and basin·wide impacts and how improvements in water
   management will benefit relatcd areas of concern including health and nutrition.
                                                                                                        20
 80.      The resolution ofwater resource-related conflicts, which are becoming more prevalent in
 SSA, will also be facilitated by stakeholder participation. Such conflicts involve not only
 competing water claims but also conflicts arising from the interactions between water and land.
 Issues involve the identification and characterization of stakeholder conflicts as well as
 mechanisms for conflict resolution (e.g., economic,legal, negotiations).

 81.      As stakeholders in SSA countries become increasingly involved in many areas oftheir
 lives, water resourceswill compete against other areas (e.g., education, food) for their attention and
 priority. Pragmatically, mechanisms for participation must recognize the constraints facing
 stakeholders and the difficult tradeoffs they may have to make.

 Data, Information, and Knowledge

 82.     Data and information (Physical. technical, socioeconomic, etc.) relating to water 

 resources in tenns of quantity, quality, accessibility, and use are generally inadequate 

throughout the region. Countries have established data and information systems relating to 

climate, rainfall, hydrology, and soil, but in most cases these systems need further 

improvements through bener technology, trained human resources, and strengthened capacity. 

Through the SSA Hydrological Assessment (SSAHA) Program. supported by UNDP, more 

than 30 countries have completed hydrological assessments. This assessment shows that 

hydrological services are weak in the region. Reliable hydrological, water quality, soil 

characteristics, and socioeconomic data are necessary to the development of comprehensive 

water resources management plans for the country as a whole, as well is for river basins. 

Local capacity needs to be developed for continuous updating of pertinent data for planning 

and monitoring. 


83.      Even though pollution from urban sewage, industry and farming is less compared to
many other parts of the world, there are numerous water quality problems associated with
African waters, which limit their use for drinking and other uses. These water quality
problems are further compounded by a lack of public awareness of water quality, even at the
most basic level of faecal contamination, and the fact that government concern over water
quality tends to be restricted to water quality laws which are usually not enforced.

84.      Surface and ground water quality networks are not well developed in SSA due to
budgetary constraints, lack of analytical equipment, logistical limitations, as well as a lack of
appreciation of the importance of water monitoring. Some ad hoc investigations of raw water
quality is being carried out in connection with planning of new water supply and irrigation
projects, and some monitoring of treated water is undertaken by water utilities. Some of this
material has been revealed during the ongoing CESPINEAP activities. Another source of water
quality data is the GEMSIWATER Program.

85.    Monitoring of water quality for inland water resources should be closely linked to
hydrological services, and recorded with reference to a river flow or water level in an aquifer.
Furthermore, there is a need to monitor water quality and quantity at the pollution sources




                                                                                                   21
 from major polluters-not only the piped discharges, bu~ also from the diffuse sources, such as
 agriculture and forestry. The challenge for the future is to reconsider how water quality data
 are to be collected and used, and take advantage of new developments within monitoring and
 information technology.

 86.      The strategy paper will emphasize the need for a comprehensive data base relating to
 (a) water availability, hydrology. and water quality; and (b) river basins. watersheds, and
 drainage areas. The water resource management strategy process will benefit from the Bank's
 involvement in the Hydrological Assessment Program, concerning the hydrological aspects of
 the strategy. In addition, the strategy paper will consider the relationship of comprehensive
 data bases to other existing programs, such as the Program on Envirorunent Information
 Systems in Sub-Saharan Africa (EIS), and the Global Envirorunent Monitoring System on
 Water. GEMS-WATER, and the National Envirorunental Action Plans (NEAPs).

 87.      African countries .will need to improve existing knowledge relating to management of
 water resources including protection of water ecosystems, the interaction of humans with
 Water systems, the inter-relationships among water, land, and forest variables in a natural
 resource management framework, multisectoral considerations in water utilization, and
 international characteristics of river basins and implications for management. The strategy
 paper will explore the potential for regional cooperation in improving data, information, and
 knowledge relating to water availability, utilization, and management.

Problems Associated with International Water Resources

88.      In SSA. international river basins constitute the principal source ofwater resources.'
About one-third (17) of the world's international river basins is found in SSA. Thirty-five countries
in the region share the 17 major river basins. Furthermore, international rivers also include 11
river basins between 30.000 and 100,000 sq km and 40 below 30,000 sq km.

89.      There are a number of important c:onsiderations associated with these international rivers
that have implications for long-tenn management of water resourcc:s. First, the concc:nt:ration of
recharge is restricted to limited mountainous areas (such as the Ethiopian Highlands, the Cameroon
moun1ains in West Africa., etc.) which experience seasonal and annual variation in rainfall. This
implies that countries located upstream could influence the availability ofwater to downstream
countries which often have a dry cJimatc. Second, because of variable rainfall and climatic
conditions, the seasonal and annual flows in the river systems are subject to wide variations, thus
requiring efficient planning and management of water resources. Third, the main rivers and
tributaries that have regular annual flows are widely spaced over a large area. This situation
constrains the use of water resources for domestic, agricultural and industrial activities because of
long distances in transferring water.

90.      Presently, there is mounting evidence that uncoordinated exploitation of international
waters has caused significant detrimental environmental, agricultural, and social consequences for
the entire basin. For example, until recent years development bas focused largely on hydroelectric

  6.  International River· refers 10 a river system that is shared by 2 or more countries. Typically. however. Iile
      major river basins in SSA are shared by five or more countries.

                                                                                                                22
 power and irrigation. The 1arger hydropower and irrigatiop projects have degraded environmental
 quality and caused adverse impacts, such as fisheries impairment downstream of dams. As noted
 in Section B, flood plain irrigation is a key element for fisheries production and sufficient flows are
 needed to keep delta and estuary areas functioning properly.

 91.       The development ofinternational waters nevertheless offers valuable opportunities for
 meeting the region's water needs. There are many areas of mutual interest where the collaboration
 between countries in water basin management can yield benefits that are not attainable through
 individual country efforts. For example, regional organizations can provide the economies of scale
 needed for development of Jarge-scale projects (such as multiuse reservoirs), conducting priority
 research and development, collecting and disseminating data, conducting specialized training, and
 facilitating professional and muhidiscipIinary networking.

 92.     As demand for water increases in SSA, pressure on international basins and their aquatic
 ecosystems will escalate and greater conflicts will develop among countries. How to share
 decision-making in these basins will be a priority issue to be addressed. In addition, if economic
development is to proceed in Africa, the joint use of international waters offers valuable
opportunities for meeting the region's water needs. There are many areas ofmutual interest where
the collaboration between countries in water basin management can yield benefits that are not
attainable through individual country efforts. Managing water in multiple jurisdictions presents
many challcogcs. While there has been some development of integrated drainage basin
organizations in SSA, recent reviews have identified numerous weaknesses in their operation and a
wide variation in their perfonnance. For example, the least effective groups cited in a recent
review of SSA river basin organizations were the ones that bad very broad objectives
encompassing several sectors.

93.      Fulfilling broad, complex mandates is often beyond the competence of any organization to
perform, even with adequate financial support. River basin organizations that concentrated on
specific construction showed more progress. How to incorporate public and stakeholder
participation in management of international river basins and how to rationalize. consolidate, and
reform existing regional organizations for improving water resources management to sustain
multiple uses are key issues to be addressed in this strategy.

94.     Because the watersheds do not follow political boundaries, these issues spill over into
North Africa as evidenced by the Nile's contribution to Egypt In this case. the issues transcend
SSA boundaries and will be addressed in this strategy development process. Of paramount
concern is focusing basin organizations and nations on improving collection of hydrologic and
environmental information. With declining funding sources, monitoring strategies should focus on
key parameters and on harmonizing monitoring protocols across administrative borders.

95.      Other priority issues to be addressed include: treatment ofenvironmental conditions in
international basins with measures for mitigating existing adverse environmental and social
impacts on the poor; definition of the roles and functions ofdifferent management levels (e.g.,
local, basin-wide, national) in specific internationally-shared waters; adequacy ofuseful data for




                                                                                                     23
international waters; guidance and framework for negotiating, implementing, and enforcing
international agreements on water resource allocation, water rights; and perfonnance of river basin
organizations and joint institutions in addressing the various cross-boundary water use and
management considerations.




                                                                                               24
                  v.   METHODOLOGY, EXPECTED OUTPUT, AND INTENDED
                                     AUDIENCE


       Methodology


      96.       Economic rationale (market as alloca.ti.ve mechanism, efficiency, incentives) will provide
      the underpinning for assessing how water resources can be allocated efficiently to maximize net
      social benefits. This approach will, however, be broadened to take into account other important
      ecological, ethical, and sociopolitical considerations. This framework will treat water not only as
      an economic good but also as a social and environmental good. Within the context ofthis
      framework, the key policy, institutional, and technical issues relating to water resource
      maiJagcment will be evaluated. In addition, this framework will provide the basis for examining
      intcr..generational, and transboundary issues.
·

      91.      The Bank's new Water Resources Management Policy will provide the guiding principles
      to develop and assess solutions to address important water-related issues. The key guiding
      principles include the following elements:

      ·  A comprehensive, more ecosyst.cm-based approach recognizing multisectoral needs should be
         adopted for improving water management, incorporating the interdependencies between water
         and land use;

     ·  Methods for managing water should be integrated and multisectoral, recognizing that there are
        roles for the market as well as for the public sector;

     ·  Water resources should be treated as a scarce national resource, as well as an economic and 

        social good, with participatory and demand~VCIl management; 


     ·  Responsibilities for water management should be dcceotralized to the lowest level, ensuring 

        that the interests of all stakeholders are recognized; 


     ·  Management of international waterways require national actions and regional cooperation.


     CoUaborative approach

     98.     The intended audience will be diverse, including Bank operational ~ governments, key
     agencies deafing with water resources, NEAP, and development planning and programming, donor
     agencies, special interest groups from the private sector, local communities, and academia. The
     proposed water strategy paper will be a product of collaborative efforts involving the Africa region
     and the Center and external expertise. ESD is providing support from its three
     departments-agriculture, infrastructure, and enviromnent.

     99.     Inputs from the Country Department staffwill be critical to addressing specific issues at
     the country level, including collaborative arrangements for dealing with multinational river basins.

                                                                                                         25
 The Africa Region's Water Thematic Team, the Steering. Committee, and the Technical Advisory
 Group will provide valuable input and guidance to the preparation ofthe strategy paper (see Annex
  I). Important contacts have already been made with, key agencies-such as UNEP, FAO, UNDP,
 AIDB, UNESCO, WMO, ODA, NORAD, SIDA, CIRAD, USAID, to develop a partnership in
 this strategy exercise. A number ofthese agencies have agreed to prepare position papers as inputs
 to the strategy document.

 Fact Finding Mission

 100. To promote collaboration, a tact finding mission was undertaken in June 1994. The
 objectives of the mission was to initiate dialogue with key agencies (African and external) engaged
 in the water sector and to become more familiar with other institutions' work and activities in the
 sector. The mission also established a common ground for further cooperation in this field. The
 institutions visited were FAO in Rome, AIDB in Abidjan, UNEP in Nairobi, and several other
 national and international organizations.

 Background Studies and Position Papers
 101. Numerous studies have been conducted on water-related topics in SSA by both Bank and
external agencies and some initiatives are still in progress. These studies will be used as reference
documents for the strategy paper. There are lessons to be learned from the past experiences of
external agencies that have addressed water rcsoun:cs problems in SSA (in tenns of approaches to
water resource management. capacity building. best practices, implementation results, and
sustainability of development programs). To this end, a brief analysis of past and ongoing Bank
financed water-related projects dealing with SSA will be undertaken to derive key lessons learned,
including results in the field. The strategy paper will also rely on three studies completed under the
direction of the Regional Water Thematic Team: (a) International River Organizations in SSA; (b)
Review of Water Resources Issues in SSA; and (c) Hydrological Assessments.

102. In addition to the directions that will be given by the African Advisory Group, the draft
strategy document will be based on additional position papers from external institutions and from
Bank staff (Annex 2). The positions papers, which are due by the end of December 1994, will give
various perspectives on water resources ma.nagcmcnt, highlight critical concerns, such as capacity
building, stakehol~ involvement, gender issues, health and environment, and policy issues.

Technical Workshops

103. Before the strategy document is finalized, there will be two technical workshops in Africa
to discuss the draft strategy document, including the background papers. The workshops will
provide a forum for developing consensus by engaging the Africans, donor agencies, and NOOs in
constructive dialogue. The workshops, supported by the donor agencies, will attract participants
representing diverse agencies and groups involved in water-related activities to develop a conunon
approach, and agreed actions to promote more efficient management of water resources. The final
draft strategy paper will incorporate the consensus developed at the workshops. Proceedings will
be prepared for each of the workshops and disseminated to the participants and concerned
agencies.


                                                                                                   26
  Expected Output
  104. The final output will be a strategy document: "An Integrated Approach to Water resources
  Management: A Strategy for Sub-Saharan Africa". This paper will outline appropriate actions in
 tenns ofpolicy and institutional refonns, investments, and regional programs, needed by the
 countries in SSA to address important issues relating to water resource management, plus the
 World Bank's role in providing assistance to the member countries to accelerate the transition to
 more efficient use ofwater resources. The strength of this paper will come from involving the
 Africans, other donor agencies, and NGDs in a constructive dialogue focusing on key issues and
 finding solutions at the local, national, and regional levels.

 105.   Within the Bank. the strategy will: (a) help Bank staff to acquire a better knowledge ofthe
water situation in SSA; (b) improve the operations supporting long-tenn national programs based
on an integrated. multisectoral approach; (c) improve policy dialogue with African countries; (d)
adopt best practices; (e)promote regional cooperation and development ofa good data and
information base; and (f) build consensus among donors.

106.    Within SSA the strategy will assist countries in the; (a) establisbment of comprehensive
water policies, stmcgics, action plans and cmsistent water rights procedures; (b) formulation of
guidelines and measures for water allocation, water pricing, cost recovery, and incentives; (c)
adoption of water pollution standards and regulatory mechanisms within the context ofnational
environmental managc:ment objectives; (d) creation ofbetter and more comprehensive legal
framework; (c) formulation ofalternative plans for public investments to address priority needs and
problems; (f) improvement of local ca~; and (g) involvement of all major stakeholders (private
sector, local people, local agencies, NGDs, etc.). The follow-up dialogue needed to implement the
underlying tenets ofthc strategy paper would be carried out through some regional or sub-regional
entities identified at the technical workshops.




                                                                                                   27
          VI. PROPOSED TIMETABLE AND MANPOWER REQUIREMENTS

  Timetable

  107.    The schedule for the strategy process is shown below. The exercise of identifying and
 selecting the members of the African Advisory Group has been completed. The first meeting ofthe
 advisory group will be from December 15 to 17, 1994 in Washington DC. The next Advisory
 Group meeting is planned for August 1995, after the initial draft strategy document has been
 prepared.

 108.    The first draft, based on the input from the African Advisory Group and the position
 papers will be prepared for internal discussion by May 1995. A revised draft will be circulated for
 discussion at the proposed workshops in October 1995. The final draft strategy paper will be
 issued by the end of 1995, and the proceedings ofthe two workshops will be circulated by March
 1996.




Manpower

 109.   The total manpower used in FY94 was 37 staffweeks (AFrES provided 20 sw; and ESD,
17 sw). In FY95. a total of43 staffweeks have been allocated for the exercise (African Region 23,
including AFTES; ESD, 20 sw). There is a need for additional resources from the Center to
complete the exercise. This demand for additional resources will be 15 sws, which will be
discussed during the mid-term review.
                                                                                                 28
 Financial Support
110. The Water Resources Management project is supported by The Norwegian Trust Fund in
the Bank with an amount ofUSS300,000. This funding will cover extemaI expenditures related to
advisory group activities, workshop, and specially requested services and inputs.




                                                                                          29
Annex 1: Core Team.


     Task ManagerIPrincipal Author:
     Narendra Sharma,                 AFrES

     Core Team members:
     Ariel Dinar,                     AGRAP
     AI Duda,                         ENVPE
     Don Parsons,                     ENVPE
      lWikHirji,                      ENVLW
      Paula Donolly-Roark,            AFTCB
      Paula Stone,                    lWUWS
      Torbjom Damhaug,                AFrES
      Ede1traut Gilgan-Hunt,          AFrES
     Jean Delion,                     AFTES
     Cyprian Fisiy.                   AFTES
     Francois-Marie Patomi,           EDINU
     Akhtar Elahi                     AF2AE
     Geoffrey Matthews                AGRNR
     Daniel Rothberg.                 Duke University
     David Grey,                      NHI, UK
     John M. Kalbermatten             Consultant
     BillJohnes                       OED




                                                        30
 Annex 1.1 : Africa Region's Water Thematic Team


        Chairman: 

        BocarThiam 
                         AFTPS

       Members
       Randolph A. Andersen,               ACTCD
       LosoBoya,                           AFIPH
       Walker Ochs,                        AGRNR
       Torbjom Damhaug,                    AFfES
       Colin Lyle,                         AFTCB
       Salah Darghouth,                    MN2AG
       Narendra Shanna, 
                  AFfES
       Cynthia Cook. 
                     AF4AE
       Akhtar Elahi, 
                     AF2AE
       Randolph Harris, 
                  AFSAE
      Jolm Elder, 
                        AF4PH
      Assefa Telahun, 
                    AFIIE
      Ebenezer Aikins-Affill, 
            AFIIN
      Geoffiey Matthews, 
                 AGRNR
      Max Wilton. 
                        AFTPS
      Roben Tillman, 
                     AFTES
      Letitia Obeng, 
                     AFTES
      Elizabeth Adu, 
                     LEGAF
      Francois-Marie Patomi, 
             EDINU
      Julia Clones 
                       AFIHR



Annex 1.2: Steering Committee


      Chairperson: 

      Kevin Cleaver, 
             AFRDR .

      Members: 

      lean Doyen, 
                AFrES
      lohn Briscoe, 
               lWUWS
      Gerson Feder, 
               AGRAP
      Guy Le Moigne, -
           ··AGRDR
      Mohan Munashinge, 
           ENVPE
      F~ois Falloux, 
             AFrES
      Bocar Thiam 
                AFfPS 

      Chaim Helman 
               AFlAE 





                                                     31
Annex 1.3: African Advisory Group



Mr. Ahmed Adams             First Undersecretary   Ministry ofIrrigation and Water
                                                   ~ources,~o~Sudan


Mr. Ni Boi Ayibotcle        Director               Water Resources ~earch Institute
                                                   (CSIR) Accra, Ghana

Mr. Peter Heyns             Director               Investigations &. Research, Department
                                                   ofWater Affairs, Windhoek. Namibia

Professor Mark Mujwahuzi    Institute ofResource   University ofDar-cs-SaIaam, Tanzania
                            Assessment

General Olusegun Obasanjo   Africa Leadership      Nigeria
                            Forum

Mr. Mamadou Sylla           Coordinator            Cclule Apres-Ba:rrage, Water Ministry
                                                   Senegal

Mr. Imeru Tamrat            Legal Advisor          Ethiopian Study Valley Development
                                                   Authority, Addis Ababa, Ethiopia




                                                                                        32
Annex 1.4: Technical Advisory Group


      Chairperson: 

      Jean Doyen, AFTES 


      Members:
     Dr. Nonnan Borlaug, President, Sasakawa Africa Association
     Dr. Randy Kramer, Professor, Duke University
     Dr. Haakon Thaulow, Director General, Norwegian Institute for Water Research
     Dr. Ulrich Kuffner, EM1WU


     External Agency Liason 

     Jean Doyen 

     Narendra Sharma 





                                                                                    33
 Annex 2: Position Papers


         Name                Affiliation           Subject

 Mr. B.G. Appelgren 
        FAO         Water policy refonn
 Ms. V. Vandetweerd 
        GEMSIUNEP Monitoring and assessment
                                         requirements for sound watershed
                                         management
 Dr. P. Sanchez             ICRA         Agroforestry in the context of watershed
                                         management
 Dr. H. N. El-Habr          UNEP         International water management, health
                                         and environment
 Mr. A. Mathys 
            RWSG W.     Africa local WRM in Mali
 Dr. A. Szollosi-Nagy 
     UNESCO      Educationltraining
 John Morton 
              ODAINRI (UK)Small scale irrigation
 Daniel Rothberg 
          Duke Univ.  Capacity building for cooperation
 Paula Stone 
              WB          Institutional capacity building
 Ariel Dinar 
              WB          Water supply variability and drought in
                                        SSA
 Ariel Dinar 
              WB          Water pricing and cost recovery
 RafikHirji 
               WB          River 'basin issues and ground water
 Torbjom Damhaug 
          WB          Hydrological infonnation service (coop.
                                        wI G. Matthews)
 Edeltraut Gilgan-Hunt 
    WB          Overview of past and ongoing projects
 Torbjom Damhaug 
          WB          Urban WS lit. S (coop. wlL. Obeng and
                                       1. Kalbennattc:n)
Don Parsons!AI Duda 
       WB         Health and environment
David Grey 
                NHI(UK)     Management of rural water supply and
                                        sanitation services
David Grey                  NHI(UK)    An overview of the intersectoral issues
                                       affecting WRM
Ms. H. G-Ouedraogo. 
       AfDB        Local participation in WRM
Akhtar Elahi 
              WB         Irrigation - SSA(in coop. with
                                       E. Gilgan-Hunt)
 Julia Clones               WB         Gender issues
 Cyprian Fisiy              WB         Resettlement issues
Jean Delion                 WB         Local associations/fanners groups




                                                                               34
Annex 3 Draft Annotated Outline




                                  35
     AN INTEGRATED APPROACH TO WATER BFSOUBCE MANAGEMENT;
                      A STRATEGY FOR SVB-SAHARAN AFRICA



Executive Summary


L     Introduction

n.    Water Kesources in Sub-Sabanm Africa


            - Water resources and regional. variations 


            - Supply and demand trends 


            - Major challenges and opportunities 



m.    Major Water Kesources Problems

      A.    Highly variable water supply and drought

      B.    Health and environmental problems

      C.    Management institutions, mechanisms, and capacity

                     - Fragmented water.resources management.

                     - Limited water management capacity.

                     - Undelpricing, inefficiency, and allocation problems

                     - Lack of stakeholder participation

     D.     International water resources management problems
IV.   Improving Water Resou.rces Management

      A.    Comprehensive cross-sectoral approach

      B.    Health, pollution, and ecological aspects of water resources

      C.    Cooperation in international water resources management

      D.    Capacity building

      E.    Legislative and regulatory reform

      F.    Incentives, participation, and decentralization

V.    The Role of the Bank

      A.    The World Bank's experience in Africa

      B.    Implications for futw:e operations

      C.    Priority areas for Bank involvement

      D.   Donor coordination
              M   nr:rzGRAUJ) APPROACI   m !fATZR   gSOtJB.CI lWIA0pmrrtr 


                        It. STRM.'EGI POR SUB-SAmUUU!   AFRICA 


                             (Draft ADDotat.d outliD.)
                                 X. lIltrociuctiOll
            Thi. ..ction will provide the overall context 'for the paper,
outlining the obj.ctiv·· and liDlci.ng them to the .trat.gic ag.nda includ.d in the
I.ong Term Per.pactive Study of Sub-Saharan Africa (-Sub-saharan Africa: Prom
eriai. to Su.tainabl. Growth-, 1989, A world Bank Report). Among other thing.,
the obj.ctive. will r.fl.ct the r.gion'. prioriti.. concerning poverty
alleviation, food ··curity, .u.tainabl. agricultur., better .-nagamant of the
environment and natural r ··ource., and capacity building. Th. obj.ctiv·· will
al.o taka into con.ideration the Bank'. new water Policy, approv.d in May, 1993.




wat.r . . .ourc.. aad bgional variatiOll.
      Thi· · ·ction will provide an ov.rvi..., of fr··h wat.r r ··ource. (both
.urfac. and groundwat.r) in the region. Al.o, in thi···ction infonaation would
be provided that diatingui.he. SSA from other regiona of the world. For example,
the incidence of drought. and the int.rnational nature of their riv.r. and the
lack of large flood plain· ·uch a. tho. . found in Aaia. Thi· ·ection would al.o
bring out .ubr.gional diff.renc.. within SSA in t.rm. of .cological
charact.ri.tic., .urface water, hydrology, and rainfall patt.rn··
· upplr aad Deaaad   ~da

       Supply and dema.nd tr.nd. - at the .ub-r.gional and country l.vel a.
appropriate - will be included to .how how water condition. vary ov.r time and
.pac.. %hi. will highlight .orae of the .harp difference. UIOng the countri·· and
.ubr.gion., a. well . . taka into account population growth, agricultural
r.quirement., urbanization, and expanaion of economic activitie. in a ·····ing
dema.nd ·
....jor Cballenge. aad Opportaaiti··
        Thi. ..ction would include a di.cu··ion of the challenge. and capacity of
countrie. to .aDag. th.ir wat.r re.ource., focu.ing on both quantity and quality
a.pect..     Bow doe. the highly variable nature of rainfall impact the region
(tmpact of flooding/drought)? Bow to price and allocate wat.r to promote more
efficient, .quitabl. and .u.tainabl. u.e of thi. r ··ource? .What .hould be the
role of the --.rut and the private ··ctor in wat.r r ··ourc· .-nagamant? Bow to
get differ.nt .talceholder. involv.d in bett.r .aDag_nt of int.rnational wat.r.?
Of particular conc.rn are i ··u·· of rural water .upply, con··rvation of wat.r
u ·· , health and environmental concern., .talceholder participation with a .pecial
concern for women, and food .ecurity in tilDe. of drought.


                      XIX .....jor Wat.r Re.ource. Probl. . .


      There are a number of pOlicy, institutional,   financial, technical, and
transboundry is.u... Thi· ·ection will emphasize the main i ··u·· , recognizing
                                           - 2

   country eliff.r.nc·· within the region ·. To the ext.nt po··ibl., the eli.cu··ion
   of ··ch i ··u. will highlight r.levance to ··ch .ubreg-ion or group. of countri···
   Bighly V.riabl. W.t.r Supply aad. Drought
         Not only i. SSA frequently plagued by clrought., it i · ·1.0 the r.gion which
  h.. the low··t w.ter withclrawal r.t.. per capita of any region in the world.
  Thu. when clrought. occur the people have very little flexibility in cutting back
  on con.umption.     Th. clrought· ·1.0 create ··riou. fooel ··curity anel land.
  el.gr.d.ation problem. that have particularly ··v.r. impact. on the poor.
  J'urth.rmore, it make. the provi.ion 'of r.liabl. rur.l w.t.r .uppli·· v.ry
  elifficult.
  IIea1tb IUI4 BIlyiro-...tal Pzobl. . .

           The u·· of contaminated. water for human cOlUlumption i. the principal c.u_
  of many he.lth problema .uch ·· eliarrhe., typhoiel, y.llow fever, chol.r. and.
  other w.terborne eli····e. which kill many people ··ch year in SSA. oth.r w.ter
  r.l.t.el eli...... .uch ·· malari., bilharzi., filario.i. and. onchoc.rci··i. .1.0
  c.u···eriou. h. .lth problema anel lo··e. in proeluctivity in Sub-Saharan Afric··
  J'urthermore, inclu.tri.l anel municipal w··t.. are c.u.ing incre··ingly ··riou.
  he.lth anel .cologic.l problema in many countri.. in the region.                Major
  environmental problema rel.te to pollution, elegr.el.tion of .qu.tic, e.tuari·· anel
  co··t.l .co.y.t_ anel biociiver.ity, and. floocling problema. Re.tor.tion of
  el. . .ged. .quatic eco.y.t. . . need.ed. by the poor for .urviv.l anel u ·· of be.t
  pr.ctice. in c ···· of r ··ettlement will .1.0 r.c.iv. priority .tt.ntion.

  IlaD.ag-.at 1ll8titutioluJ, IIacbent _ , IUI4 C&pacitJ'
          Fragmenteel water Be.purc·· Management. -In gener.l government. d.o not
             .0
  .d.d.r··· w.t.r re.ourc·· probl. . . in · comprehen.ive manner. Their .ctiviti·· are
  organized.     th.t ··ch elifferent wat.r u.e i. manageel by · ·epar.te .g.ncy. Thi·
 . · tructure often re.ult. in ov.rl.pping re.pon.ibiliti·· among variou· ·gencie.
   anel ineff.ctive enforcement of w.ter l.w. anel r.gul.tion.. W.ter quantity and.
   qu.lity i ··ue. are .1.0 con.iel.reel ~.t.ly ·· are grounel anel .urf.ce w.t.r.
   Problem. of coorciination and. fr.gmenteel el.ci.ion making abound. ·· e.ch ··ctor
   goa. off in it. own elirection.
         Limited Wlter Management capacity. Lack of in.titution.l c.pacity to
  m&IUIge w.ter re.ourc.. properly and. inaclequ.te elat. and. information .y.tem for
  .ff.ctiv. planning and. aanitoring undermine su.tainabl. u.. of tbi. ra.ourc··
  Many gov.rDlMnt. have only limited. ability to coll.ct the information and. el.ta
  n_el.el for coaaprah.lUlive and. long term w.ter man.gement. In ad.d.ition th.y h.ve
  few .killeel peopl., funcl., equipaant, and. faciliti·· available to elo th. planning
  and policy analy.i. neces.ary to pieSe w.ter re.ourc. management and inve.tment
  deci.iona. Mo.t countri·· mu.t r.ly on for.ign conaultant. for t.chnical work
  r.lat.d to w.t.r r ··ourc... Thi···ction will examin. th··· problema and analyze
  why w.ter management c.pacity ~. weak.
           Vnclerpricing. Inefficiency. and Allocation Problems.     Throughout the
----region, .ignificant underpriCing of w.ter l ··d. to ineffici.nt u.. and
   mi..alloc.tion of water r.aourc... In many in.tance., co.t r.covery remain. low,
   thu. incr.a.ing the financial burden on .carc. gov.rnment r ··ourc...          An
   important qu··tion i. how to finance coat of w.ter taking into account .ffici.ncy
   and. .quity con.id.r.tion.? To what extent can w.t.r pricing r.fl.ct the .carcity
   co.t of the r ··ourc.? Bow .hould .lloc.tion of w.ter be d.termine among variou.
   competing u ···? Bow should the priv.t· ·ector be involv.d in order to incr····
   · ffici.ncy and to .ttr.ct financing for ··ctor d.v.lopment and management.
       Lack of Stakeholder Participation. Th.re are many u.er. of w.ter for
  dome.tic, .gricultur.l, commercial, r.cr.ation.l, and industri.l purpos··· Sinc.
                                         -   J

there are competiDg claim. and .pecial intere.t group. for water u.e,
.tak8holder. · participation i. an important element in wi.e u.e of water
re.ource.. l:n many countrie. iD the region, the major .takeholder. often do not
participate effectively iD the planniDg, de.igniDg of progr_, and
implementation of water project.. ...ide. their limited planning capability mo.t
government. do not have the iDcentive. or the traiDed people to .ucce··fully
implement large water project·· 'l'hi. leaa to poor project implementation, lack
of u.er participation and the re.ultiDg unwillingne.. of con.umer. to pay for
poor .ervice. Bven though the women are the major u.er. of water in Africa they
are often not a.ked to participate in water re.ource management deci.ion.. A
notable exception i. the water .upply project fund by VlmP on the .outhern coa.t
of zanya where all the village water committee. have women a. the trea.urer.

~l_       AsllOCiated witll. l:atenatiml e1 Water . . .ouree.
        l:nternatioaal water re.ource. are cla··ic ca.e. where national and regional
manag-...n:t .trategie. can be quite different becau.e of externalitie. · l:n many
ca.e., up.tream countri.e. ... few benefit. from iDcrea.ing or maintaining the
flow and quality of water down.tream. Over 200 river. are .bared by two or more
countrie. and .hared river. are the u.ual ca.e for SSA. Thi. .ection of the
paper will examiDe the poor performance of river ba.iD organization. in dealiDg
witll. international water··




       lnve.tm.nt., policie., and regulation. related to water re.ource. n. .d to
be fOrIDUlated iD the context of a broad water re.ource. 8trate;y, which take. the
long teJ:1D view and give. full con.ideration to the eco.y.tam and .ocio-econoadc
.tructure that exi.t iD river ba.iD.. The key element i. the need to develop a
comprehen.ive framework ba.ed on a aulti.ectoral approach that reflect. the
nation' · ·ocial, econcmic and environmental objective··

· _ltll., PollutioD, aDd Bc:ologic:al Aspect. of Water . . .ouree.
        A balanced, more comprehen.ive .at of policie. and in.titution. are needed
that will take advantage of 'the efficiency provided by -..rUt force. and
.trenqt.hen govermuent policie., regulation., and in8titution. targeted at
protecting public health and the environment. Greater iDcentive. au.t be given
to polluter. to clear up their effluent by the u.ing the polluter pay. principle.
FurtheJ!'lDC)re, increa.ed inve.tment and private .ector partiCipation are needed in
the delivery of water .ervice. particularly in rural area.. Tho.e delivering
water au.t be accountable to unr. to en.ure iaproved .ervice. and management of
water re.ource··

CooperatioD .f.a l:ateruatiolUll Water . . .ourc:e. IlaDag_ _t
      Out.ide help i · ·ometime. needed to facilitate cooperation &mong countri.e.
in the management of international water..         Agreement. for management of
international watera are needed on river baaiD. for coordinating water reaource
management and aharing iDfoJ:'lD&tion. International agencie. can play an important
role in providing technical ...i.tance regarding international river. and in
helping e.tabli.h effective international river ba.in entitie.. Bow can exiating
river b··in. in the region be more effective and .ucce··ful?
                                               - 4

 capacitJ' BvJ.l4i.Dg
       COuntrie. need to build up their technical,              in.titutional and      

organizational capacitie. to effectively manage water resource.. In many ca.e.         

the in.titution and organizational capacitie. will need to be developed at the         

international river ba.in l.v.l a. well a. at the local lev.l. Mor· ·upport i.          

need.d frail international agencie. in capacity building (including training and       

r ··earch) .inca many countri·· fail to make the.e nec··· ary long t.rm inve.t:ment.   

and may r ··i.t ··tabli.hing .ff.ctive river ba.in commi··ion·· , 



Legi.lati.... and llIIpl.atozy . .foad
      In many countri·· legi.lation i. needed to facilitat. the d.c.ntralization 

of water management including legi.lation that .ncourag·· the formation of water 

u··r. a ··ociation and that ··tabli.h·· wat.r right.. Regulatory r.form will al.o 

be n.ca·· ary to control wat.r pollution and pr.vent IIIOnopoly pricing of water. 

Thi. r.form will involve chang·· both in l.gi.lation and .nforcement. 


1DcenU....., Participat:Loa and Decentralisation
       It i. critical that the inc.ntive. for water u ·· be chang.d        .0that
con.umer. are .ncourag.d to u·· wat.r IIIOre .ffici.ntly. Pricing and other wat.r
con··rving _chani_ need to be adopted particularly in agricultur. and
indu.try. O.er participation will be important in creating a ··n·· of own.r.hip
aIDODg water u.er. and . . a _&08 of improving operati0n8 and co.t recov.ry.
O. .r. aaR be abl. be benefit frail water con.ervation practic.. if they are
expect.d to maka the n.c···ary chang.. and inv··t:ment··


                                   v. fte   Itol. of tIt.e BaAk

ee WOrld BaAk·. BzperJ.ence in UrJ.ca
      Thi. will be a .bort ··ction .pelling out the performance of wat.r proj.ct.
in Uric. ov.r the pa8t twenty y.ar.. Ther· ·hould al.o be .cae di.cu··ion. of
the probl. . . that cau·· the low level of performance in Africa r.lative to other
r.gion··

PrioritJ' Area.   ~or   BaAk Invol.......t 


       Becau·· of the large .hare of the population Rill in rural area. and the
high level. of pov.rty, Africa requir·· a water .trat.gy that i. targ.t on rural
ar.a. and the poor. Thi. doe. not _an that other ar.a. will be ignor.d but that
progr_ aa.t be d··igned to reach the rural poor. To reach the poor will
r.quir. participation by the poor, ··pecially women in low incOlllll rural
hou··bold., in the d··ign and management of wat.r project..        Prioriti·· for
inv··t:ment will have to vary by. r.gion -in r ··pon·· to diff.r.nc·· in re80urc.-
.ndowment. and in l.v.l. of .conCll'Di.c dev.lopll8Jlt.

!aplication.   ~or   Parture Operation.
       Although countri.. differ in their water .ndowment., in.titutional
capacitie., and level. of .conCll'Di.c development, .ach .hould have a .tratagy for
managing it. water re.ourc... Tbi. .tratagy will .pell out how the Bank can
a ··i.t countrie. in BSA to d.al with the following i ··ua. r.lat.d to waters (a)
incentive framework and pricing (b) .ervice delivery to the poor particularly in
                                              - 5

         rural area. (e) public inveetment prioritiee, (d) environmental protection and
         eco.yetam re.toration, Ce) water reeource a.e.eement and data collection, (f)
         comprehen.ive framework for deci.ion making (g) legi.lative and in.titutional
         arrangement., (h) the role government and the private .ector, and (i)
         re.ettlement.

         DoDOr CooftUaatioll

               Due to the large n'WDber of donor countrie. and international agencie.
         involved in a ··i.ting Africa, more mu.t be done to coordinate the.e efforte.
         Becau.e of ite high .tanding among donore the Bank ha. an excellent opportunity
         to facilitate .uch coordination. The Bank .hould u.e it. influence to encourage
         coordination and if necee.ary withhold funding in Ca.e. where the lack of
         coordination ie caueing .erioue reaource aieallocation.




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