Better coordination in the sector

There is a great need to develop

communication and coordination across
the sector and between different states.
keep water systems working as it is they
who bear the brunt of water collection and
care for dependents sick from water-
related diseases.
WaterAid WaterAid in Nigeria - Briefing note
Urban coordination meetings can
themselves act as a resource of Community involvement Urban issues in the Nigerian water
Government policy prescribes that
knowledge, lesson learning and
experience sharing for urban water issues.
communities should be responsible for the and sanitation sector
operation and maintenance of water
It can help promote networking across the systems, but doesn't put in place processes
sector by organising meetings of key for this. This is a key area where NGOs can 1. Introduction 2. Policy environment
stakeholders such as government, NGOs, offer vital support in developing a strong
CBOs and religious groups where model of how to effectively enable Nigeria is witnessing rapid urbanisation at a) Sector background
experiences can be shared. communities to take on this role. Until the 1960s the development of the
Community involvement in the the rate of 3.7% with about 50% of the
development of new water sources has so population living in urban areas without water and sanitation sector in Nigeria was
Management information systems
MIS data is essential for planning and for far been minimal. The communities have commensurate investment in uncoordinated and mainly undertaken as
tracking progress. Improved data felt little ownership of the projects and infrastructure leading to huge urban isolated 'water schemes' under the
collection and dissemination at all levels is demotivated and powerless to help when jurisdiction of the then regional
funding delays have hampered progress. populations living without these most
essential. basic services, often in overcrowded governments, as and when needed. From
A change of balance towards communities
being the initiators of projects with other settlements, with disastrous public health then on the sector became increasingly
Development of states' policies partners acting as facilitators would implications. In response WaterAid formalised.
It is important that all states develop their increase their sense of control and
WATSAN policies. This will provide the started to work in urban areas in 2003, and
ownership of projects and thus improve The 1999 Constitution of the Federal
framework for prioritising the sector in the their likely sustainability. Community now plans to expand urban work from 3%
Republic of Nigeria, and in fact all other
state budget. management committees need to be to 30% over the course of its country
selected in a transparent and accountable laws, gave the Federal Government
strategy period, which runs from 2006 to
way in order to gain the trust of the rest of jurisdiction over shared water resources,
Capacity development/utility reform 2011.
The present capacity existing in most SWA the community. It is essential that women large dams, formulation and
is below what is require for effective turn are well represented on the committees as implementation of policies for overall
they have the greatest motivation to This briefing note summarises the findings water resources management. But
around. There is therefore need for ensure systems work. of five studies commissioned by WaterAid
aggressive capacity building focusing on drinking water supply is a state
areas required for successful reforms. in Nigeria, identifying policy and practice responsibility. To this end all 36 state
Hygiene education issues that need to be addressed in
In recognition of the fact that it takes governments have created State Water
Hygiene and sanitation promotion sustained effort for behavioural change to improving urban water and sanitation . Agencies (SWAs) to manage and operate
Currently there is poor linkage between be achieved in the area of hygiene due to systems for water service delivery in all
hygiene and sanitation components, with the difficulties of attitudinal change, The studies sought to assess the urban urban areas (officially defined in the
work on different elements carried out in increased investment is needed in hygiene water and sanitation sector in Nigeria; National Water and sanitation Policy
isolation. There is need to facilitate communication strategies.
document lessons from WaterAid's own (2000) as areas with a population in excess
linkages between different ministries with urban work to date, assess the capacity of
responsibilities in each area at federal and Pro-poor approach of 20,000) and in some semi-urban areas.
state level and support the development of It is clear that many of the most a typical State Water Board and assess the
integrated WASH strategies. marginalized communities are currently involvement of consumers in the water Generally, the SWAs have failed to provide
excluded from water and sanitation sector reform processes taking place in the water services to the people. According to
Community participation initiatives services, yet current poor data on the states of Lagos, Cross River and Plateau2. figures in the National Policy on Water and
The community consultation forums in provision of water and sanitation makes it Sanitation (2000) only 46% of the
difficult to target those most in need in
Plateau State proved successful in service expansion. There is a need to Drawing from these studies this briefing populace has access to safe drinking
improving revenue collection and service enumerate and identify pockets of the poor note will outline the prevailing national water, with coverage around 50% in urban
delivery. The urban reform programme eg through the use of mapping of existing areas. According to the JMP report (2004),
can learn from this success, and address water supply and sanitation policies;
WATSAN facilities. WaterAid's 'localising identify some major challenges facing the the country is currently not on track to
some of the shortfalls. Civil society millennium development goals initiative' achieve the Millennium Development Goal
organisations can form Water Parliaments (LMDGI) and the development of local sector and outline activities of players in
that organise Interactive Public Hearings the sector, including WaterAid itself. It will target of halving the proportion of people
sector development plans should be without access to water and sanitation by
on water related issues towards enshrining encouraged to ensure that services are conclude with recommendations on the
transparency and accountability in the developed in an equitable manner. tools, methodologies and approaches that 2015. About 160% additional
sector. performance increase is required for
should be included in a new WaterAid
Nigeria to meet the MDG.
urban strategy as a contribution towards
Advocate for greater involvement of enabling Nigeria's urban poor to access
women at all levels
water and sanitation services.

Partners for Water & Sanitation - Nigeria

The idea of involving women in decision
WaterAid - Water for life making is still contentious in Nigeria due to WaterAid - Water for life
1
The International NGO The International NGO UNFPA-State of the World Population, 2007- “Unleashing the
dedicated exclusively to the cultural and religious definitions of dedicated exclusively to the potential of urban growth” Pg. 91
2
The studies were: Review of the urban water and sanitation sector
provision of safe domestic women's roles. However, it is essential for This briefing note does not constitute a provision of safe domestic in Nigeria, Anne Andersson and Mark Hughes, 2007; Review of
w a te r, s a n i t a t i o n a n d the sustainability of projects that the most w a te r, s a n i t a t i o n a n d
hygiene education to the
formal communication from the hygiene education to the
WaterAid Nigeria Urban and Small Towns Work in Plateau, Benue
and Bauchi States, Zakka Chomock, 2007; Capacity Assessment
world’s poorest people motivated players are given driving roles, organisations whose logos appear here world’s poorest people on Bauchi State Water Board; Evaluation Study of the Plateau State
and women have the most motivation to and does not necessarily represent their Community Consultation Forums, 2007and Research Study on
Urban Water Sector Reform Programmes in Lagos and Cross River 3
official position on the subject matter. States, 2007, Babalobi Babatope and Hope Ogbeide
National Water Sector Assessment (2006), WaterAid Nigeria

8 1
 Those urban communities who do have unsatisfactory levels of completion 5 . Provide working equipment
access to water generally receive poor Encourage a gender balance

Partners for Water & Sanitation - Nigeria

service. Typical consumer complaints Failures were attributed to poor contract Enhance donor agency and
include irregular and inadequate water management, poor project design, and government collaboration
supply, excessive and inefficient billing, corruption.
4 low water quality and poor customer d) Urban water sector reform in Lagos and
service4 . B) Sector Reform Cross River States
In recognition that the sector was in critical The World Bank funded Second National
Most SWAs do not recover their operating need of funds for the required investment Urban Water Sector Reform Programme
expenses from their own revenues, mainly in the development and rehabilitation of (NUWSRP) was launched in 2005 in the Drawing from the research findings, the
because customers refuse to pay their bills water supply facilities, but was facing Cross River and Lagos states of Nigeria, following key lessons should be considered
significant challenges with the current with the aim of introducing private sector when policy and programme objectives for
due to poor service or a lack of acceptance urban work are formulated:
modus operandi, the Federal Government participation in order to attract new
of water as an economic good; SWAs do finance and improve water service delivery.
not have in place efficient tariff collecting initiated a Water Sector Reform If service delivery is good enough,
programme in the year 2000. The reforms In both states the plans included consumer
systems and the tariffs are generally set feedback systems. consumers are willing to pay water
below operational costs. This leaves the were to be based on the principle of moving bills.
SWAs chronically under funded and towards a more commercial model, in Some urban communities have the
There has been some level of civil society
dependent on periodic external finance to which water is treated as an economic engagement in the reforms in either state capacity to partly finance network
rehabilitate deteriorating systems and on good; private agencies deliver the water but there is low public awareness of the expansion costs.
subventions from the state governments to services and consumers are treated as reforms. In order to ensure the reforms Urban community involvement is more
fund operating deficits. customers, while universal affordable meet their stated aims of expanding difficult in water than in sanitation and
access to water and sanitation is still services in an equitable manner, civil hygiene education, and thus requires
guaranteed. Presently, as part of the society needs to be more involved so that better planning. A switch of emphasis
Most SWAs are operating in a very World Bank assisted urban reform project,
constrained environment with consumer concerns are taken into account from communities' participation as
a cost-sharing mechanism called Water and future expansion and tariff-setting are service users to owners and managers
malfunctioning equipment and plants, Investment Mobilisation and Application could help this.
partly due to poor management and better targeted to the benefit of the poor.
Guideline (WIMAG) has been developed. Successful partnerships depend on all
inadequate power supplies that cause This formula makes federal government In Cross River State there has been success parties fulfilling their obligations,
intermittent water services and damage to share of urban capital projects conditional in extending the water network, but the especially important being the need
electro-mechanical equipment. based on sector reform at State level. water fees are still deemed to be for:
unaffordable for the poorest households 1. Government to release promised
The sector also faces institutional c) The National Water Supply and and no consumer feedback system has funds in a timely manner
challenges. At Federal level, there are been put in place. In Lagos State the low 2. Water utilities to deliver an efficient
problems relating to sector coordination,
Sanitation Policy capacity of the State Project level of service
The National Water Supply and Sanitation Implementation Unit has led to severe 3. Consumers to pay their water bills
monitoring and evaluation. At state level,
Policy, launched in 2000 and currently delays though efforts are now being made promptly
despite the fact that the edicts that being reviewed, spelt out the roles of the
established the SWAs provide that they to hold consultative forums. The plans that
tiers of Government, the private sector, are in place however indicate that when Establishing dialogue between
operate as autonomous entities, in development agencies, non governmental work does start it will not target network water utilities and consumers
practice they operate like government institutions and the beneficiary can help build trust and
departments closely integrated into the expansion into the poorest areas.
communities in developing and managing adherence to obligations.
civil service. At the local government level, water resources in Nigeria. As the main users of water,
5. Recommendations for urban work in
the major challenge is the lack of Nigeria women are the most
competent staff for water and sanitation The policy aims to: It is clear that while the Nigerian urban motivated to solve water
services. water and sanitation sector has many problems.
1. Ensure affordability of water supply and chronic problems, the greatest of these are
The SWAs have also failed to successfully sanitation services for the citizens. institutional, concerning management, Recommendations for policy and
manage several donor financed urban roles and responsibilities, accountability, programme include the following points.
water projects. Over the years the Nigerian 2. Guarantee affordable access for the maintaining schemes, inadequate
government has worked with various poor to basic human need (20 litres of coordination or customer involvement. Clarification of federal policy and
External Support Agencies (ESAs), water per day per capita) level of water responsibilities
including the World Bank and EU on urban supply and sanitation services (One latrine Due to the huge sums involved in financing There is need for greater clarity on roles
per 10 persons). urban water and sanitation schemes, and responsibilities and greater
and small towns projects and sector integration of work across the three tiers of
reforms. Large sums have been invested international NGOs like WaterAid are
The following strategies were outlined in obviously not in a position to solve the government.
with varied degrees of success. The sector
order to achieve the policy objectives financing problem by providing the funding
has been dominated by the award of large itself. They can, however, play a vital role in Effective disbursement of government
WaterAid - Water for life
contracts under the supervision of WaterAid - Water for life helping develop the capacity of the urban funds for WASH activities
government consultants, particularly at (a) Cross subsidies shall be implemented
The International NGO
to accommodate the needs of the
The International NGO water and sanitation sector, both through State and federal government must of
dedicated exclusively to the the federal and state level. Most of these dedicated exclusively to the
advocacy initiatives and in their own necessity prioritise funding of urban water
provision of safe domestic
contracts, particularly those with external urban poor. provision of safe domestic
w a te r, s a n i t a t i o n a n d w a te r, s a n i t a t i o n a n d programmes, which can serve as a model and sanitation in their annual and medium
hygiene education to the loan components from the World Bank and The Government shall subsidise for the hygiene education to the for other actors engaged in service
poor where cross subsidies are not term budgets. Reliance on external loans
world’s poorest people African Development Bank, have achieved world’s poorest people delivery. will not guarantee extension of services to
4
Urban Water Sector Reform Programmes in Lagos and Cross River
5
Project Performance Assessment Report June 13, 2006 Thematic the urban poor.
States, 2007, Babalobi Babatope and Hope Ogbeide and Global Evaluation Division Independent Evaluation Group The
World Bank

2 7
 a more business-oriented model with the motivated to improve water supplies applicable. Importantly, the policy reiterates that
PSWB being responsible for generating and can put pressure on their (b) Water supply and wastewater services small town and rural communities retain
sufficient revenue to cover ongoing costs. husbands to pay the bills. shall be privatised (where feasible), full ownership of their water facilities and
The government would still be responsible with adequate protection for the poor. sanitation. This is less clear for larger
for funding capital expenditure. A successful partnership between a (c) The Federal Government shall create urban communities.
4
water utility and consumers relies on an enabling environment and shall
Community consultation forums were both parties fulfilling their obligations p r o m ote p r i va te o p e r a to r s to Par ticip ation: The private sector
ticipation:
established in 2003 in order to boost public participate in water supply and
consumers will pay their bills if they (operators, commercial banks, and
wastewater services in Nigeria to
understanding of the reforms and to elicit receive adequate service. consultants), communities and NGOs have
attract resources for lasting
consumer feedback. development of the sector. a critical role to play in the planning,
The chief issue raised at the forums was Some communities are willing and (d) The water supply and sanitation sector design, financing, implementation and
that of bill payments. The PSWB explained able to partly finance network should be reformed to attain and operation of water supply and sanitation
to consumers that they needed them to pay expansion as well as paying water bills maintain internationally acceptable systems. Their potential contribution of
their bills on time in order to generate - on hearing about the PSWB's standards. additional finance and technical expertise
sufficient revenue to run the water shortage of funds for network should be tapped. Other benefits inherent
services. The consumers responded by expansion, several communities The policy is based on the following in participation are greaterTransparency,
expressing that they were willing to pay bought pipes themselves to give to the principles: efficiency, accountability to the consumer,
their bills if they received efficient water Water is an economic good - Treating water
PSWB. and self-sufficiency.
as an economic good enhances financial
services. sustainability, by ensuring that tariffs cover Non-government players were specifically
Religion and ethnicity are sensitive the costs of investments and operation and identified as key players in peri-urban
'We met with the PSWB. They told us about issues in Plateau State. Some maintenance. areas, where the federal and state
their problems lack of money, and we also communities claimed they were not Equity and poverty alleviation - Reforms in agencies will provide the basic water
told them about our problems lack of given a regular water supply because the sector should aim to provide access to supply and storage, but it is up to the
water. We promised to collect the money of their religious affiliation. water and sanitation in an equitable community, with technical support, to put
from the people, when they give us water.' manner, while balancing economic and in place the system (piping, connection
Alhaji Mohammed Nadunni Shuaibu, Ward c) Capacity assessment of Bauchi State social considerations. points, kiosks, etc.). They are also
Leader, Angwanrogo community, Jos Water Board Autonomy of water supply and sanitation recognised as important in advocacy and
ser vices provider
providers: s: This principle
Capacity assessment of the Bauchi State community mobilisation, and in providing
recognises that water supply and
The discussions resulted in a Water Board was conducted by WaterAid sanitation can be most efficiently and the linkage between communities and
Memorandum of Understanding being Nigeria to determine the current capacity effectively delivered if service providers government.
signed between the PSWB and the and the gaps with a view to providing some operate as businesses. As such, utilities,
communities in which the PSWB support towards addressing the gaps. The whether public or private, while still subject Policy making and regulatory role of
committed itself to providing a regular capacity of the Bauchi State Water Board to regulation, should be autonomous and government: This principle reaffirms the
water supply and the community agreed to was found to be weak with poor ratings in free from political interference. fundamental role of the state as a
pay water bills regularly. all key areas: governance, management Management at the lowest appropriate facilitator, setting macroeconomic and
practice, human resources, financial level: A crucial new aspect of the policy was sector policies that create an enabling
Overall the community consultation resources, service delivery, external the recognition of the importance of environment, ensuring coordination
forums were successful in improving community involvement in water and
relations, sustainability and equipment. It sanitation services, rather than them being among stakeholders and overseeing the
dialogue between the water board and had no Board of Directors overseeing its a purely government responsibility. This performance of utilities, to accomplish its
consumers. With increased operation in place, no clear delineation of principle promotes consumer appreciation social and economic development
understanding on both sides, both revenue roles and there is poor management, for the value of water and sanitation objectives.
collection and service delivery is said to insufficient working tools and equipment. investments. If local conditions and
have improved, although still not to the There was a high level of government demand are taken into account, the sense Federal and state governments are both
extent demanded by consumers, some of interference in the activities of the Board of ownership of systems and willingness of charged with raising awareness of hygiene
whom reported that PSWB was very willing and poor collaboration between the communities to share in the cost and and health, which is to be included as part
to listen to their concerns but didn't act on government and donors. operations and maintenance will be of the education curricula.
these. In order to increase efficiency and service greatly enhanced, thereby increasing the
sustainability of the systems.
delivery there is a need to: The role of the community was given
Key lessons from the forums were: clarification with the recognition of a
Constitute a board with appropriate flexible approach in development based on
There is a need to work with professionals and autonomy of the capability of the beneficiary or

Partners for Water & Sanitation - Nigeria

community leaders in order to reach operations community. Knowledge empowerment is
WaterAid - Water for life the rest of the community and WaterAid - Water for life seen as the driving force in achieving
The International NGO
Review the existing organisational The International NGO
dedicated exclusively to the schedule meetings at convenient structure dedicated exclusively to the sustainability. The policy also points to the
provision of safe domestic times and locations. Introduce participatory decision provision of safe domestic need for communities to pay their share of
w a te r, s a n i t a t i o n a n d
making w a te r, s a n i t a t i o n a n d the costs, with small town communities
hygiene education to the hygiene education to the being fully responsible for meeting the cost
world’s poorest people It is important to involve women in Introduce an effective management world’s poorest people
discussions as it is they who are most of operations and maintenance.
structure

6 3
 Enforcement is recognised as key to responsibilities. This underm ines 2nd Nigerian urban sector reform projects in unlikely to be able to afford to pay the full
sustainable development, with the policy motivation to take on responsibility, to Lagos and Cross Rivers States. initial construction costs. The
alluding to sanitation enforcement and perform and produce services and also communities involved are disillusioned
other law enforcement agencies being leads to very low accountability. a) WaterAid supported urban work and demotivated by the severe delays in
empowered to deal with violators of WaterAid began urban work in Plateau establishing water supplies or completing
4 sanitation laws. Poor coordination and State Nigeria in 2003. In 2004 it also construction work. Therefore in future
communication between players - the lack commenced a Small Towns project in Dass projects it is essential WaterAid identifies
3. Sector challenges of clarity on the roles and responsibilities of Bauchi state and in three small towns in state water agencies who are thoroughly
Unfortunately, the laws and acts put in different actors means that vital elements Benue State. committed to the success of the project
place did not provide for effective of service delivery can fall between gaps. and who are able to release the money for
enforcement. The Federal Ministry of For instance whilst the federal ministry of
In all three states the work was undertaken capital expenditure in a timely manner.
Agriculture and Water Resources has agriculture and water resources have
oversight of the World Bank supported in partnership with the communities and
responsibility for the development of urban reform projects, the state water the state governments through the state Through its work to date WaterAid has
policies without any means of enforcing agencies involved are not always in water boards. Other partners are the Dass helped to access increased resources for
their implementation at state and local communication with the federal Women's Multi-purpose Cooperative Union WASH activities and improve collaboration
level. State governments, in turn, lack the government. and Partners for Water and Sanitation in between government and communities.
commitment and capacity to carry out Opportunities for shared learning and Bauchi and Benue states respectively. The For example initiatives to increase citizens'
their responsibilities. As a result, water and financial aims of the programmes were to enable participation have brought communities
sanitation coverage targets are being Savings eg through bulk buying discounts the communities to manage, operate and and the local government together and
missed and urgent action is needed to are currently being missed with the Federal maintain their water supply systems, build also helped in getting government to
effectively reform the sector if sustainable Government and 36 states all acting latrines and develop an awareness of the commit more resources to WASH
universal coverage is to be achieved. independently. need for safe hygiene practices. initiatives.
Fundamental weaknesses in the sector Limited capacity to tackle urban It was hoped that successful models for
include: b) The Plateau State Community
water sanitation - there is limited urban water and sanitation service delivery
Consultative Forums
provision for hygiene education, meaning could be developed that could be
A lack of adequate planning data that communities do not make the The Plateau State Water Board (PSWB) is
expanded throughout the states.
on current service provision - Whilst it is connection between safe disposal of responsible for managing the state water
clear that very many poor people do not excreta and contamination of their water In all three cases the communities have networks and extending services where
have access to safe water and sanitation source. benefited from the sanitation and hygiene necessary in an affordable and equitable
provision, exact numbers are difficult to education interventions, and have been manner.
attain due to poor data collection. actively involved in the construction of
latrines, but there have been severe delays Currently water provision in the state is
Capital intensive nature of the Neglect of the poorest segments of in establishing water supplies and little poor. While 85% of residents surveyed in
sector
sector- urban water supply requires society - many of the poorest, most community involvement in this. To date the state capital, Jos, reported having a
technologies that are expensive and these marginalised populations are only Dass has a functioning water point, connection to the public water supply, the
costs are not usually accommodated in concentrated in peri-urban areas, that fall and even there only one of the three water supply is extremely irregular. The
state annual budgets. SWAs usually rely on under the jurisdiction of water utilities 6 . planned boreholes has been opened. result is that people in Jos resort to unclean
external loans to fund this. The utilities currently give low priority to the water sources.
development of services in these areas. The delays are attributed to a lack of
Low capacity of key players - the thorough planning and most importantly to In order to improve water service delivery,
federal government, state governments, 4. Case studies of urban water and delays in the state governments releasing since 2002 the PSWB has been
LGAs, NGOs, the private sector and sanitation projects promised funds to complete construction undergoing reform and engaging the
equipment suppliers currently all have WaterAid has evaluated its urban work to works. private sector in water service delivery, for
inadequate manpower and technical and date and the activities of some of the state
water boards to serve as case studies the following reasons:
management skills, meaning that money The relative success of sanitation and
alone would not solve the problems. It examining progress on the ground in
implementing the new policy of involving hygiene education compared to the water Investment needs exceed government
would be unwise for the government to aspects of the project reflects the higher
take external loans for the required communities in improving water and and utility resources.
sanitation delivery. It has also examined capital investment required for urban The performance of the public utility is
funding without ensuring there is capacity water supply projects, and the technical
building, as currently there are not the extent of consumer involvement in the poor
difficulties. Urban water projects can be There are inadequate technical and
effective structures in place that would be
Partners for Water & Sanitation - Nigeria

hugely expensive, so it is essential that management resources in the public

able to efficiently spend the money. suitable and appropriate technology is sector
WaterAid - Water for life WaterAid - Water for life
thoroughly researched and an adequate There is a lack of competitiveness in
Lack of policy framework at state and realistic financing plan is put in place.
The International NGO The International NGO
dedicated exclusively to the level although it is clear that it is states' dedicated exclusively to the
the public sector
provision of safe domestic responsibility to provide water in urban provision of safe domestic The private sector is believed to have
A key finding of the evaluation was that
w a te r, s a n i t a t i o n a n d areas, only five of Nigeria's 36 states have w a te r, s a n i t a t i o n a n d performed well elsewhere
hygiene education to the hygiene education to the communities are willing to pay for the
water supply policies and strategies. No
world’s poorest people world’s poorest people operation and maintenance costs of water
policy framework or line ministry alone The intention of the reform was to switch to
supply infrastructure. However, they are
covers all aspects of WASH, which often
results in the involvement of many 6
UNFPA State of the World Population, 2007
ministries and thus unclear roles and

4 5