Completion Report. Project Number: Loan Numbers: 1440/1441 July Philippines: Rural Water Supply and Sanitation Sector Project

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1 Completion Report Project Number: Loan Numbers: 1440/1441 July 2006 Philippines: Rural Water Supply and Sanitation Sector Project

2 CURRENCY EQUIVALENTS Currency Unit peso (P) At Appraisal At Project Completion 30 April July 2004 P1.00 = $ $ $1.00 = P26.18 P56.20 ABBREVIATIONS ADB Asian Development Bank BME benefit monitoring and evaluation BWSA barangay waterworks and sanitation association DILG Department of the Interior and Local Government DOF Department of Finance DOH Department of Health DPWH Department of Public Works and Highways EA executing agency EIRR economic internal rate of return HHE health and hygiene education IA implementing agency LGU local government unit MWT municipal water sanitation team NGO nongovernment organization O&M operation and maintenance PCR project completion review PMO project management office PWT provincial water sanitation team SRA sector reform agenda WQS water quality and surveillance WSS water sanitation and supply GLOSSARY barangay the smallest political unit into which cities and municipalities in the Philippines are divided. It is the basic unit of the Philippine political system. It consists of less than 1,000 inhabitants residing within the territorial limit of a city or municipality and administered by a set of elective officials, headed by a barangay chairman (punong barangay). NOTES (i) (ii) The fiscal year (FY) of the Government and its agencies ends on 31 December. In this report, "$" refers to US dollars.

3 Vice President C. Lawrence Greenwood, Jr., Operations Group 2 Director General R. Nag, Southeast Asia Department (SERD) Director S. Lateef, Social Sectors Division, SERD Team leader Team member P. van Klaveren, Urban Development Specialist, SERD R. Alvarez, Assistant Project Analyst, SERD

4 CONTENTS Page BASIC DATA ii MAP vii I. PROJECT DESCRIPTION 1 II. EVALUATION OF DESIGN AND IMPLEMENTATION 2 A. Relevance of Design and Formulation 2 B. Project Outputs 3 C. Project Costs 4 D. Disbursements 5 E. Project Schedule 5 F. Implementation Arrangements 6 G. Conditions and Covenants 7 H. Consultant Recruitment and Procurement 8 I. Performance of Consultants, Contractors, and Suppliers 8 J. Performance of the Borrower and the Executing Agency 9 K. Performance of the Asian Development Bank 10 III. EVALUATION OF PERFORMANCE 10 A. Relevance 10 B. Effectiveness in Achieving Outcome 10 C. Efficiency in Achieving Outcome and Outputs 11 D. Preliminary Assessment of Sustainability 12 E. Impact 13 IV. OVERALL ASSESSMENT AND RECOMMENDATIONS 14 A. Overall Assessment 14 B. Lessons Learned 14 C. Recommendations 15 APPENDIXES 1. Project Framework Physical Accomplishments Revisions in Loan Allocations Project Implementation Schedule Status of Compliance with Loan Covenants Economic Evaluation 30

5 BASIC DATA A. Loan Identification 1. Country 2. Loan Number 3. Project Title 4. Borrower 5. Executing Agency 6. Amount of Loan 7. Project Completion Report Number B. Loan Data 1. Appraisal Date Started Date Completed 2. Loan Negotiations Date Started Date Completed 3. Date of Board Approval 4. Date of Loan Agreement 5. Date of Loan Effectiveness In Loan Agreement Actual Number of Extensions 6. Closing Date In Loan Agreement Actual Number of Extensions 7. Terms of Loan Interest Rate Maturity (number of years) Grace Period (number of years) Philippines 1440/1441 Rural Water Supply and Sanitation Sector Project Republic of the Philippines Department of Public Works and Highways $18.5 million (Loan 1440) SDR million (Loan 1441[SF]) July July April May 1996 (intermittent) 4 June June September November 1997 one 1 February July 2004 (Loan 1440); 23 July 2004 (Loan 1441[SF]) two Loan 1440 Loan 1441(SF) variable 1% Disbursements a. Dates Initial Disbursement 2 June 1998 Final Disbursement 26 May 2004 Time Interval 71 months Effective Date 7 November 1997 Original Closing Date 1 February 2002 Time Interval 50 months Loan 1440 Effective Date 7 November 1997 Revised Closing Date 8 July 2004 Time Interval 80 months Loan 1441(SF) 7 November July months

6 iii b. Amount Loan 1440-PHI ($ million) Category Original Allocation Last Revised Allocation a Amount Cancelled a Net Amount Available Amount Disbursed b Undisbursed Balance b 01 Civil Works (0.082) 02 Equipment and Materials 03 Consulting (0.082) Services 04 Interest and Commitment Charges 05 Institutional Development (0.084) Total a As of 19 March 2002, date of first partial cancellation. b Cancelled on 8 July 2004, date loan account was closed. Loan 1441-PHI(SF) (SDR million) Category Original Allocation Last Revised Allocation a Amount Cancelled a Net Amount Available Amount Disbursed Undisbursed Balance b 01 Civil Works Equipment and Materials Consulting Services (0.076) Interest and Commitment Charges Total Note: Numbers may not sum precisely due to rounding. a As of 3 July 2003, date of first partial cancellation. b Cancelled on 23 July 2004, date loan account was closed. Loan 1441-PHI(SF) ($ million) Category Original Allocation Last Revised Allocation a Amount Cancelled a Net Amount Available b Amount Disbursed Undisbursed Balance b 01 Civil Works Equipment and Materials Consulting Services (0.112) Interest and Commitment Charges Total Note: Numbers may not sum precisely due to rounding. a SDR1.00 = $ as of 3 July 2003, date of first partial cancellation. b SDR1.00 = $ as of 23 July 2004, date of loan account closing.

7 iv C. Project Data 1. Project Cost ($ million) Cost Appraisal Estimate Actual Foreign Exchange Cost Local Currency Cost Total Cost 2. Financing Plan ($ million) Appraisal Estimate Foreign Local Actual Foreign Local A. Implementation Costs ADB National Government Local Government Units Communities B. Interest During Construction ADB Total ADB = Asian Development Bank. 3. Cost Breakdown by Project Component ($ million) Appraisal Actual Component Foreign Local Total Foreign Local Total A. Part A: Institutional Development 1. Capacity Building Program Community Management Program Health and Hygiene Education Program Water Quality Control/Surveillance Program Subtotal (A) B. Part B: Water Supply and Sanitation 1. Land Civil Works Equipment Feasibility Studies and Detailed Design a 5. Project Management/Consulting Services Administration Support Subtotal (B) C. Service Charge and Interest During Construction Total a Cost of feasibility studies was doubled because the costs for the sanitation works and procuring chemicals were charged under this category.

8 v 4. Project Schedule Item Appraisal Estimate Actual Engagement of Institutional Development Consultants October 1996 Not engaged Selection of Implementation Consultants October 1996 June 1998 BWSA Formation and Registration July 1996 May 1998 Capacity Building Program Sector Agencies October 1996 November 1997 LGUs October 1996 April 1998 BWSA October 1996 November 1998 Civil Works Construction or Rehabilitation of Facilities January 1997 June 1999 Completion and Turnover of Facilities to BWSAs September 2001 January 2004 Equipment and Supplies First Procurement October 1996 April 1999 Last Procurement June 1999 August 2003 Completion of Delivery of Equipment June 1999 May 2004 Conduct of BME July 1996 April 1999 Conduct of Health and Hygiene Education July 1996 October 1999 First Year Review October 1997 August 1998 Mid-Term Review March 1999 October 2000 Final Review October 2001 November 2003 BME = benefit, monitoring, and evaluation, BWSA = barangay waterworks and sanitation association, LGU = local government unit. 5. Project Performance Report Ratings Development Objectives Ratings Implementation Progress Implementation Period From 30 November 1998 to 30 November 2000 Satisfactory Satisfactory From 31 December 2000 to 31 August 2001 Partly Satisfactory Partly Satisfactory From 30 September 2001 to 31 July 2002 Partly Satisfactory Satisfactory From 31 August 2002 to 31 December 2004 Satisfactory Satisfactory D. Data on Asian Development Bank Missions Name of Mission Date No. of Persons No. of Person-Days Specialization of Members a Fact-Finding 24 April 12 May a, e, f, g, h, i, Appraisal 3 25 July a, e, g, h, I, k Consultation 5 8 May M Inception November a, e, g, h Review August a, n Review 6 30 April a, d, n Review May a, d, n Mid-Term Review 30 October 30 November a, b, f, i, j, n Review 13 July 18 September c, f, i Review 3 20 December e, n Review 20 November 16 December e, n Project Completion Review b 14 February 10April c, l, n a a = project economist, b = urban environment specialist, c = urban development specialist, d = division manager, e = project engineer, f = senior programs officer, g = programs officer, h = counsel, i = institutional development specialist (staff consultant), j

9 vi = water supply engineer (staff consultant), k = community participation specialist (staff consultant), l = financial/economic analyst (staff consultant), m = department director, n = assistant project analyst. b The project completion report was prepared by Paul van Klaveren, urban development specialist, and Riza-Gloria V. Alvarez, assistant project analyst.

10 125o00'E 119o00'E Babuyan Channel o 'E o 21 00'N PHILIPPINES o 21 00'N RURAL WATER SUPPLY AND SANITATION SECTOR PROJECT Itbayat ILOCOS NORTE BATANES APAYAO Laoag Basco Kabugao CAGAYAN Sabtang o 'E Bangued Tuguegarao KALINGA ABRA ILOCOS SUR MT. PROVINCE Vigan South China Tabuk Bontoc ISABELA Lagawe LA UNION BENGUET San Fernando Cabarroguis Bayombong La Trinidad Baguio N Ilagan IFUGAO Sea NUEVA VIZCAYA QUIRINO Lingayen 16o00'N ZAMBALES Iba Baler NUEVA ECIJA Tarlac 16o00'N Kilometers AURORA PANGASINAN Palayan TARLAC PAMPANGA San Fernando BULACAN Malolos Balanga Manila BATAAN Project Area City/Town CAMARINES SUR Lucena Calapan Boundaries are not necessarily authoritative. Burias Sibuyan Sea ORIENTAL MINDORO Legaspi ALBAY MARINDUQUE OCCIDENTAL MINDORO CATANDUANES Virac Pili Boac Mamburao Provincial Boundary Daet LAGUNA Batangas National Highway OCEAN CAMARINES NORTE Sta. Cruz BATANGAS National Capital QUEZON Binangonan Trece Martires CAVITE PACIFIC Polillo RIZAL Philippine Sorsogon Romblon Catarman Ticao NORTHERN SAMAR Masbate ROMBLON WESTERN SAMAR AKLAN Catbalogan MASBATE Roxas CAPIZ Naval Vi sayan Sea EASTERN SAMAR ANTIQUE LEYTE ILOILO Iloilo CEBU GUIMARAS NEGROS OCCIDENTAL SURIGAO DEL NORTE Maasin BOHOL Puerto Princesa NEGROS ORIENTAL Tagbilaran Dumaguete Siquijor Dipolog ZAMBOANGA DEL NORTE SIQUIJOR Surigao Bohol Sea Mambajao AGUSAN DEL NORTE Butuan CAMIGUIN MISAMIS ORIENTAL Oroquieta MISAMIS OCC.Tubod Sea Prosperidad Cagayan de Oro AGUSAN Kidapawan Shariff Aguak Zamboanga MAGUINDANAO Isabela Moro BASILAN Jolo SULU Panglima Sugala 119o00'E Gulf Isulan SULTAN KUDARAT Davao City Mati Digos Koronadal DAVAO DEL SUR SOUTH COTABATO Alabel SARANGANI Celebes TAWI-TAWI Tandag SURIGAO DEL SUR Malaybalay DEL SUR Marawi ZAMBOANGA LANAO 8 o00'n DEL SUR DEL NORTE LANAO BUKIDNON DAVAO DEL Pagadian DEL SUR Ipil NORTE Nabunturan ZAMBOANGA Tagum COMPOSTELA VALLEY SIBUGAY NORTH COTABATO DAVAO ORIENTAL 8 o00'n Sulu SOURTHERN LEYTE Cebu Panay Gulf PALAWAN Tacloban Leyte Gulf Bacolod Jordan Borongan BILIRAN Kalibo San Jose Sea SORSOGON Sea 125o00'E HR

11 I. PROJECT DESCRIPTION 1. Improved rural water supply and sanitation (WSS) can have wide-ranging health, social, and economic benefits. In rural areas of the Philippines, sanitation-related diseases afflict many people with diarrhea, the main cause of neonatal morbidity and the leading cause of illness among children. The incidence of these diseases can be significantly reduced when WSS services are improved. The most significant improvements in health are usually achieved through a combination of improved WSS services and better personal and household hygiene. The benefits from WSS can be maximized in underserved rural areas when combined with support programs such as health and hygiene education (HHE). Women and children benefit substantially from improved rural WSS as the physical burden of carrying water can be reduced, and the time and energy saved can be put to more productive use. 2. In 1988, the Government launched the national Water Supply, Sewerage, and Sanitation Sector Master Plan covering the period Water supply coverage for the urban population subsequently increased from 63% in 1988 to 70% in Progress in the provision of water supply facilities for rural areas increased from 65% in 1988 to 70% in As the average is only 40% in the poorest rural areas, the provision of WSS facilities for rural areas is an important priority of the Government s program. 3. The major objectives of the Rural Water Supply and Sanitation Sector Project (the Project) 1 were to (i) improve the capacity of sector agencies to enhance the delivery of social services; (ii) provide safe, adequate, and reliable WSS services to selected low-income rural communities in the 20 poorest provinces of the Government s Social Reform Agenda (SRA); and (iii) support HHE, water quality surveillance, and community management activities. The Project framework is included as Appendix The Department of Public Works and Highways (DPWH) was the Executing Agency (EA), which managed and coordinated the Project in partnership with two implementing agencies (IAs): the Department of the Interior and Local Government (DILG) and the Department of Health (DOH). The two major components of the Project were (i) institutional development and (ii) water supply and sanitation. DPWH was responsible for constructing the water supply facilities, while the DOH led the implementation of the sanitation component. Institutional development and capacity building were implemented by DILG. 5. DPWH was responsible for the further refinement of the benefit monitoring and evaluation (BME) system that it had developed in conjunction with earlier projects assisted by the Asian Development Bank (ADB). 6. Part A: Institutional Development consisted of four subcomponents as follows: (i) a capacity-building program for local institutions covering training courses for local government units (LGUs); (ii) a community management program to help the communities design and implement cost-recovery programs and implement operation and maintenance (O&M) activities; (iii) an HHE program focusing on safe drinking water, good habits for personal hygiene, and controlling diarrhea; and 1 ADB Report and Recommendation of the President to the Board of Directors on a Proposed Loan to the Republic of the Philippines for the Rural Water Supply and Sanitation Sector Project. Manila.

12 2 (iv) water quality control and surveillance (WQS) programs covering (a) water source disinfection, (b) water sample collection and testing, (c) the issuance of certificates of water potability, (d) recommendations to install treatment facilities if test results showed water contamination, and (e) periodic water testing at designated sample points. 7. Part B: Water Supply and Sanitation Facilities included (i) constructing and rehabilitating point source water supply systems (level 1); (ii) constructing public, school, and household latrines; and (iii) constructing and equipping district laboratories. II. EVALUATION OF DESIGN AND IMPLEMENTATION A. Relevance of Design and Formulation 8. The Project responded to ADB s Country Assistance Plan (1996), and responds to the current Country Strategy and Program, specifically by improving the delivery of basic social services to rural areas, with the overall objective of reducing poverty, as specified in the Poverty Partnership Agreement. 2, 3 9. The Medium-Term Philippine Development Plan presents several mediumterm goals and strategies for the WSS sector in the Philippines: (i) Provide potable water to the entire country by 2010 through private sector or public investment. (ii) Ensure that all barangays and municipalities that will be provided with water supply services have the corresponding sanitation facilities for proper disposal of wastewater. (iii) Continue to provide capacity-building programs and technical assistance on WSS planning, management, and project implementation for all water service providers needing assistance. 10. The Project was formulated through a sound demand-based process and multiple consultations with the representatives of the Government, LGUs, communities, and funding agencies. A socioeconomic survey among beneficiaries in 12 provinces, covering 400 communities, was carried out and reviewed by ADB. Furthermore, 40 of the 200 prepared subprojects were reviewed, and eight subprojects were appraised in detail. 11. On the basis of lessons learned from previous ADB-financed rural water-supply projects, the Project recognized the need to focus on the sustainability of operations and a strong sense of ownership. Appropriate measures were incorporated in the project design, such as a capacity-building program for sector agencies and communities, a comprehensive water quality control and surveillance program, and clear delineation of responsibilities among the central and local agencies involved. 12. To increase the level of ownership of each subproject, detailed requirements were formulated for site selection. The formation of barangay waterworks and sanitation associations (BWSAs) was a prerequisite, and detailed arrangements for cost recovery and O&M by the communities were outlined. 2 ADB Country Strategy and Program : Republic of the Philippines. Manila Republic of the Philippines Asian Development Bank Poverty Partnership Agreement. Manila. 4 National Economic Development Authority Medium-Term Philippine Development Plan, Manila.

13 3 B. Project Outputs 13. The Project s original target was to improve access to safe water and sanitation in 3,000 barangays in the 20 poorest provinces, by constructing and rehabilitating 8,256 water-supply facilities, and by training 3,000 BWSAs to manage and operate multiple facilities in each barangay. Additionally, in the same 3,000 barangays, 41,380 latrines were to be constructed in 125 public areas, 125 schools, and 40,000 households. To support the WQS program, 50 district water laboratories were to be constructed and equipped. 14. The target at appraisal refers to the number of barangays to be covered by the Project. A barangay is the smallest administrative unit and can consist of 200 to 5,000 people. It was estimated at appraisal that a total of 8,256 facilities in 3,000 barangays needed to be constructed and rehabilitated. With the target set at 2 million beneficiaries, this resulted in an assumed average number of 667 people per barangay and 242 beneficiaries per facility. During implementation, the focus of monitoring shifted to the number of water supply facilities to be constructed and managed, without taking into account the number of barangays nor the number of beneficiaries per facility. As a consequence, the number of beneficiaries covered by the Project was not monitored. 15. During project implementation, the target number of water supply facilities was increased because of requests for additional spring-development projects. The conclusion was reached that each facility should be operated by a separate BWSA, resulting in a new target of 8,575 water supply facilities and the establishment of 8,575 new BWSAs. Later on, it was realized that in some cases it would be more efficient to allow BWSAs to operate more than one water supply facility, and the target number of BWSAs was reduced to 4,453. With the depreciation of the Philippine peso against the US dollar, the targets for the sanitation component could be increased from 40,000 to more than 90,000 latrines. 16. The targets at appraisal, revised targets, and actual physical accomplishments are presented in Tables 1 and 2. The outputs are presented in more detail in Appendix 2. Description Table 1: Targets versus Achieved Output (Part A) (as of 30 June 2004) Target at Appraisal Revised Target Actual % (of revised target) Part A (Institutional Development) 1. Formed BWSAs 3,000 4,453 4, Trained BWSAs 3,000 4,453 3, LGU Training (a) No. of PWTs Trained (b) No. of MWTs Trained (c) No. of PWTs Staff (d) No. of MWTs Staff 1, BWSA = barangay waterworks and sanitation association, MWT = municipal water and sanitation team, No. = number, PWT = provincial water and sanitation team. Source: Department of Public Works and Highways. 17. During site visits, it became clear to the Project Completion Review (PCR) Mission that not all the formed BWSAs were active. BWSA training was in some cases limited to one or two

14 4 sessions on the formation of BWSAs. Skills training programs for WSS were provided to provincial water and sanitation teams (PWTs), municipal water and sanitation teams (MWTs), and all registered BWSAs. Capacity building was provided to give the implementers skills in project planning and operation and the proper maintenance of the water supply system and sanitation services. All PWT staff of the 20 provinces were able to attend the training conducted by DILG, while the number of LGU staff (MWT) members required to participate was reduced from five to three staff per municipality, due to financial and manpower constraints on DILG. Description Table 2: Targets versus Achieved Output (Parts B1 and B2) (as of 30 June 2004) Target at Appraisal Revised Target Actual % (of revised target) A. Part B1 (Water Supply ) 1. Shallow Wells 2,500 2,500 1, Deep Wells 2,026 2,000 1, Spring Development 1,600 1,698 1, Rehab (Deep Wells) 2,000 2,000 1, Rehab (Spring Dev.) Subtotal (A) 8,256 8,575 6, B. Part B2 (Sanitation) 1. District Laboratories School Toilets Public Toilets Household Pit Latrines 40,000 91,400 60, Subtotal (B) 40,300 91,816 61, Source: Department of Public Works and Highways. 18. Although DOH reported that 59 district laboratories had been completed, not all of them are operational. Of the 20 water laboratories visited by the PCR Mission in six provinces, only eight were operating. Common issues raised are the (i) unavailability of qualified medical technologist to conduct water analysis, (ii) late delivery of equipment and chemicals, and (iii) lack of power or water supply. C. Project Costs 19. At appraisal, the project cost was estimated at $57.4 million equivalent, with ADB s share estimated at $37.0 million (64%) and the Government s share at $20.4 million (36%). Loan 1440 of $18.5 million was from ADB s ordinary capital resources. Loan 1441, equivalent to $18.5 million, was from ADB s special funds resources (Asian Development Fund). 20. The loan allocation was revised twice to (i) include provision for institutional development, originally envisaged to be entirely funded by the Government, and (ii) increase civil works and equipment categories to finance committed contracts and remaining works. The loan amount was reduced twice due to peso devaluation. The final loan amount was $20.8 million equivalent: Loan 1440 for $9.7 million and Loan 1441 for $11.1 million equivalent. Appendix 3 provides details on loan allocations per category at appraisal and at completion. The actual project cost was $31.3 million equivalent (55% of the appraisal estimate), of which ADB financed $18.6 million (59%) and the Government $12.7 million (41%).

15 5 21. Administration support costs were estimated at $2.7 million. Due to the 17-month delay in loan effectiveness and the 29-month loan extension, the actual administration support costs were $4.3 million, or 160% of the estimate at appraisal. D. Disbursements 22. Loan effectiveness was delayed by more than a year because there was no budget cover for counterpart funding. This delayed the recruitment of consultants to implement the Project. The first disbursement was made on 2 June 1998, when the project implementation consultants were mobilized. There were delays in procuring equipment and materials under the sanitation component due to (i) the reorganization of DOH, which reconstituted the membership of the bids and awards committee, (ii) delays in fund transfers from DPWH to DOH, and (iii) changes in project staff composition. By November 2000, only 15% of the funds had been disbursed against an elapsed time period of 80%. 23. The initial amount of $1 million was established at DPWH, $0.5 million each for the two loans. The midterm review identified the problems experienced in fund transfer from DPWH to DOH. This caused delays in delivering procured equipment and materials. In response, ADB established a separate imprest fund at DOH in early DPWH, DILG, and DOH were constantly urged by ADB to follow up closely with the Department of Budget and Management on the transfer of funds, and with LGUs for the submission of statements of expenditures to allow the timely replenishment of the imprest fund and ensure fast disbursements. 24. The final disbursement was made on 26 May 2004 for the last batch of latrines under the sanitation component. Disbursements at loan closure totaled $18.6 million equivalent, of which 61% was for purchasing equipment and materials and 27% was for civil works. Loan utilization was 89% of the final, reduced loan amount of $20.8 million equivalent. E. Project Schedule 25. The Project was originally planned to be implemented over 5 years from mid-1996 to August 2001 (Appendix 4) (footnote 1). The loan was declared effective only on 7 November 1997 due to lack of budget cover in the Government s annual appropriation. 26. A second delay was encountered in the recruitment of consultants. Project implementation therefore started only in June 1998 after the mobilization of the consultants and the establishment of the project management office (PMO). 27. The Midterm Review Mission 5 of November 2000 found that the overall accomplishment rate of the Project was 11% against an elapsed loan period of 80%. The loan closing date was extended to 31 July 2003 to compensate for the delayed start of the Project. 28. Further delays in implementation necessitated a second extension until 30 April 2004, on condition that no further extensions would be requested. This extension was approved to allow the completion of the Government s ongoing contractual commitments. 5 Wallum, Peter Back-to-Office Report of Midterm Review Mission on Loans 1440/1441(SF)-PHI: Rural Water Supply and Sanitation Sector Project. ADB: Manila. (22 December).

16 6 29. The major causes for the delay in implementation were the (i) lack of counterpart funds, (ii) delayed procurement, (iii) poor coordination of activities, and (iv) institutional and administrative changes within the EA and IAs. F. Implementation Arrangements 30. The EA for this Project was DPWH. Together with the IAs, DILG and DOH, it was responsible for the overall implementation and coordination of the Project through its PMO-WSS. 31. The DPWH was expected to assist with project design and provide construction supervision through the regional director s district engineering offices and municipal engineering offices. 32. DILG was responsible for coordinating and implementing the capacity-building program for LGUs to enhance their ability to assume full responsibility for water and sanitation projects by training PWTs and MWTs. DILG was additionally responsible for implementing the community management training program to help communities organize and prepare for managing their facilities. 33. DOH was responsible for promoting LGU implementation of health and hygiene, as well as for water quality surveillance and control programs. Safe drinking water and personal hygiene were to be promoted through various media. The water quality surveillance and control programs included testing water sources and issuing potability certificates, supported by the construction and equipping of district water laboratories. 34. The mayor, as chief executive of the LGU in municipalities, was responsible for selecting and formulating subproject proposals, as well as their implementation, in coordination with offices of municipal development, municipal health, and the municipal engineer. Subproject proposals were approved at the provincial level by the provincial board, consisting of representatives of the provincial project development office, provincial heath office, and principal engineer s office. 35. The actual mobilization of communities and preparation of subproject proposals was done by barangay councils or the BWSAs that had already been established. The BWSAs were responsible for providing labor and land for constructing the facilities and for their operation and maintenance. 36. Consultants were engaged to support the activities of the PMO and provide assistance in specific matters such as (i) preparing standard designs, (ii) preparing contract packages and documents, (iii) capacity-building programs, and (iv) implementing health and hygiene programs. 37. In general, the implementation arrangements as defined and agreed during appraisal remained unchanged. The implementation arrangements were complex, requiring coordination among three government agencies at three different levels. Weak project coordination, particularly locally, caused delays in implementation and the fragmented, instead of integrated, implementation of the Project. 38. The project design gave nongovernment organizations (NGOs) important roles in (i) community mobilization and training and (ii) monitoring and evaluating subprojects. It was agreed with the Government that DILG would involve NGOs in the community management

17 7 program, but this did not happen due to budget constraints; DILG implemented the program using only government staff. 39. Decentralizing responsibilities for developing water supply and sanitation to autonomous LGUs during project implementation weakened the position of the EA and IAs, as they could not enforce performance targets. 40. Recognizing the need for speedier implementation, the PMO in November 2000 launched a performance-based implementation plan that included reallocating budgets from poor-performing to high-performing provinces. The implementation rate subsequently increased. 41. The EA failed to enhance the existing BME system, which hindered effective project management. G. Conditions and Covenants 42. Of the 24 covenants, 15 are fully complied with, and nine partly so. Appendix 5 gives the status of compliance with loan covenants in detail. 43. Particular Covenants. Of the nine particular covenants, eight were fully complied with. The covenant on sound operation of the facilities was only partly complied with, as not all subproject facilities are operational. 44. Sector Covenants. The covenant pertaining to the Government s undertaking to fully implement RA 6716 (the Accelerated Water Supply Program), 6 was only partly complied with, because BWSA operations remain unsustainable due to uncollected tariffs. The covenant on the availability of funds was also only partly complied with, due to the delays in the release of counterpart funds. The other two sector covenants were complied with. 45. Social Covenants. Of the two social covenants, the covenant on the active encouragement of NGOs and women to participate in the project was partly complied with. While involvement of NGOs did not materialize due to budget constraints, the socioeconomic survey revealed that women were represented on boards as members (30% of the BWSAs), as treasurer (50%), and as secretary (50%). EA reported that no resettlement was required. Required land areas were either public property or donated by private owners to the community. The water laboratories were constructed on governmental hospital premises. All land and riparian rights and privileges required by the Project were provided in a timely manner. The EA was given the right to issue water permits by the National Water Resources Board, through which the riparian rights are regulated. The unrestricted access of waterways was a condition for issuing water permits and acceptance as a subproject under this Project. 46. Financial Covenants. Both financial covenants were partly complied with. There were delays in the submission of audited project accounts and statements by the provinces for lack of institutional capacity to prepare reports and, in some of the provinces, the limited availability of auditors from the Commission on Audit. The Borrower provided 80% of project costs as a grant, though with substantial delays due to the Government s tight fiscal position. 6 The Accelerated Water Supply Program mandated the provision of 100,000 Level I facilities to rural areas and the provision of funds, services, land, and other resources, in addition to the proceeds of the loan.

18 8 47. Other Covenants. Of the seven remaining covenants, four covenants are partly complied, with (i) the submission of the quarterly reports often delayed, (ii) the refinement of the existing BME system complied with only near project completion (serving as a project output rather than as a project management tool), (iii) tariff collection for the maintenance of project facilities and basic accounts by BWSAs not fully implemented, and (iv) some BWSAs failing to maintain basic accounts. H. Consultant Recruitment and Procurement 48. Consultants were engaged by DPWH in accordance with ADB s Guidelines on the Use of Consultants. The contract for project management consultants was signed in January 1998 and the consultants mobilized in June The consultancy contract was amended twice. The first amendment was to include the services of trainers and specialists in community organizing and development. The second amendment was made to allow the consultants to assist remaining project activities during the 9-month loan extension period. The consultants provided 320 person-months of domestic consulting services, compared with 148 person-months of domestic consulting services estimated at appraisal. There was no requirement for international consulting services. 49. All procurement to be financed out of the proceeds of the loan was made in accordance with ADB s Procurement Guidelines. Civil works were awarded through local competitive bidding among pre-qualified contractors in accordance with procedures acceptable to ADB. In cases where the subproject locations were remote and the contract amounts too small to attract competitive bidding, force account (the resources of public agencies) was used by the LGUs. Civil works based on pure contracts accounted for 30% of total works done, force account for 25%, and combined force account and contracts for 45%. 50. Supply contracts for equipment or materials amounting to $500,000 equivalent or more were procured through international competitive bidding, and those of less than the equivalent of $500,000 through international shopping. There were no substantial deviations from supply requirements. I. Performance of Consultants, Contractors, and Suppliers 51. Project management consultants were engaged through local competitive bidding in accordance with ADB s Guidelines on the Use of Consultants. Due to the delay in loan effectiveness, the project management consultants were fielded 19 months after loan approval. This caused significant delay in project activities because the consultants were required to develop the standard WSS designs, prepare contract packages and documents, and provide support to the activities of the project management office. In spite of the delay, once the consultants were fielded, they performed a proactive role in providing support to the PMO for undertaking project activities. The consultants worked well with the staff of the EA and the IAs. The performance of the consultants was satisfactory. 52. The performance of contractors was satisfactory. Generally, facilities were constructed in compliance with the standard designs provided to the LGUs. There were no reports of substantial delays in construction or deviations from standard designs. While water potability is a concern in some subprojects, this is due to poor site identification. 53. In general, equipment was supplied according to the contracts. The performance of suppliers was satisfactory.

19 9 J. Performance of the Borrower and the Executing Agency 54. The performance of the Department of Finance (DOF) as the representative of the Borrower is partly satisfactory. The prolonged delay in loan effectiveness was due to the lack of budget cover for the loan in the Government s appropriations for the year By the time budget cover was provided for in the 1997 appropriations, 15 months had passed. DOF did not exert the required effort to ensure that the loan was provided budget cover upon approval of the loan in DPWH, as the EA, coordinated reasonably well with DILG, DOH, LGUs, and communities to implement the Project. The EA was able to bring the Project to a great number of small communities in remote areas in the 20 poorest provinces. However, the EA should have put more emphasis on developing and using the BME for monitoring and managing the Project, applying the site selection criteria, and strengthening the focus on the integrated approach of providing WSS to selected barangays or communities. Already during the midterm review (October 2000), it was recognized that LGUs lacked the capacity to comply with the reporting requirements of DPWH, causing a delay in the submission of monitoring data required for BME. Following the review, the report forms were simplified, and consultative meetings were held with the LGUs. However, the submission of data remained a problem and DPWH was not able to intensify its efforts to acquire the data due to inadequate government support for training and project management. Consistent application of site criteria and greater focus on the integrated approach would have increased the effectiveness of the Project. The EA s performance was only partly satisfactory. 56. DILG was the IA for the capacity-building and community management programs. The lack of counterpart funds caused considerable delays and prevented the involvement of NGOs, which was identified as essential in the report and recommendation of the President. Furthermore, due to inadequate financial and human resources, the output target for the training components was not met. DILG s performance was only partly satisfactory. 57. DOH was the IA of the HHE and the WQS programs. Regionally, DOH assisted LGUs and communities in the construction of public and household toilet facilities. The May 1998 national elections resulted in the reorganization of DOH, which triggered the reconstitution of the membership of the bids and awards committee and changes in project staff composition. The national sanitation training program for sanitary inspectors in the 20 SRA provinces was conducted, as was the training for medical technologists for the water analysis laboratories. However, the timing of these training programs did not match the construction and establishment of the toilet facilities and water analysis laboratories, so it is unlikely that the programs served their purpose. Most of the medical technologists who were trained have either left government service or moved to a non-sra province. There was no transition program in place to mitigate these departures. As to the implementation of the WQS program, much more needs to be done to institutionalize water sample collection and the issuance of water potability certificates. The sustainability of operations of the water analysis laboratories is a serious concern. DOH s performance was only partly satisfactory. 58. LGUs were responsible for selecting sites, designing subprojects, and selecting suitable technology with the full participation of beneficiary communities. Disagreements among barangay and BWSA officials arose during project implementation, which hampered the growth of BWSA operations and discouraged communities from giving full support and cooperation to their BWSAs. Low rates of tariff collection is a serious issue. Site selection criteria were not

20 10 consistently applied for lack of understanding of the project rationale and its objectives, reducing the effectiveness of the Project. Overall, the performance of LGUs was only partly satisfactory. K. Performance of the Asian Development Bank 59. ADB fielded eight loan review missions and a midterm review mission, involving 336 person-days. The missions were able to highlight urgent issues affecting project implementation and, through their recommendations, helped facilitate subsequent project execution. ADB acted promptly in processing the Government s requests to provide funding for the institutional development component originally planned to receive Government funding. ADB addressed the Government s need to reallocate loan proceeds to meet the project s obligations to contractors. When DOH was experiencing delays in transferring funds from DPWH, ADB set up a separate imprest account allowing DOH to facilitate disbursement. Staff from the EA and DOH participated in ADB-funded procurement seminars to accelerate procurement. While ADB reorganization in 2002 delayed resolution of some procurement issues faced by the Project, the situation lasted only a few months. The performance of ADB was satisfactory. III. EVALUATION OF PERFORMANCE A. Relevance 60. The Project is considered relevant because it is consistent with the Government s development priorities and ADB s Country Strategy and Program (footnote 2). Providing basic services to the poor population is recognized as an essential step in the process of poverty reduction. 61. Focusing on the rural population of the 20 poorest provinces is relevant, as most poverty in the Philippines is rural, with almost three out of four (73%) of the poor residing in rural areas (footnote 4). 62. The design of the Project takes into consideration the lessons learned in previous ADBfinanced rural water supply projects. There was sufficient allocation of resources for capacity building in the agencies involved, not only for implementing this Project, but also for continued development and management of WSS facilities. The issue of the sustainability of project outputs was addressed by formulating a community-based approach with sufficient community consultation and participation to increase community ownership. The criteria for effective site selection were elaborated, and provision was made for water quality testing facilities. B. Effectiveness in Achieving Outcome 63. The outcome of the Project was to provide safe, adequate, and reliable WSS services to selected low-income rural communities in the 20 poorest provinces of the country. The corresponding target was to provide 2 million people, of whom 80% live below poverty line, with safe water by the year The WSS component of the Project was monitored in terms of the number of facilities constructed. No data was collected on the number of beneficiaries and their economic status. 64. The Project design foresaw the implementation of a BME system within 6 months after project start-up. However, only in February 2004 did the PMO produce the first BME report, 7 7 DPWH, DILG, and DOH Benefit Monitoring and Evaluation, RW3SP. Manila.

21 11 which presented valuable information and quantifiable data on the benefits of the Project. The conclusions correspond with the observations made during the PCR field visits. 65. A total of 192 water supply facilities were inspected during BME. This represented about 10% of the facilities that were completed before 21 August Of the inspected facilities, 75% were operational, and the average number of beneficiaries per facility was 135 people. This is substantially less than the projected number of 242 people per facility. 66. Only about 60% of the water supply facilities were actively monitored and disinfected when needed, and about 90% of the facilities provided water 24 hours per day. However, in the perception of nearly all of the local beneficiaries, the facilities provide adequate water and offer health benefits. 67. The sanitation component of the Project consisted of constructing toilet facilities for selected households, schools, and public areas. Although the objective of the Project was an integrated approach to water and sanitation in 3,000 barangays, the sanitary facilities were not necessarily constructed in the same barangays as the water supply facilities. 68. Almost all of the public toilet facilities are operational. In most cases, a small fee is required for using the facility. Some are maintained by a caretaker employed by the municipality or funded directly from the fees. 69. The original design for school toilets as provided in the loan agreement was for separate buildings constructed adjacent to the classrooms. Results of field inspection and monitoring of school toilets constructed under previous projects indicated that facilities with this design were not properly maintained, since responsibility for cleaning the toilets was not clear. DOH, with the assistance of the consultants, revised the school toilet design to a cubicle attached to individual classrooms, complete with a water-sealed toilet bowl and water faucet. 70. The household toilets were popular and well received by the beneficiaries. The main complaint was that not enough toilets were provided. The latrines are well used and maintained. Most beneficiaries have received HHE and are observing basic hygiene. 71. The Project is rated as less effective for the following reasons: (i) only about 75% of the planned water supply facilities were constructed; (ii) not all constructed facilities are operational; 8 (iii) the number of beneficiaries per facility is less than projected; and (iv) the integration of water supply and sanitation facilities was not achieved. C. Efficiency in Achieving Outcome and Outputs 72. The benefits of the Project, as identified at appraisal, were (i) enhanced capacity to implement and manage the WSS sector program and subprojects; (ii) time saved from collecting water, directly benefiting women and children; and (iii) improved health and thus reduced morbidity and mortality rates. Based on a conservative methodology of quantifiable benefits that was not able to incorporate the health benefits, the weighted average economic internal rate of return (EIRR) for eight selected subprojects was estimated at 27%. 73. Evaluation of performance, based on that of individual subprojects, was likewise conducted after project completion to determine the economic viability using the same economic 8 BME shows that, of the 192 facilities, 145 (76%) are operational.

22 12 assumptions as at appraisal. Economic analysis was carried out in another set of eight water supply subprojects to calculate the EIRR. These EIRR results are presented in Table 3 (details of the economic evaluation are shown in Appendix 6). Table 3: Summary of Economic Internal Rate of Return Subproject EIRR (%) 1. Kamog, Sablan, Benguet San Jose, Malitbog, Southern Leyte Ibarra, Maasin City, Southern Leyte Tinabuan, Jordan, Guimaras 3 5. Comian, Nueva Valencia, Guimaras Bulan-bulan, Jordan, Guimaras Locso-on, Borongan, Eastern Samar Salvacion, Sibalom, Antique 53 EIRR = economic internal rate of return. Source: Asian Development Bank. 74. Economic analysis of the subprojects counts the economic cost savings and consumer surplus as the benefit streams, balanced against the investment cost and O&M as the cost streams. The social discount rate used to determine economic viability was 12%. The EIRR of the eight subprojects ranges from 3% to 53% with a weighted average of 27%. Of the eight sample subprojects, Tinabuan was the only one found to be uneconomic. 75. The Project is considered to be less efficient because (i) the water fee is being collected at less than half 9 of the operational water supply facilities, which means that these subprojects generate no revenues to cover O&M and replacement costs; (ii) it was unable to develop a continuous water quality monitoring program and or an integrated approach, which considerably reduced the targeted health benefits; and (iii) implementation was considerably delayed. D. Preliminary Assessment of Sustainability 76. Project design recognized the need for community involvement in selecting and designing subprojects to guarantee sustainability. Effective O&M, including cost recovery, will take place only when the community accepts full ownership of the facility. 77. The sustainability of project outputs was addressed through the incorporation of an elaborate capacity-building program. This program focused on the institutional, technical, and financial aspects of sustaining project outputs. During the midterm review, it became obvious that the training of LGU staff was far behind schedule and that the training program did not cover the relevant areas of project implementation. The reason for the delay was the lack of DILG funds for the training program. A new implementation schedule was agreed, and ADB funds were provided for refresher training. 78. The Project foresaw an essential role for NGOs in mobilizing, organizing, and training the BWSAs. However, DILG decided not to involve NGOs since no funds were available. Consequently, the mobilization and organization of communities trailed the physical construction of the facilities. Due in many cases to time pressure to implement subprojects, no proper community consultation was carried out on project design or site selection. Not all water supply 9 BME shows that, of the 145 operational facilities, 48 (33%) are collecting water fees. The findings of the PCR Mission confirm that the level of collection is low.