Ilembe Water and Sanitation Service Delivery: Case Study Report

1. Ilembe Water and Sanitation Service Delivery: Case Study Report A presentation of findings of research conducted for Water Dialogues-SA Water Dialogues research team Ilembe Local Dialogue 6 February 2009

2. Presentation outline • Purpose of the research • The context of the study and the methodology employed • The findings • Community workshops • Institutional study • Some issues for consideration

3. Purpose of the research • Core purpose • Examine the lessons generated from the experience of a mature private sector WSP concession arrangement with regard to institutional options • The study must cover: • An examination of both the IDM internal WSP and the Siza WSP

4. Locating the Ilembe District area • Ilembe district is composed of 4 local municipalities: Mandeni (formerly eNdondakusuka), Maphumulo, KwaDukuza and Ndwedwe. • It extends over an area of approximately 1455km2 (Source: http://www.ilembe.gov.za)

5. Methodology • The core methods used were: • Participatory workshops in 4 IDM communities selected through consultation with Councilors • 2 in the Siza concession area (Etete, Nkobongo) • 2 in IDM serviced areas (Lindelani, Sundumbili (Mandeni)) • An analysis of documentation available including academic studies; • Interviews with key government department, municipal and Siza Water informants • Notes: • The research was carried out over a six month period by two different teams resulting in some methodological shortcomings. • The research teams were assisted greatly by the willingness of stakeholders to give of their time in support of the research. • The bulk of the research was conducted in late 2007 and early 2008.

6. Background information: the people • Population is estimated at 576 934 (projected form 2001 census) • Settlement density is much higher around the urban nodes of Stanger and Mandeni/Isithebe/Sundumbili and along the coastal strip forming a core focus of this study. • 79% of the population is classified as rural, with 21% as urban. Official census documentation reflects that ninety six percent of the population is from a previously disadvantaged background. • The district includes areas historically under the governance framework of the KwaZulu administration (much of Ndwedwe and Maphumulo) which received little in the way of infrastructure and services, including roads, water, sanitation, as well as health and education.

7. Background information: the institutions • The Borough of Dolphin Coast (BODC) was created in the post 1994 interim phase of local government. It had responsibility for water and sanitation services. • The BODC, in terms of the 1997 Water Services Act, initiated a process to place its water and sanitation services in the hands of a private concession arrangement in the late 1990s. • In January 1999 the BODC entered into a contract with the Siza Water Company on a 30 year concession arrangement: • All municipal water and sanitation assets were transferred to Siza’s control for 30 years in exchange for a concession fee and scope for the concession company to earn a profit within an agreed, and regularly reviewed, tariff and performance agreements. • In 2000 the BODC functions were incorporated under the KwaDukuza Municipality which fell under the newly formed Ilembe District Municipality. • Subsequent to the Ilembe DM being granted WSA status, the management of all WSP arrangements – including that of the concession – were transferred to the District structure. • After following a section 78 process the IDM chose to use an internal service option for the bulk of its service areas, excluding the SWC concession area to which it was contractually bound to an external WSP arrangement.

8. Background information: water and sanitation services • Note: there are many different figures in the public domain some which suggest backlog figures are slightly higher than the DWAF figures provided below. • Ilembe water backlog: 28.19 percent of the population do not have RDP standard water supply (Source DWAF April 2008 WS NIS www.dwaf.gov.za) – up from over 50% on 2006/06 • Ilembe sanitation backlog: 34.38 percent of the population do not have RDP standard sanitation supply (Source DWAF April 2008 WS NIS www.dwaf.gov.za) – up from over 60% in 2006/07 • Backlogs are primarily a factor in rural areas of Ilembe where they are closer to the 50% level as these 2005 figures suggest (below). Table 3. Water Backlogs and Income in Ilembe by local municipality, 2006/07 (Source: Municipal Demarcation Board, 2006)

9. Findings: Community workshops I • General – all four communities • Poor service provider consultation, participation and communication (on nature of service, interruptions, policy etc) • Unresponsive/confusing complaints channels • Lack of meaningful and affordable service alternatives • High levels of service interruptions and slow response times • Community specific • Etete & Nkobongo • High costs of replacement prepayment cards/tokens • Hazards from poorly maintained VIPs (Etete) • Cost of higher service levels (connections and water cost) • Lindelani • Lack of access to standpipes • Poor maintenance of pipes and taps – lengthy delays in repairs • Sundumbili (Mandeni) • Decline in quality of service – too many interruptions • Informal settlement is not services • No regular/accurate billing – concern that will be lumped with outstanding bills in future

10. Findings: Community workshops II • Sundumbili • When are they going to make the statement easily understandable? • How do they figure out the amounts that people are supposed to pay – where are they getting the information? • Who are the meter readers (if any)? • Why are statements received after three months? • Why is Ilembe Municipality not responding on time when there is a problem? • Etete • When are we getting proper water, i.e. in-yard taps for those who used to have them, and proper standpipes? • When is Siza Water going to help with the cleaning of toilets without asking for so much money? • Nkobongo • When are we getting water connection inside our houses for everyone? • When is the Municipality solving their issues with Siza Water? • Lindelani • Why is there no notification or warning if there will be no water on certain days or weeks or months? • Why are we treated differently from other communities? What is the difference between Lindelani and Shakaville in terms of water delivery? • Why do we receive water accounts when we do not have water in our houses?

11. Findings: Institutional Study (1) • Note: The comparisons that are presented below should be understood as reflecting very different circumstances between the concession area and the rest of the IDM area: • IDM is characterised by a dispersed settlement pattern over a large area which many topographical obstacles and covers many communities previously excluded from all service delivery. Almost one in two households are poor. • Siza Water operates in a much smaller area with shared topographical features and largely urbanised settlements in which there existed a substantial infrastructure backbone. The bulk of households earn an income above the poverty level. • Some selected IDM-Siza service indicators: • Water backlogs (RDP standard) • IDM: 28-36% • Siza: 0% • Sanitation (RDP standard) • IDM: 34-50% • Siza: 0% • Free Basic Water • IDM: Free for all standpipe, borehole • Siza: 6kl for all Service Level 1 users • Water loss • IDM: 35.3% (2006) • Siza: 10% (2006) • Payment rates • IDM (KwaDukuza): 75% of those billed • Siza: 98% • Oustanding debts • IDM: over 100% of revnue • Siza: Less than 5% • Complaints • IDM: No figures • Siza: 7.6 complaints per 1000 users annually – only 1% of these responded to in more than 2 days

12. Findings: Institutional Study (2) • In technical performance terms the Siza Water Concession matches or outperforms the IDM WSP across most categories of indicators used in the study (Water quality, progress against back logs, water loss, customer interaction, revenue recovery etc) • However, a direct comparison is problematic where the entities operate at such different scales and in such different circumstances! • The governance of the concession arrangements and the IDMs own WSP delivery systems appear to be compromised by: • A lack of a sense of buy-in to the concession by IDM; • Inadequate resourcing and development of the role of the IDM WSA; • Financing systems and political choices generating neglect of maintenance and core system upgrades; • Poor systems of communication and accountability. • Both parties (SWC and IDM) seem to have done little in the way of exploring forms of more innovative partnership and learning that were deemed to have been important elements of national policy shifts to encourage various PPP forms.

13. Lessons on institutional arrangements • Role of WSAs • Capacity needs to be enhanced • Must also emphasise accountability to citizens • WSAs should encourage greater collaboration/learning between WSPs • Regulation of the sector • Role of DWAF and DPLG etc has been more developmental than one geared to effective regulation of performance • Voice of users (and aspirant users) needs to be heard more in this process • The role of WSAs is not clear in effective regulation • Institutional arrangements with the private sector • Require particular dedicated support to municipalities to enable them to oversee these • Independent monitoring should be considered – assess both contractor and contracted party obligations AND user experiences • Scope for greater contract adjustment or more flexibility in contract period to be considered (costs not only to be borne by municipality) • Policy frameworks need attention • Commitments must be made on progressing households from basic service to a better level of service

14. In addition to responding to the study findings the local dialogue (today) must also address the questions raised by the communities ….Findings: Community workshops II • Sundumbili • When are they going to make the statement easily understandable? • How do they figure out the amounts that people are supposed to pay – where are they getting the information? • Who are the meter readers (if any)? • Why are statements received after three months? • Why is Ilembe Municipality not responding on time when there is a problem? • Etete • When are we getting proper water, i.e. in-yard taps for those who used to have them, and proper standpipes? • When is Siza Water going to help with the cleaning of toilets without asking for so much money? • Nkobongo • When are we getting water connection inside our houses for everyone? • When is the Municipality solving their issues with Siza Water? • Lindelani • Why is there no notification or warning if there will be no water on certain days or weeks or months? • Why are we treated differently from other communities? What is the difference between Lindelani and Shakaville in terms of water delivery? • Why do we receive water accounts when we do not have water in our houses?