GWPからのニュースで世銀の首記報告書が出たというので早速手に入れた。世銀だからといって全て鵜呑みにはしないが、参考にはなる。当地のことも書いているが、実際とは違う記述も散見されている。
さて、数カ国についてはレビューと今後の戦略の概要が載っている。中央アジアやフィリピンと云った小生が関係した地域もあるが、まずは本ブログでアクセスの多いフィリピンからまずご紹介することにする。丁度パンパンガ川でIWRM計画を実施中でもあり何かの参考になるかもしれない。
Issues
The Philippines have a strong history of water user associations dating back to the
1970s, the success of which has inspired much of the participatory irrigation movement around the world.
But there has been little progress in modernizing irrigation management since then. Today, fundamental institutional problems plague the Philippines’ water sector, including poor sector planning, weak accountability, and a redundancydue to its highly fragmented institutional arrangements. This has resulted in under performance, and must be addressed if desired health and poverty impacts are to be achieved.
The Water Resources Board (NWRB) is the lead agency of the Philippine Government
responsible for policymaking, regulatory, and quasi-judicial functions of the water
sector. The NWRB ensures the optimum exploitation, utilization, development, conservation, and protection of the country’s water resources. However, the NWRB has limited capacity to execute these functions because of inadequate financial and technical capacities.
The NWRB is currently being downsized and consolidated into the Department of
Environment and Natural Resources, a change that could further impair its economic
regulatory functions and create a vacuum in the regulation of the sector.
There is also need improve and expand urban water service by strengthening service provider capacity, establishing an enabling environment that provides incentives for
good performance and facilitating access to investment financing. Sanitation, a long
neglected sector, presents an increasingly complex challenge to address both supply-and demand-side constraints to sector development within a compressed timetable.
Surface water is still the main source of water for urban water supply, meeting 60 percent of the total demand in the Philippines. However, the quality and availability of surface water is under threat due to catchment degradation and pollution, making the investment cost of treatment and operation extremely high.
Groundwater is increasingly becoming a major source of drinking water. It currently accounts for 40 percent of demand in the country and this will further increase due to rapid urbanization. Based on the water rights granted by the National Water Resources Board (NWRB) since 2002, 49 percent of groundwater is consumed by the domestic sector, and the remaining shared by agriculture (32 percent), industry (15 percent), and other sectors (4 percent).
About 60 percent of the groundwater extraction is without water-right permits, resulting in indiscriminate withdrawal. A recent study shows that groundwater resources in Manila and other metropolitan cities are being rapidly depleted, resulting in subsidence, salt water intrusion, and contamination from sewage and industrial pollutants. While agriculture only accounts for 32 percent of groundwater consumption, irrigation is the largest user of water from all sources accounting for 80 percent of total use.
Proposed Directions for Bank Engagement in 2003
The 2003 Country Water Resource Assistance Strategy identified the need to
support and reform the National Irrigation Association (NIA) in closing the gap
between the irrigable service area and the actual area irrigated, recommending
that irrigation management transfer to Irrigators’ Associations be pursued more
deliberately.
This was to be accomplished both working from the top, by enabling legislation, and from the bottom, by supporting local efforts where there is strong demand for reform.
World Bank Group Achievements in FY03–09
The Philippine Clean Water Act of 2004 aims to protect the country’s water bodies
from pollution from land-based sources—industries and commercial establishments,
agriculture and community/household activities. It provides a comprehensive and
integrated strategy to prevent and minimize pollution through a multi-sectoral and
participatory approach involving relevant stakeholders.
Based on estimates, the Government needs PhP25 billion per year for ten years for the construction of physical infrastructure required by the Act. However, key national agencies and local governments are faced with multiple challenges in fully implementing the provisions of this law. Through its Water and Sanitation Program, the Bank has been supporting the Department of Environment and Natural Resources to implement the Act through the establishment of Water Quality Management Areas (WQMA) in Silway River and Sarangani Bay in Southern Philippines.
A WQMA is a contiguous area that has similar geologic, hydrologic and physiographic characteristics and which drains to a water body like the river, lake and bays that may cover one or more local government jurisdictions. Under the law, a WQMA Action Plan must be prepared setting (i) goals and targets for sewerage; (ii) a schedule of compliance to meet the applicable requirements; (iii) water pollution control strategies or techniques; (iv) water quality information and education programs; (v) resource requirements and possible sources; (vi) enforcement procedures; and (vii) rewards and incentives.
The Act also provides for the establishment of a Water Quality Management Fund (WQMF), which envisions national government to set aside some funds to support sewerage and septage management programs. To date, the fund has not been resourced and local governments are running out of time to comply with the 2009 targets. The Bank-assisted Laguna de Bay Institutional Strengthening and Community Participation (LISCOP) Project, which commenced in 2004, attempted to address water pollution and watershed degradation in Laguna Lake and its watershed through reforms and modernization of the regulatory, planning and economic instruments of the Laguna Lake Development Authority (LLDA).
The implementation of environmental sub-projects such as solid waste management, wastewater treatment, environmental enhancement/ecotourism and local flood control by the local government units using ecosystem-based and community and participatory approach has improved the water quality of the lake.
The implementation of the environmental user fee system (EUFS) for industrial discharges to complement regulations has been responsible for the significant reduction in industrial biochemical oxygen demand (BOD) loading. Industrial BOD loading was reduced from 40 percent in 1996 to only 11 percent in 2006 despite an increase in the number of firms. Scaling up of lessons learned from LISCOP can be used to help cleaning up the water quality in other watershed areas of the country. In the irrigation sector, Bank work since 2003 has largely focused on institutional strengthening and infrastructure repair and rehabilitation, rather than new construction.
This includes building capacity for irrigation associations, introducing new cost recovery policies and self-sustaining systems for O&M; and restructuring of the NIA. During two recent Bank-supported projects, the Second Irrigation Operations Support Project and the Water Resources Development Project, the NIA piloted the Irrigation Management Transfer scheme with some success, with 12 percent of all NISs now covered. However, the rollout of the IMT scheme to more NISs was stalled by NIA’s field personnel who would stand to lose their jobs.
The recently approved Participatory Irrigation Development Project, or PIDP, will be a unique opportunity for NIA to pursue this reform in conjunction with its approved Rationalization Plan, which is the main measure authorizing NIA to reorganize and downscale their operating units through an incentive package for early retirement of affected staff. The reforms envisioned in the irrigation sector in the 2003 Country
Strategy are all embodied in the PIDP. In urban water services, the Bank is currently addressing domestic wastewater under the Manila Third Sewerage Project (MTSP).
It has committed to further support the concessionaires in the accelerated investment program to address domestic wastewater in response to the Supreme Court ruling to clean-up the Manila Bay. While the transformation on the resource management succeeded in the Angat Dam, the main source of bulk water for Manila and
about 30,000 hectares of irrigation facilities, the development of other prospective
sources (i.e. Liban Dam and Laguna de Bay) to meet the increasing demand for potable
water remains a challenge.
The Bank also attempted to re-engage with Local Water Utilities Administration (LWUA) to help them reform under the Executive Order 279 and support less creditworthy water districts’ improve their service delivery performance in order to graduate them to the commercial market, but were unsuccessful due to management’s resistance to the recommended reforms. While policies are there to support partnership with the private sector, studies have shown that for the partnership to be mutually beneficial and productive, a robust and credible regulatory regime should be in place.
In April 2008 the Bank conducted a scoping mission to do initial assessment of the risks of global warming on the groundwater and its impact on water utilities. Given that small towns and cities account for the bulk of urban population growth, and the effects of climate change—such as lowering or depletion of the groundwater table, seawater intrusion, and land subsidence—should be mitigated, there is a need to expand the assessment of groundwater nationwide and come up with a groundwater management plan that outlines appropriate actions and strategies suitable in different parts of the country. Responding to a near-crisis situation, the Philippine government privatized Metropolitan Waterworks and Sewage System, the state-owned utility in 1997.
A 25-year concession contract was awarded to Manila Water Company, a private water and wastewater concessionaire. Today, with IFC’s help, Manila Water has transformed the public utility into a world-class provider—showing that water privatization can succeed economically and deliver for the poor. IFC acted as transaction adviser in structuring the concession and provided a $15 million investment in equity.
It granted three $30 million loans to help finance infrastructure rehabilitation, expanding water, sewerage, and sanitation services to Manila’s low-income areas. In addition, it brokered a relationship with a local microfinance institution and helped develop a sustainability strategy and sustainability report, and contributed to company’s corporate governance manual.
With solid operational and financial performance, Manila Water expands service to
an additional 100,000 people in low-income neighborhoods every year. It also works
with partners to protect watersheds vital to the city’s water supply. Since its contract began in 1997, Manila Water has achieved significant improvements in water quality and availability, with a particular emphasis on service to poorer areas. The company has almost doubled service coverage (from 325,000 to 600,000 households) and the volume of water running through its distribution network (from 440 million to 864
million liters).
Water loss is down from 63 percent to a record low of 35 percent. Manila Water accomplished these improvements in a cost-effective manner that has earned it growing profits every year since 1999. The company successfully launched an IPO in 2005, raising an additional $65 million to invest in the continuing rehabilitation and expansion of the water infrastructure.
Lessons Learnt
Based on implementation experience
since the Strategy, lessons have been learnt both about the process and political economy of reform as well as on technical sector issues. First, reforms must include appropriate incentives. This was demonstrated during the restructuring of the NIA when opposition from employees was sufficient to hold up the process; retirement packages had to be offered to the affected staff to ease the transition.
Second, while end-user participation is critical, absence of a properly functioning apex regulatory body will further increase the fragmentation in the sector. As institutional issues have become one of the obstacles in the management of water resources, an apex regulatory body can subsume the interim functions of several regulatory units and come up with a framework towards integrating management of water resources in the country.
Finally, the Bank has an opportunity to demonstrate an integrated water quality management approach to cleaning watershed areas in the Manila Bay-Pasig River-Laguna Lake Basin, especially given the momentum from the recent Supreme Court ruling to clean-up the Manila Bay.
Directions for Future World Bank
Group Engagement
PIDP is scheduled to be implemented from October 2009 to March 2015, and will
contribute to the government’s objectives of increased agricultural productivity and
enhanced food security, through its focus on irrigation sector restructuring and reform and rehabilitation and modernization of existing irrigation systems.
The Philippine Government recognizes the importance of private sector participation in the provision of public infrastructure, particularly in the water sector where
huge capital investments are required. The Bank has supported this approach through
the recently closed LGU Urban Water and Sanitation Project, which piloted publicprivate sector participation (PPP) such as the design-build-lease (DBL) contracts in small towns, concession contracts, management contracts, and even organized providers towards sustainable community-based systems. Currently, private commercial banks and donor agencies are participating in successor projects such as Water Revolving Fund of JBIC and USAID.
With the increasing demand for the provision of safe and potable water to the urban
and rural population, irrigation, and other uses, a detailed knowledge of groundwater
and surface water resources is essential. An assessment of water resources to be applied as a tool for water use regulations is critical in urban areas, with due consideration of the effects of climate change.
次回は中央アジア。世銀も比国のIWRMは諦めたようだ。
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