Ex-post Evaluation

1. Outline of the Project

Country:

Philippines

Project title:

The Emergency Rehabilitation Project for Typhoon-damaged Water Supply System in Leyte

Issue/Sector:

Water Supply

Cooperation Scheme:

Grant Aid

Division in Charge:

Grant Aid Management Department

Total Cost:

2,799 million yen

Period of Cooperation

FY 1993-1995

Partner Country窶冱 Implementing Organization:

Local Water Utilities Administration (LWUA)
Leyte Metropolitan Water District (LMWD)

Supporting Organization in Japan:

Related Cooperation:

1-1 Background of the Project

A typhoon hit the central region of the Philippines in 1991, causing heavy damage to the facilities of the water treatment plant operated by the Leyte Metropolitan Water District (LMWD) which supplied potable water to the devastated area. LMWD had made efforts jointly with the Local Water Utilities Administration (LWUA) to undertake several emergency measures to rehabilitate LMWD窶冱 water supply facilities, for example by constructing river embankments and repairing and rehabilitating intake facilities. However, it was difficult to rehabilitate the facilities to their previous capacity, and a drastic rehabilitation program was essential. The government of the Philippines prepared a plan to rehabilitate the LMWD窶冱 water supply facilities which called for urgent attention to construct related-facilities, and requested Grant Aid to the government of Japan in 1992.

1-2 Project Overview

Grant Aid to rehabilitate the water plant and to establish related-facilities was procured, in order to rehabilitate the damage to the LMWD窶冱 water plant caused by the typhoon.

(1) Overall Goal
To provide a stable supply of potable water in the LMWD service areas.

(2) Project Purpose
To restore the capacity of LMWD窶冱 water plant damaged by the typhoon to the level prior to the typhoon (26,000m3/day).

(3) Outputs
1) To rehabilitate and construct the related water supply plant.
2) To introduce an operation system.

(4) Inputs

Japanese Side:

1,295 million yen(Phase I, 1993)

430 million yen (Phase II,, 1994)

1,074 million yen(Phase II,,1995)

Philippine Side:

Land

2. Evaluation Team

Members of Evaluation Team

Rey Gerona, JICA Philippine Office
Edgar Kintanar, Center for Local Development Studies

Period of Evaluation

December 13, 2002 窶錀 March 12, 2003

Type of Evaluation:

Ex-post Evaluation by Overseas Office

3. Results of Evaluation

3-1 Summary of Evaluation Results

(1) Impact
In a questionnaire given to sixty residents of Tacloban City and the five adjoining towns that received potable water from the Leyte Metropolitan Water District (LMWD), 64% responded that water supply from faucets was stable after the project was completed. This can be attributed to LMWD窶冱 technical skills in safe water treatment and operations and the stable amount of water supply from the water treatment plan. However, 32% responded that the water pressure from faucets was low and that there was no water supply on the second floor. This is primarily due to the fact that the current water production is sufficient to supply water for 14,000 connections, but there are actually 24,064 connections which definitely exceed the water supply capacity. Another factor could be the undersized water pipes used in the distribution system with flow capacity not large enough to cope with water usage.

Ninety-one percent stated that they were satisfied with the quality of the drinking water. After the project, the quality of the water treated by LMWD has met the standards set by the Philippine National Standards for Drinking Water (PNSDW). However, there is still some room for improvement as there were complaints of a muddy tint to the water and salty odor in some areas.

It was also reported that areas with a stable supply of water could raise chickens and pigs and grow vegetables, and in some cases this helped to raise revenue.

(2) Sustainability
Due to the damage incurred in the typhoon, the daily supply of potable water fell to 21,000 m3 per day, but the project brought this figure up to 26,000 m3 per day. It is currently maintained at this level because of the stable supply from the Binahaan watershed and the fact that the treatment plant continues to treat water appropriately and maintain the facilities. LMWD began operating a dormant treatment facility that currently produces 32,000m3/day. The increase in water production enabled LMWD to supply water to more people, from 58,700 in 1991 to 130,000 in 2002. This meant that the water coverage had increased by 32.7% at the time of project completion. However, despite the increase in supply rate every year, the population is increasing faster than the LMWD can increase its supply rate to the service area. As of 2002, the water supply rate was only 36% of the total population and should be increased.

On a technical level concerning the operation, the retention of staff in the LMWD is high. Out of the 37 counterparts in the project, 31 are employed with LMWD. The transfer rate of personnel is low so the staff窶冱 experience and skills remain within the organization. The number of staff has increased from 135 at the time of project completion to 222 in 2002; 82% of whom are full-time staff. LMWD established the Training Division in 1998 and improved its staff training. Specifically, the new staff and veteran employees form teams, adopting an individual coaching system to provide technical guidance on the job in an attempt to improve staff窶冱 management capacity of the treatment plant and techniques related to water treatment.

LMWD is a well-established organization and receives support from external related organizations. Also LMWD promote cooperation with LWUA, for example in the filed of human resource development. LMWD accepts instructors from LWUA to train staff and also carries out technology exchanges.

The DENR helped LMWD in protecting and preserving the watershed areas and rivers that supply raw water to LMWD窶冱 treatment plan. Local government units also provide continuous policy support to LMWD. Additionally, the technical exchange with the Water Districts Association of the Philippines organized in 1998 is undertaken. Facilities and equipment are being operated and managed appropriately, and the manual prepared during the project is being utilized. There are 85 staff allocated to the Water Resource Procurement & Treatment Facilities Department, which is in charge of facility and equipment management within the LMWD, and they are responsible for daily checks, problem-solving and repairs. One problem remaining, however, is that it is impossible to procure certain spare parts within the Philippines.

LMWD窶冱 revenue increased by 53.8% between 1996 and 2002, due to an increase in the water rate from 6.50 pesos per cubic meter in 1991 to 9.50 per cubic meter in 1997, and a decrease in the unaccounted water (water that the water treatment plant supplies but for which it is not possible to collect fees for due to water leaks or stealing). In 2002, 95.6% of the total revenue was generated from its water sales, making LMWD a financially independent organization. Unaccounted water decreased from 34% in 1997 to 28% and it is a result of LMWD窶冱 efforts to repair water pipes and water meters and put a stop to illegal water collection. Funds for maintaining the water facilities were stable and secure after the project was completed, and took up 45% of the total revenue. However, LMWD is not able to cover the cost of expanding the water networks with its own capital, therefore it has requested a 2.2 billion peso loan from the Danish International Development Authority (DANIDA).

3-2 Factors that promoted realization of effects

(1) Factors Concerning the Planning N/A

(2) Factors Concerning the Implementation Process
1) LMWD is a well-established organization, and the director exercises leadership. LMWD prioritizes the improvement in skills of its staff. This ensures the appropriate water treatment and maintenance technique, and results in LMWD窶冱 stable water supply services.
2) The related organizations share the idea that securing a stable source of raw water is also a crucial for supplying water. Therefore, in order to ensure a stable source of raw water in Tacloban city, LMWD works with LGU and forbids excessive quarrying from the rivers that supply the raw water. In this manner, the cooperative structure with the related institutions such as DENR and the Department of Health (DOH) would be one major factor for the project sustaining its effects.

3-3 Factors that impeded realization of effects

(1) Factors Concerning the Planning
N/A

(2) Factors Concerning the Implementation Process
The water production volume and supply connections needs to be expanded since the water supply does not meet the current demand for water at the time of evaluation.

3-4 Conclusion

After the project completion, LMWD sustained the water production capacity and has been able to increase the water supply rate and provide safe potable water. Although water in some areas seems, it is necessary to improve water quality, the water quality within the treatment plant and from water faucets satisfies the PNSDW standard. Since LMWD is an independent organization and receives cooperation and support from related organizations, it has a firm foundation backing up its water supply business. A policy aiming to privatize the Water District offices has been set, and LMWD窶冱 discretionary authority will likely expand.

3-5 Recommendations

(1) The water production capacity of the LMWD system should be increased since the actual number of water connections currently exceeds the ideal level.

(2) It is recommended that LMWD consider conducting inclusive market studies and technology studies to develop a system that can take advantage of the facilities and equipment procured in the project.

(3) LMWD is considering improvements in its current inventory management system for spare parts and strengthening its procedures for purchasing spare parts that need to be imported from overseas. In this respect, it is expected that JICA looks into the possibility of providing post-project support such as giving LMWD follow-up information regarding the spare parts that must be imported.

3-6 Lessons Learned

(1) In the project, the strong ties between regional administrations and other related organizations were of key importance. In projects involving water services, a close cooperation between the implementing organization and the operating institution is crucial in order to sustain project effects and promote the sustainability of the project.

(2) Staff training and equipment operation manuals were prepared in the project. Focusing not only on building facilities, but also on human resource development will sustain the project effects. Therefore, staff training manuals should be prepared and be utilized.

3-7 Follow-up Situation

N/A