Development of a coherent monitoring framework for post-2015 water targets

Development of a coherent monitoring framework for post-2015 water targets PROGRAMME SUMMARY Lead At the conclusion of the Millennium Development Goal (MDG) process water sector monitoring is uncertain and fragmented. As water is critical to many other development challenges a more holistic water agenda, including water resources and wastewater management is needed. Regardless of the outcome of the post-2015 process, the water sector at large requires a coherent, robust monitoring framework based on improved data acquisition and analysis to track progress and provide a credible platform for sector advocacy and investment decision making towards optimum health, environment and economic gains. Summary Sustainable water management needs to become a priority in the post-2015 period to reduce waterborne disease, protect the environment, manage competing water demand, increase water efficiency, avoid water losses, mitigate disasters and support economic growth. In the MDG period access to safe drinking water and sanitation (WaSH) was monitored under the JMP 1. This triggered achievement of the MDG target on water and strong progress on sanitation. There were no targets for wastewater and water quality management (WWQM) and water resources management (WRM) in the MDGs and consequently little progress was made. Post-2015 negotiations indicate that a broader water goal covering WaSH, WWQM and WRM is required and likely to be adopted. Whatever the outcome of the Sustainable Development Goal (SDG) process will be, the proposed programme will support the development of a much needed, coherent post-2015 monitoring framework for the water sector. Specifically, it will develop monitoring mechanisms for WWQM and WRM that were missing in the MDG period. Key expected outputs will be global baseline reports and periodic reports tracking progress for the post-2015 development period. The outputs will form a credible platform and strongly influence post-2015 sector technical advice, decision making and political engagement. A preparatory period of 8 months to the end of December 2014 will be used to explore, present and select the most effective monitoring mechanism options for WWQM and WRM, related coordination and governance structures among involved stakeholders and consolidate institutional ownership, partnership and commitment. Coherent sector monitoring will further contribute to evidence based water sector management and investments and thus support outcomes under all other water dependant and related post 2015 focus areas. SDC has committed CHF18 million over 3 phases conditional on a successful opening phase and the partnership securing co-funding from other donors in 2014. 1 WHO/UNICEF Joint Monitoring Programme (JMP) for Water Supply and Sanitation 1

PROGRAMME DESIGN 1. Context At present, there is no global monitoring mechanism to track progress for the entire water sector. Sustainable water management needs to become a priority in the post-2015 period to reduce water related disease, protect the environment (including climate change adaptation), manage demand from competing uses, enhance water efficiency gains and mitigate risk from water related disasters. This is especially important in view of demographic and social changes and the need for more equitable economic growth to sustainably reduce poverty. Each year 1.8 million people die from diarrhoeal diseases, mostly children in the developing world. In a changing world with rapid unplanned urbanization, untreated wastewater from households, industry and agriculture is degrading water bodies and polluting fresh water sources. As water demand increases equitable allocation balancing needs for food production, industry and domestic use alongside ecosystem needs is becoming increasingly difficult and competitive. Management of the water cycle also underpins economic growth and progress in other sectors including universal access to health, food and energy security and disaster management. Ultimately, poor water management may lead to increased tension and conflict. In the MDG period target 7c on access to safe drinking-water and basic sanitation was monitored under the JMP 2. The result was increased global attention, political commitment and investment leading to the achievement of the MDG target on water and strong progress on sanitation in developing countries. However, water resources, wastewater and water quality were left out. Key outputs 3 in preparation for the post-2015 development agenda indicate the possible adoption of a broader water goal incorporating wastewater and water quality management (WWQM) and water resource management (WRM) relevant for developing and developed countries alike. Regardless of the results of the SDG process, a coherent and efficient monitoring system for water at large will be needed it should provide global comparisons on progress and guide donor and national investments towards priority interventions. Existing monitoring for WaSH is well established. By comparison, WWQM and WRM global monitoring capacity is weak, the sectors are more complex and existing data availability is sparse - especially for WWQM. Urgent work is needed to initiate a post-2015 monitoring mechanism for WWQM and WRM aspects and thus ensure a coherent monitoring approach for the sector. 2. Relevance Sector monitoring will be pivotal in triggering political commitment, tracking progress, stimulating investment and promoting a less compartmentalised understanding of water in the post-2015 period. WaSH monitoring is well established through the JMP and the UN-Water Global Analysis and Assessment of Sanitation and Drinking-water (GLAAS). Initial WRM monitoring has emerged through collaboration with UNEP, UNDP, GWP UN-DESA and UNECE. Expanding this support to cover WWQM and to catalyse a coherent monitoring system aligns with the High Level Panel 2 WHO/UNICEF Joint Monitoring Programme (JMP) for Water Supply and Sanitation 3 Key output include: Secretary Generals High Level Panel Report May 2013, Outcomes of the Open Working Group session on water and sanitation May 2013, UN-Water Technical advice to the OWG on a Water Goal January 2014, and the Compendium of Focus Areas from the OWG chairs February 2014. 2

on the Post-2015 Development Agenda (HLP) and Open Working Group on SDGs (OWG) directions for the post-2015 agenda. The programme enlarges and complements existing, successful engagements in sector monitoring (JMP/GLAAS) and is a key instrument in providing the necessary evidence of feasibility and measurability of a global water goal. Coherent sector monitoring is however needed for any post-2015 scenario in order to contribute to global water crisis mitigation efforts. 3. Vision and Objectives Vision: A coherent monitoring framework for water in the post-2015 period The overall objective of the intervention is to provide credible data and analysis on the status of the water sector at large. The data set will act as a platform for advocacy and investment by Member States and donor partners targeted to priority areas to achieve health, environment and economic gains. The specific objectives below fill gaps in existing monitoring namely WWQM and WRM and contribute to align data collection and reporting for the sector. Objective 1: Harmonise water sector monitoring mechanisms for WaSH, WWQM and WRM. Outputs: 1. An agreed set of post-2015 monitoring reports for the water sector at large designed, based on assessment results and identified gaps (building on work already in progress and in coordination with UN-Water). 2. Data collection methods for each report (WWQM, WaSH and WRM) that minimise duplication and optimize use of traditional methods (e.g. national data, household surveys, utility and regulator-provided data) established, including new and novel approaches (e.g. remote sensing and derived data). Objective 2: Establish and maintain a global monitoring mechanism for WWQM and WRM 4 (in synergy with WaSH approaches) that tracks progress in the post-2015 period. Outputs: 3. WWQM monitoring framework/protocol developed with Member States and experts. 4. WRM monitoring framework/protocol developed with Member States and experts. 5. Capacity development for data collection, quality assurance and analysis. 6. 2016 baseline report for WWQM and WRM and subsequent recurrent biennial progress reports elaborated. 7. Operational framework for the inter-agency monitoring body/ies (including coordination and governance mechanisms) for WWQM and WRM defined and established. Objective 3: Extend monitoring to cover analysis of inputs and enabling environmental factors that influence progress. Outputs: 8. From 2018, biennial reports covering inputs and enabling environment factors (drivers and bottlenecks) that influence progress in WWQM and WRM (similar to GLAAS). 4 depending on outcome of opening credit phase 3

4. Intervention Strategy Promote a more balanced approach through harmonization of water sector monitoring. The success of the programme relies on monitoring the entire water sector to better support equitable investments. The design of monitoring frameworks for WWQM and WRM must anticipate policy needs and accommodate new/emerging monitoring instruments. Develop a global water sector monitoring mechanism with improved engagement of member states. A much greater interaction with member states in the development of the monitoring mechanism will result in a more political buy-in and limit top-down agency driven approaches. Work to define a comparable standard which is progressively refined. This starts with the identification of indicators 5 and collection of data to achieve reliable comparisons between countries and over time. The global dimension will also require central compilation and quality assurance. Build national capacity. Cost effective data acquisition is about promoting good national monitoring frameworks and using existing approved surveys from independent national agencies. Long term sustainability of the monitoring will depend on local capacity development. Further develop the monitoring mechanism to include an analysis of inputs. Building on relevant recent WRM reports, the addition of a GLAAS type report to the newly developed monitoring mechanism will enable countries to make more informed decisions on investment priorities and determine policy shortcomings and gaps. Progressive refinement. The first reports will utilize a basic core reporting framework that shall be improved over and expanded each year to cover more complex aspects. 5. Scale up, sustainability, end of project vision The programme is expected to reach global scale by the end of phase 1 of the main credit with the publication of the global baseline report. Subsequent improvements will relate to 1) improving data quality and analysis, 2) deeper analysis of enabling environment factors (e.g. similar to GLAAS) from phase 2, and 3) greater participation of Member States in data acquisition and use. The monitoring mechanism will close at the end of the post-2015 period. At that point, the mechanism can be reassessed for the subsequent development period. 6. Beneficiaries and outreach Primary beneficiaries of the programme will be formal sector institutions (governments, river basin organizations, etc.) but also civil society organizations and private sector, especially in developing countries, through assistance to rationalise their water sector monitoring and enabling more focussed investment through national budgets and donor assistance. The programme will ultimately contribute to water and environmental sustainability for all and strengthen the foundations of health, economies, environmental protection and regional security. Data disaggregation to highlight inequalities will further benefit those most in need. 7. Governance and collaborative framework 5 Using the UN-Water technical advice on a global water goal as a starting point. 4

The programme will be jointly led by UNHABITAT, UNEP and WHO as the agencies with the mandates central to WWQM and WRM namely urban, environment and health respectively under the umbrella of UN-Water. The participating UN bodies will manifest their core institutional interest, commitment and support by signing a letter of agreement at the level of senior officials of each agency for the initiative. The collaboration among the UN agencies will be formalised in a Memorandum of Understanding (MoU) and expanded to a detailed governance and operational framework (Output 7) in Phase 1. Day to day management of the programme will be ensured by a joint team including dedicated technical staff from each agency and senior managers, liaising regularly with UN-Water for coherence with other activities of UN-Water constituencies. A Strategic Advisory Group (SAG) will be established to assist the joint team bring independent, strategic thinking into all aspects of the WWQM and WRM monitoring mechanisms, their management and political outreach. It is envisaged that the SAG will meet at least twice a year and be composed of independent technical and policy experts with a strong track record in strategic thinking and leadership covering the broad water sector. The lead agencies will aim to build an alliance of agencies and institution with an interest in WWQM and WRM. The alliance is expected to include other UN system agencies, selected representatives of Member States (government institutions and river basin organizations), private sector actors and other institutions who have an established track record in the fields required such as leading research institutes, FAO, UNESCO, WMO, UNSD, IWMI, IWA, OECD, GWOPA, Aquafed, donor partners, IBNET as well as WB/WSP and regional development banks active in sector monitoring. The alliance would also include GWP, UNDP and SIWI who assumed a key role in developing the WRM status reports in 2008 and 2012. The partnership will work within the context of the UN-Water coordination mechanism. The alliance will engage Member States as collaborating partners by promoting country-led monitoring approaches. 8. Estimated duration and budget of the entire intervention SDC has committed CHF18 million over 3 phases conditional on a successful opening phase and the partnership securing co-funding from other donors in 2014. The joint team are seeking co-funding early in the preparatory phase by formalising existing interests in the programme by different agencies and leveraging additional support from complimentary programmes within each agency. 9. Baselines The critical early output of the programme will be the publication of the post-2015 baseline report for WWQM and WRM (Outputs 6) within 18 months after the final announcement of post 2015 targets and indicators. Political engagement in 2014-15 and completion of outputs 1-5 are critical in establishing a credible baseline. The model that generates the baseline data will be refined and revisited year-on-year as data availability and methods improve. 10. Risk assessment Critical risks and planned mitigation identified are: Outcome of the post-2015 negotiation by the OWG is largely unknown. OWG announcement is expected by July 2014. Political engagement throughout 2014-15. 5

Availability of wastewater data is sparse. WRM monitoring exists but it is not harmonized or reported periodically and globally. Institutional buy-in to the initiative by UNsystem, donors and Members States. The potential risk of a global water crisis calls for coherent water sector monitoring independently from SDG process outcomes. Traditional and modelled or derived estimates will be combined. Transform existing WRM status report to respond to needs of post-2015 period. Adequate consultation and feedback into tool development and application through various for a. e.g. the SWA 6 partnership. Formal declaration of institutional commitment by WHO, UNHABITAT, UNEP (and UN-Water) and MoU formalizing the collaboration between the leading UN agencies. A detailed risk assessment will be completed during the preparatory period as part of the elaboration of the main project. WHO s track record with the JMP and GLAAS reports and in developing global monitoring methods and normative products allow to lower risk patterns. 11. 2014 Preparatory period A preparatory period is required to undertake an in-depth assessment of available data, outline monitoring mechanism options and understand the extent to which options respond to stakeholders needs. The process will address the appropriate balance of country versus global data requirements and begin to put WWQM and WRM monitoring on the same level as WaSH. The preparatory period will comprise 6 main activities: 1. Development of possible post-2015 monitoring options for WWQM and WRM. It is important that a range of options are reviewed, as the cost implications and available capacity in countries will play an important role on feasibility, political buy-in and institutionalising the monitoring approaches for sustainable long-term implementation. Decisions will also need to be made on priorities in monitoring. The development of monitoring options will include analysis of the existing water sector monitoring mechanisms and needs. Although there are many existing monitoring activities, some are very weak (for example sporadic information on waste water) whereas other are further developed but often only applied in some countries (WRM country level plans, etc.). Small task teams (led by consultants) would be convened to review and assess what exists and identify gaps. 2. Consensus building on the most promising option(s), ratified at a global meeting. Global monitoring approaches are required to ensure conformity in reporting. The critical issue is to ensure, as far as possible, the active engagement of member states. At national level key institutions such as national bureaux of statistics will also be engaged. 3. Preparation of a partnership and alliance framework for Phase 1. A MoU between the principal partners leading the monitoring initiative will be developed and signed 6 Sanitation and Water for All. 6

during the preparatory phase. This will be anticipated by the signing of a letter of intent or similar institutional commitment involving all three co-leading UN agencies. 4. Development of the full programme proposal. A fully-fledged proposal, accurately costed, will be submitted at the conclusion of the preparatory phase. The proposal will include formal agreements from co-financing partners/promoters for phase 1. 5. Ensure availability of sustainable funding for Phase 1 (including private sector, foundations etc.) and exploration of potential funding for Phases 2 and 3. Critical to the long-term success of the monitoring initiative is broad-based, participatory funding support, similar to the current situation with JMP/GLASS. This will include a wide variety of actors and, also most importantly, counterpart funding from participating member states. As countries progressively realise the benefits from improved monitoring it is anticipated that levels of counterpart support will increase. 12. Open issues for preparatory period The following are considered critical issues to seek clarification before development of the full proposal: Stock-take of WASH, WRM, WWQM processes & available tools including JMP, Aquastat, GEMS Water, WWDR and others to understand pros and cons and identify gaps. Assessment of capacity to monitor, and its implications, at both regional and country level, including costs. Deeper understanding of how WRM will be covered within the partnership structure. Assess the political buy-in (including sectors other than water and highlighting nexus approaches). Solicit the level of interest from other partners, including potential investors such as development banks. Anticipate the various possible outcomes of the SDG process, making the proposed monitoring framework flexible for different monitoring scenarios. Identify effective alliances within and outside the UN-system, international bodies and member states. Assess potential alliance partners monitoring expertise, record and capacities. 7