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Tuesday
10.15 - 12.15 SUSTAINABLE DEVELOPMENT A Review of Fundamentals and an Evaluation of Infrastructure Projects in Nigeria K. A. Adeola abstract PART I - FUNDAMENTALS
3 FACTORS MILITATING AGAINST SUSTAINABLE PRODUCTIVITY IN DEVELOPING COUNTRIES
PART II - CASE STUDIES 2 THE NATIONAL WATER REHABILITATION PROJECT - NWRP
3 THE NATIONAL RURAL WATER SUPPLY PROJECT - NRWSP
PART I - FUNDAMENTALS From an underdeveloped countrys point of view, when sustainable development is mentioned, what comes to mind is the ability of the country to provide for itself in a self sustaining manner. This usually implies the provision of the basic needs of the people including water, food, housing and sanitation; the alleviation of poverty for the people; and the provision of basic infrastructure to make living easier and more enjoyable. For the professionals in these countries, it implies being able to develop their own resources and make meaningful contribution to national development and world progress. Issues of concern to them include global competition and opportunity to participate in national development, appropriate technology in the face of rapidly changing technologies, capacity building and utilisation, and of course the theme of this conference, sustainable development. Nigeria and most African countries fall in this category. From a developed countrys perspective, however, what comes to mind is the maintenance of the existing quality and style of life in the face of the changing environmental factors which include the destruction of the echo-system by over-exploitation and contamination of natural endowments of the world. Issues like air pollution, depletion of the ozone layer, disposal of toxic wastes, and conservation of wild life immediately take precedence. Sandwiched between these two are developing countries who have significantly met their basic requirements and are in the process of launching into the advanced phase of development. These tend to perceive the discussions on sustainable development as attempts to make it more difficult for them to move into this phase. They need to industrialise, produce and consume more energy, export their products, join the space race, and do all what developed countries are doing. All these perspectives are, however, not mutually exclusive. Indeed they are only parts or the development continuum. The rich want to get richer and preserve their quality of life. This somehow interprets as the preservation of the status quo, except when it threatens their objectives as in the case of environmental sustainability. The poor want to get away from the clutches of poverty by changing the existing modus operandi, which they perceive as keeping them in poverty. It is, therefore, relevant to start the discussion on sustainable development by trying to define what it is in a simplified manner as follows: 2.1 Development Development in the human context may simply be defined as the efforts of man to:
To meet his needs is a primary requirement of man. The primary needs include potable water, food, housing, clothing and good health. Integral with these are basic education, control of birth, acquisition of basic skills, and poverty alleviation. Parameters for measuring the attainment of this include life expectancy, childhood mortality rate, prevalent diseases, literacy rate, disposable income, etc. Making life easier is also very important, although less so than to meet his needs. For example, having one water point in a community of ten houses might provide them with enough water to meet their needs. They will, however, have to go with buckets to fetch the water, a laborious process that uses up the manpower available. Similarly, going to the outhouse to ease oneself might be provided hygienically, it is not as convenient as having the bathroom indoors. The primary means of making life easier in todays world include availability of electricity, pipe born water, good mass transportation and health care. Integral with this will be local industries, secondary education, technical skills and social infrastructures. Parameters for measuring this include GDP, disposable income, power consumption, unemployment level, availability of small-scale industries, available skills, among others. Improvement in the quality of life is reflected by the amount of time available for non-critical activities, and the use to which it is put. This stage assumes the two previous stages. Indicators of this stage include power consumption, telecommunication, recreation and travels, and high level education, among others. Advancement of the frontiers implies the pursuit of research and development to better understand the forces of nature and ultimately use them for human development. This is an open-ended frontier that presently includes research into the human genome, computers and robotics, space travels, and telecommunication, among others. This stage is required for human fulfilment. Clearly, there is a great deal of movement from one category to the other. What is advancement in the quality of life today will tomorrow gravitate into the category of improved quality of life. Examples of this include the cellular phone and satellite television, which just over ten years ago were considered advancement in the quality of life but have rapidly moved into the improvement in the quality of life category. Similarly, what is considered improved quality of life today will gravitate into ease in the quality of life category. Air travels, fast speed trains and the telephone are some of the indicators of the improved quality of life that are now taken for granted. Perhaps the only non-changing category is the primary needs category. Man has still not found it possible to live without air, water, food, housing and good sanitation, or to take them for granted. He, however, continues to make demands on what he needs to ease his way of life. 2.2 Sustainable Development The World Commission on Environment and Development in its 1987 report, "Our Common Future", generally referred to as the Brundtland report, defined sustainable development as "development that meets the needs of the present without compromising the ability of future generations to meet their own needs". In the context of the classification of development stages in paragraph 2.1 above, this may simply be defined as the ability of man to meet the four categories of development without the following adverse effects:
Scope of Sustainable Development The strategy paper on sustainable development prepared by FIDIC identified three main areas to be addressed in evaluating sustainable development. These are the environmental, economic and social dimensions. The paper then developed detailed objectives and action plans for developing professional services for each of the sustainability dimensions as shown in the table below.
It is necessary to evaluate these dimensions for adequacy in capturing all the aspects of sustainable development as defined above, and especially as perceived by developing countries professionals. Is it sufficient for a project to pass the tests of environmental safety, economic viability and social acceptability for it to be sustainable? A global evaluation of the above table shows it as an attempt to adapt the existing work style of industrialised nations to accommodate sustainability criteria, rather than a fundamental review of how work should be done. Issues of primary concern to developing countries, including poverty alleviation, global competitiveness, development of competencies and self-dependence are not explicitly addressed. On the other hand, those of concern to the developed nations, mainly environmental problems, are well outlined. For the primary requirements of water, food, health and shelter, what is required is the efficient production of these items, with the priority on the development of local capacity to manage the production in a sustainable manner. In order to do this, however, issues such as education, skill acquisition, creation of small-scale industries, job opportunities, use of local personnel and resources and several others take on very significant roles. For the secondary needs of improvement in the quality of life such as the provision of pipe borne water, electricity, secondary and tertiary education and ability for self-development, an attitude of efficient but unconditional development must also be adopted. It is only beyond this point that the conditions as outlined by the FIDIC strategy paper may be applied. It must be noted that the quality of life of the industrialised countries compared with developing countries as measured by gdp is more than a factor of five. Unless and until this is significantly bridged, the realisation of a common platform for sustainability will be difficult. We may have a level playing ground, but clearly several of the players are handicapped. It is clear that the requirements for sustainability as perceived by developing countries are not captured in the model that includes the environment, economic and social evaluation only. It seems as if the dimension of sustainable production is assumed. In the developing nation model, sustainable production must be a prelude to sustainable development and the three criteria of environment, economic and social considerations. It might be argued that this concept could be accommodated within the economic and social contexts. This would not be valid, as it is not difficult to demonstrate that the most environmentally friendly, economically viable and socially acceptable option may not necessarily be sustainable when production is considered. Several World Bank sponsored programmes that have failed woefully in the developing countries serve to validate this. It is, therefore, proposed that a forth dimension of sustainable production be added to the already proposed three. Until sustainable production has been universally achieved, it should stand in its own right. It might in fact be the distinguishing factor between developed and developing countries when sustainable development is evaluated. 3 FACTORS MILITATING AGAINST SUSTAINABLE PRODUCTIVITY IN DEVELOPING COUNTRIES There are many factors militating against the achievement of sustainable productive capabilities by developing countries. Many, and perhaps the most important of these, are with the developing countries themselves. The developed countries are, however, quite contented in capitalising on the inadequacies of the developing countries, not only in maintaining the status quo, but also in creating even more difficult working environments for the developing countries. Some of the factors considered pertinent are enumerated as follows: 3.1 On the part of Developing Countries Poor Governance: Perhaps the greatest problem of the developing countries is poor governance. After centuries of slavery and colonisation, the emerging governments lack the depth, know-how and social infrastructures necessary for good governance. Governments and people have not come to terms with their complexities of religion, tribe, power and politics. The transition from colonialism to self-governance has not come as a result of natural development, but rather, in a traumatic manner. The traditional rulers were replaced by the new politicians with more experience in fighting for liberation than in national development. The resultant effect has been political instability, military coups and patricidal wars in most of these countries with the attendant wastage of their lives and resources. Illusion that there is Short Court to Development: Governments of some developing countries have continued to act as if there is a short court to national development. Rather than concentrate on the development of their own people and resources, they have continued to employ the services of other nations and nationals for their development. While they get the projects in relatively good times, several failures occur during operation and maintenance phases of the projects. This has left their own people and resources undeveloped with the continuously widening gap between the rich and the poor. Leaders of developing countries must learn that it is only by developing their own people that there can be sustainable development. The second way is the illusion that their countries can be developed by foreign investment. It is only a people who are trained and mobilised that can benefit from the presence of foreign expertise and capital. Without the training and motivation, foreign investments will continue to be a way of mining the resources of the host nations as the technological and managerial benefits will not be derived. For example, Nigeria has continued to attract foreign investment in the oil sector, even during our difficult periods. In these 50 years, Nigerians have not acquired the technology for oil production and still wholly rely on the foreign investors. 3.2 On the part of Developed Countries Lack of political will: The developed world understands the political game only too well. They lack the political will to ensure sustainable development in the developing world, and the only time they act is when it threatens their own livelihood, as in the case of the environment. Several means of institutionalising dependency have and continue to be made. Some of them are as follows: Rules of procurement of goods and services that place more emphasis on nationality and experience than the acquisition of capability. This is the singular most important rule that reduces the ability of developing countries to acquire competence. The world does not seem willing to train the professionals in the developing world. Trading with oppressive and corrupt governments when it is economically beneficial to them, but punishing the nationals of these countries with other policies. In Nigeria, for example, the developed countries continued to trade actively, both legally and illegally with the government of Nigeria while treating the country as a pariah state among nations. Military and autocratic heads of states are always able to transact illegal businesses with their financial institutions while the country is held to ransom over borrowings. The General Agreement on Trade and Tariff encourages the free movement of goods. At the same time, strict rules are being enforced to limit the free movement of people. It is amazing what people have to go through to obtain visas when travelling from developing to developed nations while most developed nations do not need visa to for their nationals. These are just some of the issues for consideration.
3.3 On the Global Scene Technology: Next to politics, technology is perhaps the most important contributor to improvement in the quality of life. The gap in technological development between developed and developing nations continues to widen, even much more than the quality of life. The resultant effect of this is bound to be the continuous inability of the developing countries to be self-sustaining and even more dependent on the developed countries. It needs the awareness of the politicians of the developing countries and the understanding of those of developed countries to address this. Globalisation: The resulting effect of the information technology and improved transport system is globalisation. The world has become a global village. But it is definitely the village of those who have and control the technology. It means we all watch the same news and use the same products, all made by the industrialised nations. The consequence of this is the erosion of the social fabric that would have produced the needed efforts to develop. Poverty & Diseases: Poverty is the problem of developing countries, and despite the fact that millions of people die annually as a result, it has still not attracted enough attention from the developed nations. At least not as much attention as is being put on the recovery of debts from borrower nations. Diseases such as malaria and cholera, which are preventable, continue to erode the productive capacity of the people, much more than AIDS. Very little in substantial terms is being done about this on a global level. Environment: The changing environment has been of concern to the developed world, perhaps because it threatens their survival. Even with this, there has been the reluctance to pay the price to reverse the situation. Up till the moment, the toxic wastes and the greenhouse gases have been mostly produced by the developed nations of the world. It is, therefore, surprising that some of them have been so unwilling to commit to the development of the technology to reduce these. 3.4 Sustainable Development in the Nigerian Context Nigeria is essentially in the primary and secondary phases of development, that is, meeting the primary needs of the society, and trying to ease their quality of life. Nigeria is yet to achieve sustainable production, which, as stated above, is an essential precondition for sustainable development. At the primary level, Nigeria is not able to provide potable water, adequate housing, health facilities and other basic essentials to its large population. Several billions of Naira has been invested in these areas both by the country and by donor agencies. Some of the investment have been borrowed from international financial institutions and have resulted in a large debt burden to the nation. As a result of the lack of production capability, there have been very little results to show for these investments. With the dynamics of the information age and globalisation, it is no longer possible to gradually move from one stage of development to the other. The knowledge of what is happening in other places puts a lot of pressure on the developing nation to learn quickly and transform into the two advanced stages of development. Nigeria thus craves the luxuries of advanced nations such as satellite television, telecommunication, road, rail and air travels, modern recreational facilities and many others. The consequence of this is that rather than acquire production capability, Nigeria acquires the products and consumes them. Donor agencies and international financial institutions are ever too ready to provide funds for supposedly local developments, provided that the capacity that is developed is in the donor or lending nations own country. The national governments compound this by not appreciating the need to build local capacity and sing the tune of level playing field being sung by the international community. At one end, the world is shrinking to a global village, powerful multinationals with bigger economies than most nations are emerging, and governments of developed countries are so dominant. At the other end, Nigerian has had military rule for most of its forty years of independence and the present government is still trying to find its feet, infrastructures for production are lacking, poverty and the attendant issues of ethnicity, religious bigotry and diseases are prevalent. It is against this background that the issue of sustainable development in Nigeria is discussed. The following table presents a few of the basic human requirements and the corresponding stages of development for the four categories of human needs. Some of the basic requirements, such as water and housing needs, are fulfilled at the ease of life category, and it is difficult to see what improvement can be made. Others, such as communication, are weighted towards the advancement end with very much yet to be done. Others, such as health and environment, seem to spread evenly through the four categories. Table 1 Human Needs Categorisation
PART II - CASE STUDIES Two case studies are used to evaluate the efforts at sustainable development in Nigeria. Both cases are in the water supply sectors. The first is the rehabilitation of urban water supply system, a project partly financed by the World Bank with procurement along the World Bank and other international lending agencies guidelines. The second is the provision of water the rural areas of Nigeria, a project funded by the Nigerian Government under the Petroleum Trust Fund. The procedure adopted for the evaluation of the projects is as follows: A brief description of the project outlining the objectives, scope, estimated time of completion and consultancy fees is given. The method of procuring services for the projects is then outlined. The objective accomplishments of the project based on the defined objectives are evaluated. Thereafter, the evaluation of the project on sustainability criteria is carried out. The method adopted is to first classify the project into primary, secondary or tertiary needs categories. The method of prosecution of the project is then evaluated for sustainable productivity. The criteria used include skills and knowledge acquired, use of local personnel and products, spin off industries, local capital retention, future dependability on imported services and products and appropriate technology. If the project satisfactorily meets these criteria then it is certified as meeting sustainable production requirement. Depending on whether it is in the primary, secondary or tertiary needs category, the environmental, economic and social considerations are then evaluated. As stated in the preceding paragraphs, the primary consideration is the acquisition of sustainable production capabilities. 2 THE NATIONAL WATER REHABILITATION PROJECT - NWRP 2.1 Brief Description of Project The first project is the National Water Rehabilitation Project under the National Council on Water Resources, NCWR, supported by a World Bank loan of US$306 million. In the middle 1980s the state of potable water supply in Nigeria was poor and was fast deteriorating. The NCWR recognised the problems and sought the assistance of the World Bank in arresting and reversing the situation. The main objectives of the project are as follows:
2.2 Method of Procurement of Goods and Services Three categories of consultants were used for the project as follows:
The Project Management and Regional Consultants were made up of partnerships between local firms and foreign consultants all sourced through the World Bank procurement guidelines. 2.3 Project Performance Evaluation The first of the three components of the project has been successfully completed and a completion workshop was held in July 2000. The capacity of the rehabilitated 188 systems improved from 767,789 m3/day to 1,502,356 m3/day. The ability of the state water authorities to maintain the facilities was not so easy to achieve. By the time of completion of the rehabilitation, the record keeping, accounting and billing systems could not be adequately manned by the workers and development facilitators had to be engaged to give support. Even this did not achieve the desired results and accounting and engineering firms had to be engaged as Institutional Development Consultants to work side by side with the workers to get improved performance. 2.4 Project Sustainable Productivity Evaluation
3 THE NATIONAL RURAL WATER SUPPLY PROJECT - NRWSP 3.1 Brief Description of Project The National Rural Water Supply Project was an effort by government through the Petroleum Trust Fund to provide water to the rural masses of the country. It involved the drilling of over 3,000 new bore holes and the rehabilitation of over 2,500 old ones, provision of hand or motorised pumps as may be applicable, elevated tanks and water points in the 776 local government areas in the country. 3.2 Procurement of Goods and Services The whole programme was managed by a firm of Project Managers who had responsibilities for the management of the appointment of all consultants, contractors and specialist suppliers, and the co-ordination of all project activities. 36 consulting firms were appointed as Project Consultants. Each consulting firm was involved in the baseline survey, appraisal of state and local government water supply needs and consequent selection of beneficiary communities, supervision of the borehole construction, contract administration, community liaison and the provision of maintenance training services to ensure sustainable production. Three classes of contractors were used for the project, based on size, experience and patronage. The large construction and drilling firms constitute the main contractors and were given the largest lots. The local contractors are small drilling firms with adequate experience. These were given smaller size contracts. The third category of contractors did not have any experience and were required to subcontract the technical aspects of the work to the larger contractors. The employment of this category was mainly for patronage. Local firms were contracted as specialist suppliers to the project for borehole pumps, casings, screens, drilling fluid, tanks, pipeworks, etc. 3.3 Evaluation of Project Performance By the time the project was aborted in June 1999 for political reasons, seven of the 36 states had achieved over 80% completion, another 14 between 50 and 80%, eight between 30 and 50% and 7 less than 30%. 3.4 Project Sustainability Evaluation
3.5 Evaluation of the Projects for other Sustainability Criteria The two projects evaluated fall under the primary needs category and are similar with respect to the environmental, economic and social considerations of sustainability. Environmental Impact Assessment This study did not carry out a comprehensive review of all the sources and treatment processes. Information gathered, however, revealed that the sources for the rehabilitation projects had previously been developed and no additional damage was done to the environment. The variety of sources included boreholes, surface intakes and dams. Even if they were new, they would still have been constructed as the benefits deriving from the projects would have outweighed whatever damages would have been caused. Economic Viability Social Acceptability 3.6 Comparative Evaluation of the Projects for Sustainability from Developing Countries Perspectives
The paper reviewed the issues of sustainable development and compared the perspectives of the developing and developed countries. It then postulates that the inability to sustain productivity is the primary problem of the developing countries, and that until this is overcome, the other issues of environmental economic and social acceptability will be secondary to these societies. It identifies poor governance and the illusion that there is a short court to development as contributing factors to the poor development of production capabilities by the developing countries. Lack of political will and the need to maintain status-quo on the part of the developed countries are also highly contributory. Finally, the paper reviewed two projects in the water supply sector and evaluated them for the extent that they met the primary consideration of sustainable productivity, and the secondary considerations of environmental safety, economic viability and social acceptability.
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