Theme 1: The changing face of livelihoods in Asia - shifting entry points?

Theme 2: Making institutions work for the poor in Asia.

Social Intermediation for the Urban Poor In Bangladesh:

Facilitating dialogue between stakeholders and change of practice; to
ensure legal access to basic water, sanitation & hygiene education
services for slum communities.

Dr. Dibalok Singha, Executive Director, Dushtha Shasthya Kendra

(DSK)

Urbanization
Urbanization is an inevitable and unavoidable feature in the process of
development.
In Bangladesh rapid urbanization has taken place because of three contributing
factors, namely:
1) rural to urban migration;
2) geographical increase of urban territory;
3) natural growth of population in urban centers.
In these circumstances the capacity of urban centres to cater for the basic civic
needs of growth is heavily challenged. “Implications of such urbanization are
poverty, gross inequality, high unemployment, underemployment, over
crowded housing, proliferation of slums and squatters, deterioration of
environmental conditions, highly inadequate supply of clean water, high
incidence of diseases, over crowding in schools and hospitals, over loading in
public transports and increase in traffic jams, road accidents, violence, crimes
and social tension. These features are characteristic of urban centres of
Bangladesh, especially Dhaka.” ( Task Force Report, on Bangladesh
Development Strategies , UPL,1990)
The current trend of urban growth in Bangladesh is about 5-6 % per annum.
Projections suggest that more than fifty percent of Bangladeshi population will
be living in urban areas of Bangladesh by the year 2025. This will change and
increase Bangladesh’s demand for habitat, health, water sanitation and SWM
services and many other factors. The acceleration of urbanization raises new
challenges for parties aiming to serve the poor and address poverty.
Bangladesh will have to have vision and new coping strategies to manage
these new situations. There will be tremendous need to work with depressed
communities covering HEALTH and WATSAN services in the numerous
secondary towns of Bangladesh not to mention the future “mega” cities,
Dhaka and Chittagong. Thus is the challenge of city governance in this new
millennium. People will demand sustainable and standard services. DSK’s
experience with poor urban communities in Dhaka and Chittagong, indicates
that communities are able and willing to face new challenges if they are given
proper support to access basic services.
Slum Issues
♦ Rural to urban migration is a normal phenomenon. Migration to large urban
centres is inevitable, because of the scope of employment, income and other
facilities in such centres.
♦ Projections indicate that more than fifty percent of Bangladesh population
will be living in urban areas by the year 2025. Which means food habits,

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 Theme 1: The changing face of livelihoods in Asia - shifting entry points?
Theme 2: Making institutions work for the poor in Asia.

needs of habitat and societal shapes are going to change. The rapid
urbanisation process in Bangladesh is generating huge challenges and both
government and civil society agents have to develop strategies to cope with
these challenges.
♦ Slum, informal settlement, ‘problems’ should be understood as the physical
manifestation of poverty situation in Bangladesh. Informal, poor settlements
with inadequate basic services are also an indicator of the state of
governance in our country.
♦ Government policy documents:
Many Government documents (i.e. Slum problem and its solution,
Land Ministry GOB 1989, Housing Policy GOB 1993, Slums in Dhaka CUS-
ICDDR,B 1994, Study of Urban Poverty in Bangladesh Vol1 & 2 GOB-ADB
1996) have identified the slum problem as a manifestation of poverty
processes in this country, all the documents have advocated the
application of a mix of steps to alleviate the situation namely: in-situ
development; slum relocation; grant of title or lease; land sharing, and;
avoidance of forcible eviction of slum dwellers.
In addition studies and policy documents repeatedly advise for the provision
and facilitation of access of the urban poor to basic services, like water and
sanitation.
♦ Government is not in a position to create formal employment for such large
group of urban poor. The majority of these communities are self employed
and this has given birth to a large informal economy that is very dynamic
and gaining momentum.
♦ It is well documented that the average income of the urban poor living in
Dhaka slums is three times higher than that of the rural poor.

WATSAN service delivery approach of DSK and related

experiences
Introduction
A myth generally persists that disadvantaged people will not be able and
willing to pay for basic water and sanitation site and service projects. On the
contrary, people living in slums are paying higher rates than middle income or
rich communities for water and other services and these facts are well
documented. From the mid 1990’s DSK undertook a project in Dhaka to
improve affordable water supply to urban slum communities on the basis of
participatory community engagement and sustainable community based
management. Such infrastructure projects on a capital cost recovery basis are
not that common in urban areas; few non-government organizations are
involved in such projects. The challenge has been to demonstrate and prove
that such initiatives are successful; and on the strength of such experience to
influence and push local governments to make real investments in such
projects to the benefit of the depressed target groups. DSK started mediating
piped water supply service to slums and low-income communities 5 years ago.
The main target was to create provision of legal water supply services in
slums, via community based organizations and on a capital cost recovery basis;
keeping special emphasis on sustainability. Initially DSK started experimenting
from its own resources later support was extended by WSP- SA and WaterAid
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 Theme 1: The changing face of livelihoods in Asia - shifting entry points?
Theme 2: Making institutions work for the poor in Asia.

UK.

Mechanisms For Increasing Functionality And

Responsiveness Of Institution’s
To The Urban Poor - DSK Approach
The DSK model approach aims to demonstrate how ‘informal’ communities can
access ‘formal’ utility services. The key principle of the model is to respond to
demand for water indicated by communities willingness to pay. According to
this model communities willing to form self help groups are provided training
on management and maintenance of water points; health / hygiene habits and
behavioural change. DSK facilitates processes with community participation to
design water points, select specific placement of infrastructure and formulates
guidelines on water access and cost sharing. DSK mediates on behalf of
communities with formal city authorities and utilities, lends initial capital funds
and provides technical support for construction.
DSK employs a system of participatory rapid appraisal to gather descriptive
data, from community interviews and discussions. Through this process, a
range of experiences from different community people is gathered and this
enables an understanding of actual livelihood patterns to emerge. The main
important mechanisms in order to proceed to establish a communal water
point are as follows :-
♦ Expressed community demand and willingness to pay for services.
♦ Technical feasibility.
♦ Communities used to free water and sanitation services supply
and those dominated by “mastaans” are usually avoided.
♦ Positive participation of key local government institution’s i.e. DWASA and
DCC
♦ At least neutrality of slum power structure
♦ NGO intermediation

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 Theme 1: The changing face of livelihoods in Asia - shifting entry points?
Theme 2: Making institutions work for the poor in Asia.

Key Components of DSK Water, Sanitation And Hygiene

Promotion Approach
♦ Capacity Building and Strengthening of Community Based Organisations
(CBOs)
♦ Women’s participation and leadership of CBOs
♦ Provision of WATSAN services via communal wateer points,
community sanitation blocks and pit latrines
♦ Behavioural change communication via health hygiene education employing
PRA and CTC approaches
♦ Financial and social sustainability of the project
Key Lessons
DWASA Bills And Cost Recovery Of Capital
♦ Assisted communities are paying DWASA bills on a regular basis. As of June
30, 2000, DSK targeted communities have paid Tk 473,572.00 (94.12%) of
DWASA bills invoiced, outstanding bills were paid later. Communities
continue to meet their obligations to the supply authorities.
Community Management/ Women Leadership
♦ Community based organization’s were formed around provision of water, via
a street hydrant in a specific sub-community.
♦ Eighty percent of the monthly community meetings took place with average
attendance of 62% where female constituted 60.48% of attendees.
♦ DSK has helped communities to achieve maturity of leadership, especially
women in the community to run the management of the water points on a
regular basis.
Transfer To Community Management (Community Empowerment)
♦ In 2000, one of the water points was transferred to ‘stand alone’ community
management, i.e no month to month support from DSK staff. Ten other
water points (WPs) are in the pipeline to be transferred during 2001. The
main criteria taken into consideration for transfer to stand alone community
management were: presence of WP management committee; regular
monthly meetings; attendance of women; women leadership; male
attendance; regular payment of DWASA bills; regular payment of capital loan
instalments; maintenance and cleanliness of the WP; expressed ‘ownership’
of the facility.
Policy Implication
♦ The approach has been accepted as an effective tool to provide water and
sanitation services to communities living in slums and squatters. Several
NGO’s and programmes of international agencies have begun to replicate
the model. Recognition of the model’s effectiveness has been reflected in
National Water policy of GoB 1998. Because of the collective effort of
stakeholders this simple project has evolved as a significant tool for
influencing change of institutional mindsets and arrangements.
Difficulties / Problems
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Theme 2: Making institutions work for the poor in Asia.

♦ The , program has not been without its problems. One of the most important
lessons that has been learnt is that the social dynamics of different
communities are unique. The other issue relates to the time that is required
for acceptance of the model in the municipal authorities. DSK conclude that
working with DWASA / DCC/ CWASA/CCC takes time, but slowly and surely
acceptance is reached. Influence from outside agencies and international
organisations is also a major factor to help convince sceptics within local
authorities and utilities.
♦ Problems relating to legal access to land and the tenancy remain.
Government and privately owned building residents object to the
construction of the water points in slums adjacent to their plots, because
they see the construction as a formalization of the ‘illegal’ community and an
admission by the authorities that they will be staying. Providers of illegal
connections, i.e. DWASA pump operators, van drivers, technicians etc.,
generally act together against community based water points.
Replication
The following NGO's are all currently replicating DSK approach with slum
communities in Dhaka, and Tongi municipality.
♦ Bangladesh Agricultural Working Peoples Association (BAWPA)
♦ Association for Realisation of Basic Needs (ARBAN)
♦ Assistance for Slum Dwellers (ASD)
♦ Phulki
♦ Population Services and Training Centre (PSTC)
♦ PRODIPAN
DSK has started replicating the successes of its Dhaka water supply,
environmental sanitation and hygiene promotion program in Chittagong.
Though the DSK model was developed from the specific context of Dhaka
slums, and has yet to be definitively proven as effective in other cities or towns
in Bangladesh, the indications are that the model has the possibility to be
utilised widely. In the medium to long term, many slum areas in towns and
cities will be formally developed, therefore resettlement and providing access
to shelter and services in ‘new’ slum areas will remain an outstanding problem
for municipal or city authorities, as the urban population increases far ahead of
formal housing or service provisions. The DSK approach provides a
methodology for urban authorities and civil society to address the basic needs
of the urban poor, who are important stakeholders in the urban economy.
Future implication’s
Social intermediation by NGO's/CBO’s/LGA/ private bodies, can play a
facilitating role in ensuring water supplies to illegal slum communities by acting
as a guarantor to the formal municipal utilities and thus provides a new model
for improved service delivery at low capital cost.
The most relevant conclusions are firstly that formal institutions need to bring
about legal and procedural changes to respond to community

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Theme 2: Making institutions work for the poor in Asia.

initiatives and demand for services, and secondly, intermediaries such as

NGOs are available and effective actors to organize the slum residents and
mediate with formal institutions to provide access to utilities.
The water delivery model developed by DSK in Dhaka has proven that is
possible to enable low-income communities living on squatter slums to gain
access to affordable, safe water supplies. This has enabled these
communities to access a reliable source of safe water at a cheap cost,
compared to the illegal supplies to which they are accustomed.
As far as DWASA is concerned, the DSK model offers a system for
regularization of illegal connections and corresponding increased
revenue. As a result, equity of supply to the urban poor is an issue that is
addressed and this is also viewed as politically rewarding for those local
government officials who are seen to be supporting the program.
The DSK model demonstrates how informal communities can access
formal utility services. The key principle of DSK's model is to respond to the
demand for water indicated by the communities' willingness to pay.
Communities willing to form groups are provided with training on management
and maintenance of water points, combined with health and hygiene
education. The process through which the program is implemented offers the
community to learn about government systems and as a result, the
community is empowered.
It is evident that there is considerable potential that the model can be
replicated. However, it cannot be assumed that this may be achieved with the
same degree of success without the same careful planning, monitoring,
technical assistance, as well as financial support. It is clear from DSK's
experience working in the slums of Dhaka and Chittagong that community
groups are able to manage the water points responsibly. However, in each
individual case this capacity needs to be nurtured carefully, to ensure success
of the project.
In recognition of the approach’s success and replication by other actors,
DWASA has now came forward to seek assistance with its system loss
problems of its Mirpur zone in Dhaka. DWASA is seeking support from DSK
and the other replicating NGO’s to regularize ten thousand illegal connections
in that zone. This is a clear victory of the approach and advocacy efforts by the
implementing NGOs. It is evident that the initial years of careful but persistent
implementation have induced a change of mind set in the Dhaka authorities
and utilities.
In view of the above it can be stated that the general approach and
the lessons learnt are applicable in many other contexts and political
climates.

Dr. Dibalok Singha, DSK - Dushtha Shasthya Kendra, May 2001.

NB: references overleaf

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 Theme 1: The changing face of livelihoods in Asia - shifting entry points?
Theme 2: Making institutions work for the poor in Asia.

For Further Information - please contact Dr. Dibalok Singha as follows:

Organisation: DSK - Dushtha Shasthya Kendra
Position: Executive Director
Name: Dr. Dibalok Singha
Tel./Fax: 9128520 / 8115764
Mobile: 011807885
e-mail: 1. dsk@citechco.net
2. dskhq@citechco.net
Address: DSK
5/8 Sir Syed Road
(G. Floor), Block-A,
Mohammadpur
Dhaka-1207

Or

Organisation: WaterAid Bangladesh

Position: Country Representative
Name: Timothy Claydon
Tel./Fax: 8818521 / 8115757
Mobile: 019343394
e-mail: 1. wateraid@agni.com
Address: WaterAid Bangladesh
123A Road 4
Banani, Dhaka, 1213.

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 Theme 1: The changing face of livelihoods in Asia - shifting entry points?
Theme 2: Making institutions work for the poor in Asia.

References
ADB (2000). Bangladesh, Urban Sector Strategy.

Rehman Sobhan edited Task Force Report on Bangladesh Development Strategies, UPL
1991, Dhaka

Gallagher, R. (1997) Water Supply and Sanitation Problems in the Slums of

Mohammadpur, Dhaka. WaterAid, ActionAid & VERC, Dhaka.

Coalition for the Urban Poor (1999). Monitoring Survey of Environmental Sanitation,
Hygiene and Water Supply in Urban slums of Dhaka.

Dushtha Shasthya Kendra (1999) A Guide to the Establishment of Community owned

and managed urban water points. DSK, Dhaka, Bangladesh.

Gallagher, R. (1997). Water Supply and Sanitation Problems in the Slums of

Mohammadpur, Dhaka. WaterAid, ActionAid & VERC, Dhaka.

GoB. (1998). National Policy for Safe Water and Sanitation.

Herzer, B., Brocklehurst, C., and Das, A.C. (1998). Urban slum water supply, Dhaka,
Bangladesh. In Smout, l.K. (ed.) Lessons Learnt from NGO Experiences in the Water
Sector Water and NGOs Workshop, 21 January 1998. WEDC, Loughborough University,
pp 26-28

Matin, N. (1998) Social intermediation: Towards gaining access to water for squatter
communities in Dhaka. Regional Water and Sanitation Group - South Asia, Dhaka,
Bangladesh.

Trace, S. (2000). Case Study: Water Supply and Sanitation for the Urban Poor - Is
'Willingness to Pay' or 'Willingness to Provide' the Obstacle? Journal of the City
Development Strategies Initiative - Issue No. 2 February 2000.

UNCHS (1994). Bangladesh Urban and Shelter Sector Review, September 1993.
Nairobi.

UNDP/World Bank Water and Sanitation Program - Water Vending in Old Dhaka

UNICEF (1993) Staying Alive: Urban Poor in Bangladesh, Dhaka

GoB and ADB Study of Urban Poverty in Bangladesh, Dhaka, 1996

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8-10 May 2001 Social Intermediation for the Urban Poor In Bangladesh: Dr. Dibalok Singha - DSK