GPA STRATEGIC ACTION PLAN ON MUNICIPAL WASTEWATER WITH
RECOMMENDATIONS FOR DECISION-MAKING
L.P.M. de Vrees*
* UNEP/GPA Coordination Office, P.O. Box 16227 2500 BE The Hague, The Netherlands.
Email: l.dvrees@unep.nl or gpa@unep.nl ; Web-site: www.gpa.unep.org
ABSTRACT
This paper outlines the Strategic Action Plan on Municipal Wastewater of the Global
Programme of Action for the Protection of the Marine Environment. The GPA/Coordination
Office developed this Action Plan, in cooperation with other organisations, to support nations
to address the problem of sewage adequately. One element of this action plan is the
development of Recommendations for Decision-making on Municipal Wastewater. The aim
of this paper and its presentation is to stimulate an exchange of views on the usefulness,
adequacy, applicability, or appropriateness of these proposed Recommendations for Decisionmaking on Municipal Wastewater.
KEYWORDS
Clearing-house, Global Programme of Action (GPA),
Recommendations for Decision-making, Wastewater management
Marine
Environment,
BACKGROUND
Coastal and marine pollution have become world-wide phenomena and triggered international
action. In 1995, the Global Programme of Action for the Protection of the Marine
Environment from Land-based Activities (GPA, 1995) was adopted by 108 countries and the
EC. The GPA recognises that the environmental effects associated with domestic wastewater
are generally local, though with transboundary implications in certain geographic areas. The
GPA notes that the commonality of sewage-related problems through coastal areas of the
world is significant. Therefore, urban wastewater discharges are considered one of the most
significant threats to sustainable coastal developments world-wide.
The priority for action on “sewage” was also identified by:
 Seven regional workshops of Government-designated experts held in the period 1996-1998
in the framework of the United Nations Environment Programme/UNEP’s Regional Seas
Programme and involving more than 60, mostly developing, countries;
 UNEP Governing Council (decision 20/19B.1.d) who requested the Executive Director in
cooperation with other relevant organisations to explore the possibility to convene a global
conference to address sewage as a major land-based source of pollution, affecting human
and ecosystem health.
The slowly growing awareness, the technical complexity and high cost of wastewater
management, are main reasons why it has taken several decades before the rich industrialised
nations managed to take effective action. The burden on the developing countries is the
heavier as they are less wealthy and have weaker institutions. Therefore, the GPA Strategic
Action Plan on Municipal Wastewater (GPA, 2000a) aims at supporting the efforts of States
to address the serious public health problems and the degradation of coastal ecosystems that
result from the disposal in coastal areas of inadequately treated municipal wastewater. It does
so through, amongst others, the development of Recommendations for Decision-Making on
Municipal Wastewater (GPA, 2000b) and associated Knowledge Base; and the holding of
regional meetings - including partnership meetings - and global consultations. The
Recommendations for Decision-making are a guide for local and national decision-makers
and professionals on appropriate and environmentally sound wastewater management
systems, including treatment. It contains key principles and annotated checklists of
recommended practices and procedures.
The Action Plan builds upon, develops and enhances the relevant sections on sewage of the
GPA. This Action Plan is the reflection of concerted actions by the United Nations
Environment Programme (UNEP), the World Health Organisation (WHO), Habitat (UNCHS)
and the Water Supply and Sanitation Collaborative Council (WSSCC).
COMPONENTS OF THE GPA STRATEGIC ACTION PLAN ON MUNICIPAL
WASTEWATER
Assessment
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Global review of the State of Affairs, including the extent of the problem, hotspots and
root-causes;
Four regional reports on socio-economic opportunities and potential partners (i.e. East
Asia, South Asia, Eastern Africa and South East Pacific);
Case studies, illustrating the social, environmental, and economic benefits of action (and
no-action);
An analytical paper on challenges, opportunities and benefits. Especially the effects of
improper sewage management on health, and the difficulties of sewage management in
large urban centres will be analysed.
Management
The envisaged outputs are:
 Global Knowledge Base, describing the range of management options for addressing the
sewage problem. Best practices, experiences and cases studies will illustrate these options.
The GPA information and data clearing-house on sewage and sanitation will be used as a
vehicle for access, dissemination and further development of the Knowledge base. This
so-called “Sanitation Connection” is a partnership of UNEP/GPA, World Heath
Organization (WHO), International Water Association (IWA), Water and Sanitation
Programme (WSP), and the Water Supply and Sanitation Collaborative Council (WSSCC)
and is accessible via www.sanicon.net.
 Recommendations for Decision-making on appropriate and environmentally sound
wastewater management. It contains key principles and annotated checklists of
recommended practices and procedures. It details ranges of approaches, infrastructures
and tools available to practitioners and policy makers. The full document is available at:
www.gpa.unep.org/documents.
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Regional Cooperation for Innovative Actions: Four regional meetings (i.e. in the
Caribbean, Eastern Africa, West Asia and East Asia region) are planned in the period
February – July 2001, bringing together national and local experts, private sector,
international financial institutions, potential donors and other stakeholders to:
Review the Recommendations for Decision-Making
Share technical, administrative and financial experience
Identify demonstration projects
Provide a forum for partnership creation
Identify regional resource centres
Global Consultation Process, consisting of
(i)
High level segment at the GPA Intergovernmental Review in 2001. To this
high level segment the results of the regional meetings will be presented and
the Recommendations for Decision-Making submitted for endorsement. The
meeting will be requested to assess if the process and outputs of the
implementation of the Municipal Wastewater Action Plan as described above
could be used to guide the development of similar activities for the other
source categories, identified in the Global Programme of Action (such as
nutrients, heavy metals, and habitat modification);
(ii)
Sessions for professionals during planned global conferences, organised by
professional associations, such as the 10th Stockholm Water Symposium
(August 2000), Canada 2000 (September 2000), the fifth Global Forum of the
WSSCC in Brazil (November 2000), the Symposium “Frontiers of Urban
Water Management: deadlock or hope?” in Marseilles (June 2001), etc;
(iii)
Regional partnership meetings, as mentioned above.
AIM OF THE RECOMMENDATIONS FOR DECISION-MAKING
The development, consultation with experts from the different stakeholders and finally
seeking political endorsement of the Recommendations for Decision-making fits within the
normative function of UNEP. Seeking involvement of key stakeholders is another focus of
UNEP. There is an important role of central and local authorities, citizens, non-governmental
groups, private sector, in their role as water polluter (industries), water user (certain sectors
such as tourism, fisheries) and water service operator (water supply and treatment industry).
New partnerships between all these stakeholders, also involving regional organisations and
finance institute is the new paradigm along which solutions for the future need to be sought.
There are several prerequisites for addressing the management of wastewater in order to
safeguard human and ecosystem health, and to avoid the degradation of water quality and
other coastal and marine resources. These include:
 Stakeholder involvement, which will foster the political will to assign a high priority to
wastewater management among other pressing public investment needs
 Financial affordability.
These recommendations aim to provide guidance how to gain this political will and to
increase financial affordability by describing sustainable systems for wastewater
management, including less expensive technical options and ways of attracting support.
The key principles for managing wastewater sustainable are to conserve water resources, by
eliminating pollution at the source, using water efficiently, and maintaining water quality, and
to respond effectively to demands from society.
RECOMMENDATIONS FOR DECISION-MAKING: KEY-ISSUES
This paper gives all the (draft) key-issues and recommendations, which will be reviewed at
the regional meetings mentioned above, amended, and possibly, to be endorsed at the GPA
Intergovernmental Review of November 2001.
Issue 1
A comprehensive and integrated approach to urban wastewater management is needed to
maintain the environmental integrity and the economic functions of aquatic ecosystems,
including ground water, rivers, lakes, and coastal areas.
Recommendations
1.a Promote studies to quantify the socioeconomic impact of environmental pollution in
case of inaction and action, and use such information to determine the priorities for
investment and clean-up programs.
1.b Prioritise actions to minimise current and future environmental damage with carefully
selected policies, programmes, and investments; invest stage-wise in infrastructure for
wastewater management while maintaining a long-term horizon for planning and
operations.
1.c Impose appropriate effluent standards that are feasible for local conditions.
1.d
Integrate planning for wastewater with the planning for other sectors, such as water
supply, solid waste, and land use.
1.e
Use a mix of technological options and managerial approaches, including
community-based development approaches, that are appropriate and optimal for
different zones in the city.
1.f Incorporate wastewater management within integrated approaches for the management
of river basins and coastal zones.
STAKEHOLDER INVOLVEMENT
Issue 2
Successful wastewater management requires a high level of public commitment.
Recommendations
2.a Invest in creating and maintaining awareness among citizens regarding their dual role
as polluters and beneficiaries of wastewater management.
2.b Develop commitment to a clean environment and “river basin solidarity,” and
demonstrate that “win-win” situations exist when all polluters cooperate in wastewater
management.
2.c Devolve decision-making to the lowest appropriate administrative level, and ensure that
local communities receive financial power to participate in local or regional initiatives
to operate, manage, and maintain their part of the infrastructure.
2.d Ensure that citizens receive an adequate wastewater management service relative to
their financial contributions.
Issue 3
Wastewater management is pre-eminently an effort that involves many actors who must be
willing to cooperate and contribute to the overall result.
Recommendations
3.a Apply both restrictive and enabling regulations. To make this approach more
palatable and effective, add positive incentives, such as load-based licensing fees.
3.b Introduce market-based instruments, such as tradable effluent permits, in conjunction
with administrative regulation to give polluters more flexibility to invest and operate
in the management of wastewater.
3.c Develop mechanisms that allow civil society and its representatives (such as
consumer associations) to hold polluting entities accountable, whether they are
owned and operated privately or publicly.
3.d Ensure that the investment and operational mechanisms and instruments enable the
equitable distribution of costs and benefits among all stakeholders.
FINANCING
Issue 4
The financial sustainability of the wastewater management system must be assured.
Recommendations
4.a Strive to apply the principles of “the water user pays” and “the polluter pays” in the
wastewater management systems.
4.b Design the financial system to balance the quality of the service, the investment costs,
and the tariffs that households are willing and able to pay (demand-driven approach).
4.c Involve the stakeholders who are to gain from the water quality improvement,
including those benefiting from enhanced land values, and ensure that they contribute
financially (opportunity-driven approach).
4.d Use charges or pollution fees to establish funds for the cofinancing of wastewater
treatment facilities, instead of considering these revenues as taxes that enter the
national budget.
4.e Establish systems to ensure that tax revenues are allocated to the appropriate service
provider.
4.f Examine the potential to use cross-subsidies.
INSTITUTIONAL ARRANGEMENTS
Issue 5
A country’s central government can play a significant role as a facilitator and initiator of
appropriate wastewater management.
Recommendations
5.a
Develop systems to ensure good and sustainable governance and protect the
performance of investments and operations, whether performed by the public sector or
the private.
5.b Recognise the responsibility and authority of the central government to set the
institutional environment to encourage local governments, the private sector, regional
and river basin agencies, and other partners to initiate and implement programmes.
This can include:
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Developing and maintaining national policies and strategies in cooperation with local
governments and other stakeholders
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Enacting legal and regulatory instruments
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Encouraging the development of appropriate organisations to complement local
government initiatives.
5.c Consider cofinancing schemes and infrastructure that are highly cost-effective and that
have a high priority, as appropriate.
5.d Make local governments and environmental agencies accountable to central
governments for implementing, operating, and maintaining sustainable wastewater
management systems.
5.e Establish criteria for central governments to assess the performance of local
governments and environmental agencies in reducing pollution.
Issue 6
In many countries, institutional restructuring and strengthening is required to ensure the good
performance of the wastewater management system.
Recommendations
6.a Develop a long-term strategy for institutional reform and capacity building where
existing structures, legal and regulatory frameworks, and organisations inside and
outside of the government are weak or inadequate.
6.b Recognise that weak capacities pertain to the capacities of individuals (such as
wastewater engineers) and to capacities embodied in managerial procedures,
regulations, administrative rules, and career and salary incentives.
6.c Make use of or develop dedicated networks of multidisciplinary sector experts in
academia, government, industry, and civil society.
6.d Ensure that these networks and information exchange systems, such as web-based
clearing-houses, help to identify or articulate the problems to be solved and draw upon
experiences from other countries in the region and globally.
Issue 7
Partnerships between the public sector and the private sector are important options and useful
tools to assist local governments in financing and operating the infrastructure for wastewater
management.
Recommendations
7.a Review the regulatory and legal frameworks that might impede public–private
partnership arrangements; appropriate frameworks can facilitate local governments
and the private sector to investigate partnership opportunities.
7.b Devise carefully the requirements and options for such regulation, which should be
compatible with the country’s economic, social, and political situation and should
discourage monopolistic behaviour.
7.c Structure the contract and its implementation to maximise the long-term effectiveness
of collaborative partnerships between the contracting authority and the operator by
building in systems for dialogue.
7.d Implement pilot public–private partnership initiatives and learn from the experiences.
7.e Evaluate fairly and objectively the performance of such partnerships against
international benchmarks and consumer satisfaction surveys, regardless of whether the
utility is managed by a private firm or a public entity.
TECHNOLOGY
Issue 8
The high cost of wastewater management warrants a very careful search for low-cost and thus
more sustainable technologies and approaches.
Recommendations
8.a Introduce appropriate strategies and incentives that target waste prevention and
minimisation, water conservation, and the efficient use of water.
8.b Apply more cost effective technologies such as lagoons, natural systems, anaerobic
treatment, and reuse schemes.
8.c Adapt land use policies and financial and other regulation to promote the segregation
of industrial effluents unsuitable for municipal wastewater treatment by relocating
industries, recycling waste streams, and using the best available technologies.
8.d Promote the exchange of experience with the implementation and operation of
different technologies.
REFERENCES (available at http://www.gpa.unep.org/documents)
- GPA (1995). Global Programme of Action for the Protection of the Marine Environment
from Land-based Activities. UNEP(OCA)LBA/IG.2/7. Washington D.C. [USA]: UNEP.
- GPA (2000a). GPA Strategic Action Plan on Municipal Wastewater. The Hague [The
Netherlands]: UNEP/GPA
- GPA (2000b). Recommendations for Decision-making on Municipal Wastewater. The
Hague [The Netherlands]: UNEP/GPA