Saint-Louis is coastal city in the northwestern part of Senegal with a rich historic and cultural significance; from a former French colonial capital to a UNESCO World Heritage site. However, the city is facing pressing water and sanitation challenges. The city’s location significantly impacts the quality and quantity of its water resources. Furthermore, urbanization, inadequate water and sanitation planning and management, and financial and human resource constraints exacerbate the city’s water challenges. Enhancing the city’s local capacity to plan and implement innovative interventions was identified as the most strategic step towards addressing these challenges and achieving sustainable and integrated water resources management (IWRM) in Saint-Louis. This intervention includes strengthening the city government’s capacity to plan and implement IWRM, fostering public-private partnerships for improved water management, and increasing residents’ knowledge of sustainable practices.

Saint-Louis in Context

Saint-Louis is a city located on the northwest coast of Senegal, near the mouth of the Senegal River. It is approximately 320 kilometers (200 miles) north of Dakar, the capital city of Senegal (Figure 1). The city lies within the Sahelian zone, a desert band that separates the dunes of the Sahara from the baobabs of the savanna (Saint-Louis du Sénégal, n.d.), which defines its semi-arid climate.

Like most West African cities, Saint-Louis experiences two distinct seasons: dry and wet. The rainy season lasts from late June to mid-October, with the heaviest rainfall typically occurring in August. The rest of the year is quite dry, with little to no rainfall. As one of the northernmost cities in the country and one of the closest to the Sahara Desert, Saint-Louis receives relatively low precipitation during the rainy season, amounting to only 240-350 mm (9.5-13.5 inches) per year (Climates to travel, 2024) (Figure 2).

Saint-Louis Commune has a population of approximately 254,171 as of the 2023 census, with a population density of about 4,000 people per square kilometer. The larger administrative area, Saint-Louis Department, has a population of 387,368 and a population density of about 483 people per square kilometer. Between 2013 and 2023, the annual growth rates for the Commune and Department were 2% and 2.8%, respectively (City Population, n.d.). This difference in growth rates may be attributed to migration from the densely populated Commune to other parts of the Department.

Saint-Louis has a rich history as a former French colonial capital. Founded in 1659, it became the capital of the French colony of Senegal and later the capital of French West Africa before the capital was moved to Dakar. Due to its historical and cultural significance, it was designated as a UNESCO World Heritage Site in 2000. This recognition has boosted tourism, adding to the city’s primarily agrarian economy (Saint-Louis du Sénégal, n.d.).

Managing Fragile Freshwater Resources

The Sahelian region is considerably fragile in terms of its water resources. It is often afflicted with droughts caused primarily by various human-induced climate change processes such as deforestation and the expansions of arable farms which makes access to water for potable uses a major challenge (Denisova and Kostelyanets, 2024; Epule et al, 2014).

Saint-Louis Commune has relatively fragile freshwater resources compared to its eastern neighbors. Its proximity to the sea has led to the intrusion of saltwater into the lower sections of the Senegal River, as well as into shallow aquifers and soils. In 2003, an artificial breach was created on the Langue de Barbarie, a sand spit at the mouth of the Senegal River, to mitigate flooding in the city. However, this breach has exacerbated the salination process, and climate change is expected to worsen the situation (Sarr et al, 2024; Folorunsho, 2014).

Consequently, the Commune relies primarily on the Bango freshwater reservoir for potable water (PDIDAS, 2020). The reservoir is located on one of the tributaries of the Senegal River, less than ten kilometers from the north-eastern exit of the city of Saint-Louis. The Bango reservoir has three structures that control the flow of water entering and leaving the reservoir.

Saint-Louis has recently benefited from the development of new wellfields to improve its water supply. One significant project involves the Ndiock-Sall wellfield, located about 50 kilometers from Saint-Louis. This wellfield has been equipped with two new boreholes, each with a capacity of 200 cubic meters per hour. The project also included laying 50 kilometers of pipes to transport the water to the Leybar water tower at the entrance to the city (Takouleu, 2023). The city’s water portfolio is, hence, expected to be characterized by 60% surface water and 40% groundwater (Figure 3). However, the city must work to have a more diversified portfolio.

In terms of water infrastructure, the city receives water from the Bango reservoir through a pumping station at Dakhar Bango. The water is pumped to the Khor treatment plant where it is treated and stored in three water towers that can store about 1,200m3 of water. The storage tanks are located at Sor and Nhallèle. The city’s distribution network is about 196km long which connects about 14,050 households and 166 drinking fountains. Nonetheless, the quality of service is poor, especially at the fringes of the city (Ministère de l’Urbanisme, 2008).

Managing Wastewater and Stormwater

Wastewater management in Saint Louis has been generally lacking until recently. Traditional latrines have been the predominant toilet facilities in and around the city, and the main method of disposing of domestic wastewater has been the streets and courtyards (Diop, 2017). The sewer systems in the city are largely inadequate with less than 40% coverage (Ministère de l’Urbanisme, 2008). Most non-sewered toilets/households have septic tanks or other lined substructures. Due to this, fecal waste collection and transport is dominated by the private sector (USAID, 2022). In terms of stormwater management, the city relies primarily on gutters and collectors that transport stormwater to a lagoon-type wastewater treatment plant as well as stormwater basins at Diawlingue and Diamegueune (Ministère de l’Urbanisme, 2008).

To improve wastewater stormwater management, the Senegalese government launched a sanitation programme for the 10 cities including Saint Louis in 2017. A significant part of the programme is to build more than 75km of wastewater network and 10 wastewater pumping stations in the city (Takouleu, 2019). Additionally, the city has begun efforts to treat and reuse wastewater. In 2018, the University of Gaston Berger, in collaboration with the University of Barcelona and the SEDAQUA company, initiated a pilot project to construct a multistage constructed wetland (CW) to treat municipal wastewater to a point where it is suitable for irrigating crops (Torrens et al, 2020; Ndiaye et al, 2024).

Planning Efforts and Constraints

Like many cities in the Sub-Saharan region, planning for water and sanitation in Saint Louis has been held up by several constraints, especially inadequate financial and human resources, as well as water policies and strategies (Nyika and Dinka, 2023). The Senegalese government, over the past few decades, has made serious efforts to address water and sanitation problems (Diof et al, 2024; Takouleu, 2023).

One of the recent and most significant efforts was the Water and Sanitation Millennium Program (PEPAM), an initiative aimed at improving access to water, sanitation, and hygiene (WASH) services across the country. Implemented from 2009 to 2014, PEPAM focused on enhancing the provision, reliability, and security of these essential services. The program marked a significant shift in how water and sanitation projects were planned, organized, and managed in Senegal. Post-evaluation reports show that though the strategy has been largely successful, some sustainability challenges persist. Many of the water management committees struggled to implement best practices and the majority were unable to gather sufficient funds from fees to pay for operations and maintenance (USAID, 2019).

Mapping Saint-Louis’s Water Management Challenges

As indicated in earlier sections, Saint-Louis is facing critical challenges to the quantity, quality and timing of its water supply. The city’s location on the Senegal River Delta and distinctive geographic features coupled with dramatic climate variabilities are huge factors driving the quality and quantity of its water resources. Further, the deteriorating condition of the city’s freshwater is exacerbated by urbanization, inadequate water and sanitation planning and management, and financial and human resource constraints. Water scarcity in Saint Louis, therefore, takes many forms including physical, economical, managerial and institutional (Molle and Mollinga, 2003) (Figure 5).

Identifying and Selecting Alternative Interventions

Three alternative interventions have been identified to improve water management in Saint-Louis:

1. Investing in Structural Projects: This includes expanding water infrastructure networks to every home, constructing sophisticated wastewater treatment plants to enable direct potable reuse, and building desalination plants. These projects would significantly enhance the city’s water supply and quality.
2. Enhancing Local Capacity for IWRM: This involves strengthening the city’s ability to plan and implement innovative interventions within the framework of Integrated Water Resources Management (IWRM). This approach would ensure that water resources are managed holistically and sustainably.
3. Investing in Nature-Based Solutions: Implementing solutions such as green infrastructure to manage stormwater, reduce runoff, and improve water quality. These nature-based interventions can provide multiple environmental benefits and enhance the city’s resilience to climate change.

While all three interventions are viable and the implementation of any of them would bring significant benefits, the most pressing challenge identified is the inadequate local capacity to plan and implement innovative interventions. Addressing this challenge is essential for sustainable and resilient water management in Saint-Louis. With a well-resourced local government, many of the other challenges can be effectively tackled. Enhanced capacity would enable the local government to leverage resources from other sectors of the city’s economy, such as tourism, and coordinate more effectively with regional and central governments on water management issues. Additionally, a capable local government can develop innovative plans and programs that attract external investment, helping the city to meet expanding water and sanitation demands while ensuring climate resilience. Therefore, enhancing local capacity is the recommended initial intervention, with the other alternatives to be implemented subsequently.

Enhancing Saint-Louis’s Local Capacity for Sustainable and Integrated Water Resources Management

Saint-Louis has several pressing water management challenges which need to be addressed strategically. Enhancing the city’s local capacity to plan and implement innovative interventions will be a strategic step towards addressing other challenges and lead the way to achieving sustainable and integrated water resources management in Saint-Louis.

Overall Goal: To improve the city government, private sector and resident’s capacity to sustainably manage water resources.

Objectives:

1. To enhance the city government’s capacity to plan and implement IWRM.
2. To foster public-private partnerships for improved water management.
3. To enhance residents’ knowledge regarding sustainable practices.

Objective #1: City Government

One of the main challenges related to institutional scarcity in Saint-Louis was a highly centralized water governance system. All water management related plans and programs were carried out and implemented using a top-down approach. The Société Nationale des Eaux du Sénégal (SONES), the national water company of Senegal, is responsible for planning and securing financing for water infrastructure projects, managing national water assets, ensuring that the infrastructure is maintained and upgraded as needed, and engaging in public awareness campaigns to promote water conservation and educate the public about water management issues(SONES ,n.d.).

Given Saint-Louis’s unique position as a delta city, it faces distinct challenges, particularly those exacerbated by climate change. The city’s vulnerability to sea level rise, saltwater intrusion, and increased flooding necessitates a proactive and tailored approach to urban planning and infrastructure development. Therefore, it is crucial for Saint-Louis to assume a leadership role in planning and implementing innovative interventions specifically designed to address its unique environmental and socio-economic conditions. By taking on these functions, the city can develop and execute strategies that mitigate the impacts of climate change, protect its freshwater resources, and enhance its resilience.

Two main strategies to achieve this objective. They include:

1. Establish a Water and Sanitation Department at the city department level in collaboration with SONES. Key responsibilities will include:
   • Managing the city’s water resources.
   • Providing drinking water, wastewater stormwater services to customers with the city.
   • Maintaining and operating water and sanitation infrastructure in the city.
2. Establish a capacity building program targeted at the managerial and operational levels. This is essential to ensure that the Water and Sanitation Department functions efficiently and effectively to achieve its mandates.
   • Managerial level focus: leadership development, strategic planning, performance management and communication skills.
   • Operational level focus: technical knowhow, quality control, process optimization.

Objective #2: Public-Private Partnerships

This objective has one crucial strategy, which is to create an enabling environment for private sector participation in water and sanitation management. As mentioned in previous sections, currently, the private sector plays a key role in water management in the city, especially in relation to wastewater. The private sector leads the supply of fecal waste collection and transportation services, providing mechanical and manual pit emptying services. These sanitation service providers (SSPs) typically service toilets with septic tanks or lined pits (USAID, 2022).

The Ministry of Water and Sanitation plans to shift its priorities from increasing sewer coverage to supporting private sector SSPs. It expects that the demand for their services will increase steadily due to urbanization currently outpacing sewer connections and the government’s proposed changes to its safe Fecal Sludge Market Strategy (ONAS & Ministry of Water and Sanitation, 2021).

Saint-Louis can, therefore, leverage these opportunities to foster an enabling environment for private sector participation in water and sanitation management. . The newly formed Water and Sanitation Department can engage the SSPs on various issues such as accessible and affordable of services to the urban poor and formalization of the private sector through accreditation (Mbéguéré, 2013).

Additionally, the Senegalese government is embarking on a circular sanitation economy focused on transforming waste into valuable resources, thereby promoting sustainability and resilience.  The Office National de l’Assainissement du Sénégal (ONAS), a public industrial and commercial establishment responsible for managing the sanitation sector in Senegal, has been exploring the recovery and sale of treated fecal sludge and reuse of tertiary treated wastewater for horticulture (World Bank Group, 2021). Saint-Louis can leverage private sector participation to expand these initiatives. This collaborative approach can also drive innovation and efficiency, benefiting both the community and the private sector.

Objective #3: Community Engagement

This objective has one fundamental strategy, which is to create awareness of the challenges of water and sanitation management in the city and promote sustainable practices. This strategy involves three key components:

1. Community Engagement: Engage with local communities through town hall meetings, focus groups, and participatory workshops. These forums will provide opportunities for residents to voice their concerns, share ideas, and collaborate on solutions. By involving the community, the city can foster a sense of ownership and responsibility towards sustainable water and sanitation practices.
2. Public Education Campaigns: Launch comprehensive public education campaigns to inform residents about the importance of water conservation, proper sanitation practices, and the impacts of climate change on local water resources. These campaigns will utilize various media, including social media, local radio, community workshops, flyers, and posters, to reach all of Saint-Louis’s residents.
3. School Programs: Integrate water and sanitation education into school curricula to teach children about the importance of these issues from a young age. The Water and Sanitation Department will engage with schools to organize field trips to water treatment plants, conduct science projects related to water conservation, and invite experts to speak to students.

Timeline for Implementation

It is anticipated that the implementation of the three objectives will be completed within the first two years. By the end of the first year, it is expected that the projects will have fully taken off, with pilot projects initiated. The second year will focus on monitoring and evaluating progress, as well as planning for future projects.

Securing Funding for Sustainable Water Management in Saint-Louis

Leveraging Saint-Louis’s UNESCO World Heritage site designation and its unique geographic character can be a powerful strategy to attract funding for water management interventions. The city’s historical and cultural significance, recognized globally, provides a compelling narrative that can be used to appeal to both the central government and international agencies. By highlighting the importance of preserving this heritage site, the city can make a strong case for the necessity of sustainable water management practices. This approach not only emphasizes the need to protect the city’s cultural assets but also underscores the broader environmental and social benefits of improved water resources management.

Additionally, Saint-Louis’s location at the western edge of the Great Green Wall initiative offers another strategic advantage. This ambitious project aims to combat desertification and promote sustainable land use across the Sahel region. By aligning its water management goals with the objectives of the Great Green Wall, Saint-Louis can tap into a broader network of funding and support dedicated to environmental sustainability and climate resilience.

To effectively solicit funding, it will be essential to develop detailed proposals that outline the specific interventions required, such as potable water reuse and rainwater harvesting systems. These proposals should include comprehensive plans that demonstrate the feasibility and long-term benefits of the projects. Engaging with potential funders through targeted outreach and partnerships will be crucial. This might involve hosting site visits, presenting at international forums, and building alliances with organizations that have a vested interest in heritage conservation and sustainable development. By combining the city’s unique attributes with strategic advocacy and robust planning, Saint-Louis can secure the necessary financial support to implement innovative water management solutions.

Towards Sustainable and Integrated Water Resources Management in Saint-Louis

Saint-Louis’s location on the Senegal River Delta, combined with its distinctive geographic features and dramatic climate variabilities, significantly impacts the quality and quantity of its water resources. The city’s freshwater condition is further deteriorated by urbanization, inadequate water and sanitation planning and management, and financial and human resource constraints.

However, enhancing the city’s local capacity to plan and implement innovative interventions is a strategic step towards addressing these challenges and achieving sustainable and integrated water resources management (IWRM) in Saint-Louis. By strengthening the city government’s capacity to plan and implement IWRM, fostering public-private partnerships for improved water management, and increasing residents’ knowledge of sustainable practices, Saint-Louis will be better positioned to ensure sustainable and integrated water resources management.

The next steps for Saint-Louis will involve diversifying the city’s water portfolio by incorporating potable water reuse and rainwater harvesting. Implementing these measures will require comprehensive and strategic planning, including the development of robust infrastructure and design frameworks. It will also require collaboration among various stakeholders, such as government agencies, private sector partners, and the local community, to ensure the successful integration of these systems. Additionally, public education and awareness campaigns will be essential to promote the acceptance and proper use of these new water sources, ultimately contributing to a more resilient and sustainable water management system in Saint-Louis.

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