Chapter - III. Rural Sanitation Scenario in Andhra Pradesh. Andhra Pradesh is one of the biggest states in India 1 and is playing a vital role in

Transcription

1 Chapter - III Rural Sanitation Scenario in Andhra Pradesh Introduction Andhra Pradesh is one of the biggest states in India 1 and is playing a vital role in the country s socio, economic and political aspects. The Panchayat Raj Rural Water Supply & Sanitation (PR-RWS&S) Department is responsible for rural sanitation initiatives in the state. The Department of Panchayat Raj and Rural Development is looks after the planning and execution of programmes for rural development. Socio Economic Profile Andhra Pradesh has a good reputation in the fields of Information and Communication Technologies (ICT). The state has grown in terms of its technological infrastructure and is among the major states that has witnessed development in sectors like IT and Telecom and continues to be a preferred destination in the country 2. The State is an important tourist hub both for national and international travelers with several pilgrim centres, ports, rivers, beaches and hill stations. The socio economic profile of the state is a key aspect for development. Andhra Pradesh has a geographical area of 275,045 sq km 3. The Census 2011, places the state as India's fourth largest state by area and fifth largest by population, with 8.47 crore inhabitants 4. Andhra Pradesh State is blessed with major river systems like the Godavari, Krishna, Pennar, Vamsadhara and 36 other rivulets and endowed with abundant natural resources like fertile land and highly conducive climatic conditions. The geographical area of the State is classified into five categories of soils spread across nine Agro- 105

2 Climatic zones. The state enjoys several competitive socio-economic and demographic advantages. The State accounts for 7 per cent of the country s population per cent 5 of the total population live in rural areas of the state Census, provided many insights on issues related to sanitation like gender, sex ratio and number of households, which are important to implement rural sanitation programme. The Sex Ratio in the state, which rose from 978 in 2001 to 992 in , is higher than All India ratio of 940 in 2011 and reflects the sustained efforts of the Government in educating the people, especially those in rural areas. Literacy Rate in Andhra Pradesh has witnessed an upward trend and is percent as per 2011 population census 7. Andhra Pradesh has been historically called as the "Rice Bowl of India" and continues to be the largest producer of rice in the country. Progressive Growth Momentum After a moderate performance during the Ninth Five Year Plan (1997 to 2002) when the state registered a growth rate of 5.6 per cent, during this time, the economy accelerated in the Tenth Five Year Plan (2002 to 2007) to register an impressive growth of 8.2 per cent 8. The state with its growth propelling strategies and investment enabling policies could sustain the growth momentum even during the 11 th Plan, going on to surpass all India GDP growth rate by a few notches. Macro-Economic -Current Scenario The year marks the beginning of the XII plan and the performance of the state economy in the previous plan period sets the tone for future growth forecast. During the 11th Five Year Plan (2008 to 2012), Andhra Pradesh registered an average growth rate of 8.18 per cent against the Nation s GDP growth rate of 8.02 per cent 9 (at constant 106

3 prices). The Gross State Domestic Production (GSDP) at constant ( ) prices for the year (Advance Estimates) is estimated at Rs.4,26,470 crores as against Rs.4,05,046 crores for (First Revised Estimates) indicating a growth of 5.29 per cent. Per Capita Income is a broad pointer of the standard of living of its people. As per the advance estimates of , the Per Capita Income of Andhra Pradesh at current prices increased to Rs.77,277 from Rs.68,970 in , which registered a growth of 12 per cent. Andhra Pradesh maintained the trend of recording a higher per capita income than the national average 11. Profile of Rural Water Supply & Sanitation (RWS & S) in Andhra Pradesh The Panchayat Raj Rural Water Supply & Sanitation (PR-RWS&S) Department is the nodal agency for rural sanitation initiatives in the state. The Department of Panchayat Raj and Rural Development is responsible for planning and execution of programmes for rural development. The main functions of the department are: implementing schemes for rural development, improving the coverage and quality of infrastructure facilities in rural areas, making provision to provide clean drinking water and executing minor irrigation and poverty alleviation programmes 12. At present, the department is primarily responsible to implement several schemes to improve the living conditions of the people in rural areas and to create socio, economic awareness. Some of these schemes include: rural water supply, rural sanitation, Jawahar Gram Samrudhi Yojana (JGSY), community development, construction of mandal buildings and construction and maintenance of rural roads. 107

4 An Overview In Andhra Pradesh, rural sanitation coverage is gradually improving every year. There is a strong network of women s groups in the state with membership drawn from 94 per cent of households providing an excellent pathway to promote sanitation. In Medak district, UNICEF supported a campaign by the administration to mobilize women s groups to construct 100,000 toilets in 100 days 13. Rural Water Supply and Sanitation The Government is determined to solve the drinking water problem in rural areas by delivering adequate, safe and potable drinking water by ensuring supply of safe water to habitations. Hitherto, villagers suffered due to polluted water. About 2342 (1960 SVS, 382 MVS) works were taken up at a cost of Rs crore to cover 12,139 habitations in Till November 2012, Rs crore was spent covering 1947 habitations. Right now, balance works are in progress. NBA in Andhra Pradesh On 1 st April 2012, TSC has been renamed as NBA and sanitation projects were sanctioned in 22 districts 15 in a phased manner by GoI with matching share from the state government, beneficiaries and panchayats (see table No. 3.1). NBA emphasizes Information, Education and Communication (IEC), human resources development, and capacity development activities to increase awareness and demand generation for sanitation facilities. At the behest of GoI, state Governments took up on a massive scale by providing contributions to the matching grants. 16 The progress and latest targets can be known from the table given below. 108

5 2012 Sanitation Targets Sl. No. Details No. of Units Remarks 1 Individual Household Latrines (IHHL) Target 2 School Toilets 1,15,908 3 Anganwadi Toilets 14,990 Progress up to November Individual Household Latrines (IHHL) Target 2 School Toilets 1,12,588 3 Anganwadi Toilets 8,073 Table No ,02,65,917 For BPL & in Rural Areas only 81,71,542 For BPL & in Rural Areas only From the above table it is clear that Andhra Pradesh successfully implemented the rural sanitation programme. As many rural areas are adjacent to urban centres, local bodies in rural and urban centres played a proactive role in handling sanitation issues. In urban areas, water supply and sanitation improvement schemes are being taken up by the local bodies from time to time. This has been done to improve per capita water supply on par with national standards. Eighteen water supply schemes at an estimated cost of Rs crore have been completed during Based on past experience, the state and central governments fixed some targets to improve rural water supply and sanitation. A critical review of TSC by the Planning Commission showed the determined governmental effort to solve drinking water problem in rural areas 18 : It envisaged: Delivery of adequate, safe and potable drinking water to all rural people. Supply of safe water to habitations where water sources contain heavy amounts of fluoride and other contaminants. Up gradation of all habitations to fully covered status. Special focus on sustainability of sources/ schemes 109

6 Proper sanitation facilities to all habitations. These were planned to improve effective public service delivery system. The Government of Andhra Pradesh (GoAP) is implementing different State and Central sponsored programmes such as NRDWP, Desert Development Programme (DDP), Twelfth Finance Commission (TFC) programme, Rajiv Pallebata and other external agencies, which provide the necessary funds for implementing schemes/works related to provision of drinking water and sanitation facilities to habitations. Funds are also being tapped in the form of loans from NABARD, HUDCO and the World Bank. Achievements of Rural Sanitation Infrastructure State government created a lot of rural sanitation infrastructure (see table No.3.2) during the eleventh Five Year Plan ( ) and launched schemes in the financial year for rural habitations. This table shows the infrastructure created as on April 1, Sl. No. Details No. of Units 1 Hand pumps 3,43,376 2 Protected Water Supply (PWS) Schemes 57,038 3 Central Protected Water Supply (CPWS) Schemes 547 Coverage Status ( ) No. of Habitations Budget Spent (in Cr.) Rs Rural Water Supply & Sanitation Programme ( ) Rs Table No. 3.2 The above Table presents the central sponsored schemes with the state government s share and how rural sanitation programmes are being implemented in the state. For many years, bilateral agencies like WB, ADB and DFID have been funding 110

7 many programmes. In various districts, some projects are completed and other on going projects are in different stages of completion. World Bank Assistance In Andhra Pradesh, World Bank funded a major rural water supply and sanitation project called Andhra Pradesh Rural Water Supply and Sanitation (APRWSSP). An estimated outlay of Rs.864 crore covering six districts was sanctioned for five years and with WB assistance it is proposed to provide quality drinking water facilities in not covered and partially covered habitations 20. It is proposed to cover 2528 habitations in three batches of six districts of Andhra Pradesh namely Visakhapatnam, Prakasam, Kadapa, Mahabubnagar, Karimnagar and Adilabad. This project will come to a close in Social Sector Initiatives Planning Commission and the MDWSS reviewed the national performance at the end of the 11 th FYP, in this review the focus was on improving drinking water and sanitation conditions of the state in 72,388 habitations. It revealed that 17,318 habitations are fully covered (55 LPCD) and 40,276 habitations are partially covered by safe drinking water 21. It is proposed to cover the balance habitations with 40 LPCD service level by the end of the 12 th Plan period. Twelfth plan thrusts on increasing number of quality affected habitations to 14,794 and ensure safe drinking water in a phased manner by (see table No. 3.3). It is proposed to cover all the 21,757 GPs in Andhra Pradesh state with sanitation facilities during the 12th Plan. Assured water supply to schools, toilets and anganwadis is being taken up seriously

8 Budget Allocations Sl. No. Financial Year Estimation/Allocation (in thousands) Rs. 211, 00, Rs. 164, 78, Rs. 153, 61,78 Table No. 3.3 GoAP is gradually enhancing the budget for water supply and sanitation. Allocation of budget was high in current fiscal year ( ) 23. The 2003 habitation survey showed that 51 percent of the habitations in AP are Fully Covered (FC) with drinking water facilities, implying that they have access to a water source which is able to yield 40 LPCD, which is located in a radius of 1.6 kilometers from the centre of the village and within an elevation of 100 metres from the village 24. FC status thus still implies that many households have to travel long distances to fetch water. In addition, 36 percent of the habitations are Partially Covered (PC), implying that they have access to a source that does not meet the above criteria and 13 percent of habitations are either Not Covered (NC) or do not have access to a safe source of water supply. About 75 percent of the rural water schemes are dependent on groundwater sources and nearly half of these schemes currently tap over-exploited, critical and semi-critical aquifers; the situation has deteriorated further due to frequent droughts. Nearly 3 percent of the habitations rely on water sources with excess fluoride and/or salinity. About 30 percent of the habitations (or 11 million people) rely solely, or mostly, on hand pumps, 60 percent of the habitations (33 million people) on Single Village Schemes (SVS) and 10 percent of the habitations (11 million people) on Multi 112

9 Village Schemes (MVS). There is an increasing demand for piped water supply and household connections. Access to infrastructure, however, does not guarantee access to service: inadequate operation and maintenance (O&M), due to shortage of funds and technical expertise, is resulting in a continuous slippage of FC habitations to PC and NC categories. About 20 percent of the schemes, where O&M has been transferred to GPs are not fully operational and require rehabilitation or augmentation. About 50 percent of the households have individual toilets, but only half use them regularly with the remaining still adhering to open defecation practices. State level Institutional Arrangements Panchayat Raj Engineering Department (PRED) is currently responsible for planning, design and construction of SVS and MVS and O&M of common facilities of MVS. A significant step recently taken by the GoAP is the devolution of O&M responsibility of SVS and intra-village facilities of MVS to the GPs, which can also access PRED technical expertise 25. State Water & Sanitation Mission (SWSM) The GoAP has also established a State Water & Sanitation Mission (SWSM) for policy formulation and planning, and District Water & Sanitation Missions (DWSMs) in all districts for implementing the CRSP, Swajaldhara programme and TSC. These three programmes, which are demand driven with community participation and are to some extent decentralized, represent about 10 percent of the total funds available to the RWSS sector in AP. The GoAP would like to scale up these reform programmes across the state and appear as genuinely committed in decentralizing the delivery of RWSS services. As a first step, the responsibility for O&M of about 300,000 hand pumps and 41,000 SVS has 113

10 been transferred respectively to the block level (Mandal Parishad MP) and the village level (Gram Panchayat GP) 26. RWS & S Service Delivery The RWS & S sector relies heavily on GoAP subsidies for construction and for O&M 27 with the Mandal Parishads dependent on State grants for maintenance of hand pumps. Also, the GPs from their own resources subsidies the O&M of SVS. Due to paucity of funds and technical expertise, RWSS infrastructure and service is fast deteriorating. Collection and disposal of wastewater is being neglected and require attention, which is partially local governments, responsibility. For GoAP, the priority is to improve the performance and sustainability of the RWSS service provided by MP and GP. 28. Further, the current system of funding different RWSS programmes result in simultaneous implementation with conflicting rules in neighboring areas. This has led to programmes undermining each other, and also adversely impacting demand driven approaches requiring cost sharing by users 29. Based on the success of sector reform and Swajaldhara pilots, GoAP is keen to adopt uniform cost recovery policy across the sector. Rural Sanitation Vision In October 2006, GoAP issued the RWSS sector vision and policy note to clarify the objectives for ensuring access to a reliable 40 LPCD, the note stressed on providing entire rural population environmentally sustainable and financially affordable RWSS service. 114

11 GoAP s vision for RWSS: Devolution of funds, functions and functionaries to the PRIs Enforcement of full recovery of O&M costs and sharing of capital costs from user charges (taking into consideration affordability factor especially from disadvantaged groups); Improvement of the accountability framework by clarifying the roles and responsibilities of the various RWSS functionaries at state, district and village levels, including responsibilities for policy formulation, financing, regulation, construction, operations and maintenance 30. Vision introduced two significant changes namely, the transfer of the responsibility for planning, design and construction of the RWSS infrastructure, and for operating the RWSS service to the PRIs and communities with evolution of the role for the PRED to provide technical assistance to the PRIs. The GoAP envisaged distribution of responsibilities between key agencies 31. Institutional Analysis for Rural Sanitation in Andhra Pradesh is discussed below State Level Panchayat Raj and Rural Development (PR &RD): Overall RWSS policy formulation; definition of sector programme objectives and implementation arrangements. SWSM: RWSS programme planning and management, including detailed policy formulation, approval of annual plans and budget allocations; capacity building coordination; monitoring and evaluation (M&E), channeling of funds to GPs and VWSCs 115

12 PRED: Planning and implementation of complex MVS; GPs under contract with MVS; technical/engineering services under contract with PRIs and/or VWSCs 32. District Level DWSM: Review and implementation of RWSS sector programme (reporting to SWSM), approvals proposed by VWSCs and GPs, funding to VWSCs; capacity building of GPs and VWSCs, M&E 33. GPs at Community Level Gram Panchayat: Capacity building of VWSCs; approvals for RWSS schemes, account management, account auditing, conflict resolution, O&M and cost recovery of RWSS schemes; M&E VWSCs: RWSS scheme design, planning, procurement, construction supervision, assisted by engineering consultant of PRED under contract; O&M of SVS, setting of user charges (capital and O&M), accounts management 34. In implementing the cost sharing principles for full recovery of O&M costs, SWSM and PR&RD will set the targets for user charges and user contribution to capital costs. The contributions will be affordable in nature and meet the requirements of socially backward and disadvantaged groups 35. Subsidy provided by the GoAP towards O&M costs will bridge the gap between cost and the affordability level. In case of household and community sanitation, TSC policies will apply

13 World Bank s Involvement Based on such principles, GoAP sought World Bank s assistance for developing a comprehensive RWSS Sector Programme so that various GoI funded programmes are properly implemented. As the GoAP s RWSS programmes ( ) are being phased out, investments will see a set of new policies governing them 37. World Bank s support for project was for the following reasons: I. To assist in capacity building of the PRIs and build decentralized service delivery systems. II. To help scale-up the demand responsive approach with policy principles consistent with the Swajaldhara programme and the bank rules of engagement. III. To build on the experience accumulated in designing and implementing state wide RWSS projects supported by WB in India and other parts of the world, which is consistent with the proposed CAS and is part of WB s deliverables. A comprehensive document is being prepared by GoAP to clarify its updated RWSS sector policies, new procedures, institutions to be supported, and capacity building programmes aimed at local governments 38. Project Objectives The project objectives would help GoAP in increasing access of rural communities to reliable, sustainable and affordable RWS & S services. 117

14 The key outcomes are as follows: I. Increase in percentage habitations with improved drinking water and sanitation services; II. Rural households to get access to safe and adequate water supply throughout the year. III. Rural households to adopt improved hygiene and sanitation practices. IV. Improvements in cost recovery (contributions to capital and O&M cost) and collection efficiency 39. This project would contribute to GoAP s RWSS sector programmes by implementing new sector policy and institutional framework and financing its investment programme for the next five years. The project would include the following components of policies, institutional reforms and capacity building, which include: a. Development and implementation of updated procedures for new RWS & S projects by PRIs, financing application, project appraisal and channeling of GoAP funds. b. Development and implementation of MoUs and contracts to enhance the accountability framework. c. PRED reorganization to be a provider of technical assistance and contracted engineering consultant and operator. d. PRIs capacity building in community mobilization, RWSS project formulation, RWSS project implementation (including procurement, construction supervision 118

15 and financial management), sanitation and hygiene, O&M operations and setting of user charges. e. Capacity building of PRED, private engineering consultants and operators of WSS services. f. Pilot programmes on groundwater management, research and development and related sector studies 40. Investment: a) Augmentation, rehabilitation or construction of SVS and MVS, including improvement of water sources in about 15,000 habitations located in about 7,000 GPs covering a total population of 12 million b) Improvement of operational performance of all SVS and MVS schemes. c) Sanitation and environmental sanitation programmes including liquid and solid waste management 41. Centrally Sponsored Schemes (CUSS) in Andhra Pradesh Proper sanitation and adequate availability of drinking water is basic to individual health and hygiene, therefore, there is a direct relationship between water, sanitation and health. In India and in many of the developing countries, unsafe drinking water, improper disposal of human excreta, improper environmental sanitation and lack of personal and food hygiene have triggered major diseases and death. Poor sanitation is also a causative factor for higher infant mortality rate. Keeping all these factors in view, the 1986 Central Rural Sanitation Programme (CRSP) was launched with an objective of improving overall quality of life of the rural people. Also, to provide privacy and dignity to women

16 Through the centrally sponsored scheme (CSS), GoI earmarked special funds to implement TSC in Andhra Pradesh. Earlier, the concept of sanitation was limited to disposal of human excreta by cesspools, open ditches, pit latrines, bucket system, etc. but today it connotes a comprehensive concept, which includes liquid and solid waste disposal, food hygiene at the personal and domestic level, as well as environmental hygiene. From a general health point of view, proper sanitation is important and plays a vital role in upkeep of individual and community health. In Human Development Index (HDI), sanitation is seen as the prerequisite for good quality of life 43. Good sanitary practices prevent contamination of water and soil and thereby prevent diseases. Therefore, the concept of sanitation expanded to include personal hygiene, home sanitation, safe water, garbage disposal, excreta disposal and waste water disposal. Baseline Survey Indian Institute of Mass Communication (IIMC) in carried out a comprehensive baseline survey on Knowledge, Attitudes and Practices (KAP) in rural water supply and sanitation across the country. The study established that 55per cent of those with private latrines were self-motivated. Only 2per cent of the respondents claimed that providing subsidy was a motivating factor, while 54 per cent opted for sanitary latrines due to convenience and privacy. The study also showed that 51 per cent of the respondents were willing to spend up to Rs.1000/- to acquire sanitary toilets. TSC in Andhra Pradesh CRSP improved due to the factors mentioned in IIMC study and shifted towards a demand driven model, which resulted in launch of TSC. This emphasized more on IEC, HRD, Capacity Development activities to increase awareness among the rural people and 120

17 generation of demand for sanitary facilities. Depending on financial conditions, IEC provides appropriate options through alternate delivery mechanisms and enhance people s capacity. Community-led and people centered initiatives helped in implementing IEC successfully. Massive Initiatives In 2003, GoAP launched TSC Programme in 22 districts. At this juncture, GoAP was actively involved in Food for Work Programme (FFWP) to encourage the rural poor to construct Individual Sanitary Latrines (ISLs) 44. Government took up on a massive scale rural sanitation programme to construct lakh individual sanitary latrines and 58,000 school toilets in rural areas. Resources were mobilized, awareness campaigns were launched with objective of improving health and hygienic conditions of the people and protect the dignity of women 45. Objectives of the Campaign Based on GoI guidelines, the state government issued a few directives with the following objectives of the TSC 46. To improve general quality of life in rural areas. To accelerate sanitation coverage by making provision for toilets in rural areas. To create health awareness by motivating communities and PRIs on sustainable sanitation facilities. To cover schools and Anganwadis, with sanitation facilities and promote hygiene education and sanitary habits among students in rural areas. To encourage cost effective technologies for ecologically safe and sustainable sanitation. 121

18 To develop community managed environmental sanitation systems focusing on solid and liquid waste management. Demand Driven Model The programme strategized into making this a 'community led' and 'people centric'. "Demand driven approach" in order to have an increased emphasis on awareness creation for sanitary facilities having clean environment in houses, schools and government owned buildings 47. Community needs were met out of alternate delivery mechanisms. From providing subsidy for individual household latrine units, a shift replaced it into incentive for households from the poorest of the poor. Rural school sanitation turned into an entry point for wider acceptance of sanitation by the rural people. To meet with location specific customer preferences, intensive IEC Campaign involving PRIs, cooperatives, women Groups, self help groups, NGOs, etc., were launched keeping in view technology improvisations as components of Strategy. This addressed all sections of the rural population to bring about the relevant behavioural changes for improved sanitation and hygiene practices and meet their sanitary hardware requirements in an affordable and accessible manner by offering a wide range of technological choices 48. Implementation modus operandi A project proposal from a district is scrutinized by the Governments both central and state through the Department of Drinking Water Supply and Sanitation (DDWS), Ministry of Rural Development 49. Funds were made available for TSC s preliminary IEC work that was to be implemented in phases along with start-up activities. The physical 122

19 implementation was to satisfy the felt needs of people, while individuals choose from a range of options for their household latrines. The flexible range provided an opportunity to go for an upgrade option depending upon their requirements and financial position of the poor and disadvantaged families 50. The campaign approach synergized interaction between the government agencies and stakeholders, intensive IEC and advocacy, participation of NGOs and PRIs, in order to bring about desired behavioral changes. To meet up with the demand for sanitary hardware, alternate delivery system, proper technical specifications, designs and quality of installations were provided to effectively fulfill the generated demand. Important components TSC programme implementation components are as follows: Start-Up Activities The start-up activities include conducting of a preliminary survey to assess the status of sanitation and hygiene practices, people s attitude and demand for improved sanitation, etc., with the aim to prepare the District TSC project proposals for seeking Government of India assistance 51. The start-up activities will also include conducting a Baseline Survey (BLS), preparation of Project Implementation Plan (PIP), initial orientation and training of key programme managers at the district level. The cost of Start-up activities will be met fully by the GoI s assistance, which should not exceed five percent of the total project. IEC Activities Information, Education and Communication are important components of the programme. These are intended to create demand for sanitary facilities in the rural 123

20 areas for households, schools, Anganwadis, Balwadies and community sanitary complexes. The activities should involve and trigger interest in all sections of rural population so that people willingly construct latrines, therefore, IEC should not be seen as a one-time activity. IEC plan and strategy should not only create demand, but also ensure use, maintenance and up gradation, which should be part of sustainable rural life. Community and culture specific plans may be necessary to achieve 100 per cent sanitation coverage 52. GoI developed a national communication strategy and plan with due emphasis on inter personal communication at the grassroots level. The website details the communication strategy and the tools. The strategy laid clear emphasis on the role of motivators, who can be engaged at the village level for demand creation and also help in communication for behaviour change. Motivators got suitable incentives from the funds earmarked for IEC, which was performance based. IEC supported mass media campaign was taken up at the national and state levels and at the district level, focus was on inter-personal communication, use of folk media and also outdoor media like wall painting, hoarding, etc 53. IEC funding was based on 80:20 ratios between GOI and the State Governments, with a startup grant limited to 15 per cent of the total project cost. IEC Annual Action Plan prepared by each project district was submitted in the month of February of the preceding financial year so that defined strategies reach all sections of the community. The aim was to motivate rural people to adopt hygienic behaviour and maintain all facilities created under the programme. District Panchayat (or the DWSM, where such bodies are not in existence) approved IEC Action Plan

21 Communication and Capacity Development Units Communication and Capacity Development Units (CCDUs) set up at the state level supported districts in developing a good IEC plan and its implementation it. For execution of IEC dissemination works, funds were provided by block and gram panchayats, which engaged local NGOs for interpersonal communication; selecting motivators and executing works like wall paintings, street plays, etc. Standardized IEC material was supervised by district or the CCDU. Funds available for IEC were used for imparting hygiene education to the rural communities, general public, as well as children in schools. The IEC plan includes a component for raising awareness among school going children, teachers and PTAs 55. It also included training programmes for masons, SHGs, etc, for activities related to sanitation, such as production of sanitary pans, sanitary napkins, etc. Rural Sanitary Marts and Production Centres RSM is an outlet dealing with the materials, hardware and designs required for the construction of not only sanitary latrines, but also other sanitary facilities, such as soakage and compost pits, vermi-composting, washing platforms, certified domestic water filters and other sanitation and hygiene accessories required for individuals, families in rural areas. RSM should necessarily have those items, which are required as a part of the sanitation package. It is a commercial venture with a social objective to promote rural sanitation activities among rural mass. 125

22 Rural Sanitation Coverage in Andhra Pradesh (2012) In the last decade, TSC made significant improvement in sanitation coverage of Andhra Pradesh and has been actively implemented through effective IEC and communication strategies 56. The latest coverage data of rural sanitation in Andhra Pradesh is provided in Annexure. Other Initiatives by the State The state government on its own made efforts to achieve Total Sanitation 57. The initiatives taken up by the State are: A total approach to sanitation Open Defecation Free (ODF) community for safe environment. A community led approach where the community takes a lead role to change attitudes and bring about behavioral changes for sustainable environment. Rural women to be targeted for receiving health and hygiene messages so that they go to transmit the information and convince the community on health and hygiene issues. School children to be involved as they can play an effective role in absorbing and popularizing new ideas and concepts. Competitions, rallies and exhibitions are to be conducted at the school level to tap potential and persuade them to take up good sanitation practices in their own households and in schools. Training of Trainers (ToTs) at gram panchayat, mandal and district levels to spread the messages on health and personal hygiene practices, safe disposal 126

23 of solid and liquid waste and importance of drinking water, quality and sustainability of drinking water sources. Sanitary parks are to be established in districts depicting models of ISLs, sanitary ware to enable the community to choose models and also to spread the message of clean village concept. SWSM as nodal centre to achieve the set targets by GoAP. GoAP Special Initiatives In 2007, GoAP introduced state awards under Shubhram initiative 58. The main objective was to encourage rural local institutions for promoting best sanitation practices as defined below: Best PRIs on the basis of total sanitation achievement to get annual award. Competition for Shubhram award has been designed to encourage participating districts. Best GPs at mandal, District and State level would be rewarded in addition to best Mandal Parishad and the best Zilla Parishad. The award has been instituted to usher a positive shift in the general perception of targeted people: Sanitation is not just to be seen as excreta disposal system and mere promotion of toilets but should focus on collective behavioral change of the community rather than targeting individuals. Total sanitation should spread to other components such as solid and liquid waste management, health and hygiene practices, etc. 127

24 Total sanitation should be achieved through community participation and collective action at GPs level, which is the most crucial factor for a positive shift in behaviour. Apart from the state reward, GoI awards for best sanitation villages come under Nirmal Gram Puraskar Challenges in Andhra Pradesh In achieving targets and implementation of rural sanitation programme, there were many problems and challenges faced by GoAP 59. The following can briefly summarize those challenges: In the case of institutional toilets, per unit cost sanctioned is not sufficient. To sustain coverage and scale up to reach the entire rural community. One of the most serious concerns is high prevalence of opendefecation. Maintenance of institutional toilets. Bringing behavioural changes in communities as a whole. Reaching the un-reached segments particularly tribal areas. Suitable technological options for specific conditions. Other Challenges TSC and other central government projects have got affected due to spiralling costs of steel and cement prices. Despite all these, TSC since 1999 has made a significant contribution towards improved sanitation for the rural poor. 128

25 Partnership with other stake holders The primary responsibility to implement rural sanitation programme rests with the department of PR-RWS&S 60. A key stakeholder on behalf of the Government, it promoted other civil society organizations for enhancing community participation. A few international, national and state level government and non government organizations have been involved in this programme. GoAP has partnered with agencies/departments like WB funded Indira Kranthi Patham (IKP) SHGs and NGOs, Training institutes like APARD, NAC, External agencies WSP-SA and Unicef and a host of others. Partnership with IKP In AP, IKP has been successful in building a cadre of highly motivated, capacitated women as community resource persons across all villages in districts. As part of health & nutrition strategy, IKP has partnered with SWSM to achieve total sanitation in 44 mandals (two mandals per district) in the state. WSP-SA is supporting the development of master trainers on CLTS approach among the project functionaries and the Community Resource Persons ( CRPs) The pilot batch has been successful in exuding confidence that IKP can achieve Open Defecation Free (ODF) communities. IKP is now proposing to scale up its operations in other districts targeting to achieve 1000 ODF communities 61. Partnership with NGOs In all the districts, NGOs have been involved extensively to promote sanitation. NGO participants expressed total confidence in CLTS approaches and will be part of district s capacity to scale up ODF status. In West Godavari and Medak districts, NGOs 129

26 networks have been roped in to extensively undertake campaigns. Other districts are also encouraging NGO partnerships 62. Partnership with External Agencies WSP SA is providing technical assistance through policy advice, capacity building, knowledge sharing/ documentation, exposure visits, etc. UNICEF is supporting Human Resource Development (HRD) activities, training field functionaries, capacity building etc 63. Rural Sanitation Communication In order to sensitize the community at the grassroots level, rural sanitation needs a lot of media attention with social development role of media turning crucial. Development Communication played an important role in empowering audiences that the benefits accrue by investing in right practices, which should keep in mind the barriers and variables related to infrastructure, socio-cultural traditions and beliefs 64. The task becomes difficult if tangible benefits are not offered to the audiences and the communication is set to overcome all barriers. Communication strategy triggered a positive change among the stakeholders on crucial issues of hygiene, sanitation and use of safe water, which had gone to convert knowledge into practice 65. Programmes Implementation in Andhra Pradesh In India with the federal structure of constitution and governance, implementation of developmental and welfare activities and schemes turns into a big challenge because of the political and policy differences between the GoI and the state governments. However, the state governments should feel responsibility to follow and implement the schemes and programmes as directed by the GoI. The implementation framework and institutional 130

27 setup act as a stumbling block in the development process. In this context, it is very important to evaluate or to know the success of schemes related to rural sanitation in Andhra Pradesh. Some historical perspective on rural sanitation programme, Panchayat Raj and Rural Development (PR & RD) department was the only department in the state which was responsible for implementation of various rural development programmes till the onset of Twenty two districts out of 23 in Andhra Pradesh (leaving Hyderabad district as it was fully urbanized) was working under this department. All Gram Panchayats, Mandal Parishads and Zilla Parishads at various levels of rural local governance were covered by PR & RD. Success Stories n Andhra Pradesh There are many success stories from a few villages for 100 per cent sanitation coverage in Andhra Pradesh state 66. Those gram panchayats stood at national level as role models for others. These villages got national level awards for better sanitation coverage. We shall now look at some villages success stories as inspiration. We can know about three best villages from three regions of Andhra Pradesh. Andhra Pradesh Success Stories Anathasagar (Medak district) NGP award for best sanitation practices and 100 per cent coverage was received by Anathasagar village of Chinnakodur Mandal of Medak District of Andhra Pradesh. Prior to the launch of TSC programme, like most villages, people use to defecate in the open and it was known for all kinds of water born diseases, which changed due to Gram Panchayat s penalty clause that anybody found in open defecation would be fined. 131

28 This alerted the people of Ananthasagar and there was a slow mindset change within the village community. In order to empower villagers, GP took up IEC activities on a regular scale. Programmes for awareness generation were planned in the form of traditional folk media, Kalajatha and door to door campaign, wall paintings, parents meetings in schools, rallies and other programmes. School sanitation committee for toilet complexes in schools, wash committees, environment and health committees were also formed to achieve 100 per cent coverage. Juvvalapalem (West Godavari district) Situated near the coast of Bay of Bengal, Juvvalapalem, a small village (3700 population) in West Godavari District of Andhra Pradesh suffered ill health due to lack of drinking water facility, poor hygiene, open defecation and lack of waste disposal system. The effort logged in by the elected representatives of Panchyat turned Juvvalapalem into a healthy place. Today, Juvvalapalem has bagged Nirmal Gram Puraskar award for 100 per cent coverage. Initially, the Panchayat faced resistance and non co-operation from the community, but gradually through sanitary awareness campaigns they convinced the masses with school going children playing an important role in persuading elders in the village. The villagers took oath to free from open defecation and formed human chain to fight against open defecation system. Along with achieving 100 per cent sanitation target, the village noticed a slide in water borne diseases. School going children were served with eggs through mid-day meal programme to improve health. A unique waste disposable system was developed, wherein everyday from households waste was lugged to the nearby dump yard through cycle rickshaw or bullock 132

29 carts. The dump was further classified into recyclable and bio degradable and was properly disposed to safeguard the public health. Villagers were also provided with International standard mineral water at a highly subsidized cost of 12 paisa per liter for public consumption and free to schools and hospitals. This arrangement was in addition to a well maintained protected water supply system. K Rayavaram (Chittor district) In K. Rayavaram, a small village in Chittor District of Andhra Pradesh, villagers got together to fight for 100 per cent sanitation coverage. Through the joint efforts of the community and GP K.Rayavaram with a population of 1312 turned into a defecation free place and bagged NGP for By mobilizing community members, it had organized a series of meetings to impress its members to achieve 100 per cent sanitation. GP also imposed fine on small violations and passed a unanimous resolution to keep the village mosquitoes and houseflies free. This was followed by a campaign against use of plastic bags and on solid waste management. A sanitation festival titled Sugathara Thiruvizha was organized every month to empower the village community. In Rayavaram, individual toilets were not maintained properly. However, a strong sense of community ownership helped them to successfully run women sanitary complex. PR-RWS in Andhra Pradesh Ministerial framework was changed, due to the high priority for the rural development activities at the central level. A restructured setup was created to speed up rural development as well as rural water supply and sanitation initiatives. In 1997, the GoAP formed a separate wing under PR & RD Department as mandated by GoI. In this 133

30 arrangement, exclusive staff for rural water and sanitation was deputed from PR & RD to execute rural sanitation and drinking water supply schemes at the grassroots level. From that time, rural water supply department has dedicated all its activities for the community. Formation of PR-RWS & S As implementation authority, state government through development schemes reaches out at the grassroots level. Though such programmes have support from central funding agencies, it is the state that takes a lead in implementing schemes. A separate department under the aegis of PR & RD takes up all sanitation related works. 67. GoAP formed a separate wing was setup and was called as Rural Water Supply & Sanitation (RWS & S) to formulate policies related to rural water supply and sanitation. Also, an exclusive engineering department was created at the state level for implementation and coordination of the rural sanitation programs all over the state. PR- RWS was started in 1997 by GoAP and was entrusted with a huge responsibility of ensuring quality drinking water. Exercising powers conferred under Article 309 of the Constitution of India, GoAP decided to separate these into Panchayat Raj and Rural Water Supply Departments 68. Accordingly, in 2007 Panchayat Raj Rural development Engineering service was bifurcated into Panchayat Raj Engineering service and Rural Water Supply Engineering Service. It functions directly under Principal Secretary to Government (RWS), who is the administrative head and Engineer-in-Chief as technical head. Rationale for a Separate Department Drinking water supply is important as over 80 per cent of health problems are due to consumption of unsafe drinking water. The emphasis on rural health awareness 134

31 stressed on the need to promote safe drinking water to the rural population. In order to act as a clearing house on all related issues, RWS was setup. Administrative Setup The administrative setup of PR-RWS & S and other state government departments are different, with only one department at secretariat level for all policy framework with budgets allocated in the name of PR & RD (see table No. 3.4). Once budget allocations are made at the secretariat level, policy formulations are done under separate Secretary and Principal Secretary for each of the department, i.e., Panchayat raj and Rural Water Supply & Sanitation. The organization has offices across the State to achieve set organizational objectives 69. Set up of Panchayat Raj Engineering Department Level Office Name Headed by State Level Head office (o/o E-in-C or CE) Engineer-in-Chief/Chief Engineer District Level Circle office Superintending Engineer Division Level Division Office Executive Engineer Mandal Level ( for 3 to 4 mandals) Sub-Division Office Deputy Executive Engineer Mandal Level Section Office Assistant Executive Engineer/Asst. Engineer Table No. 3.4 The PR-RWS&S department is broadly divided into five levels from grassroots level to state level with different layers of technical and non technical staff. At the state level, the Engineer-in-Chief (E in C) is head of the department and the Chief Engineer is the in-charge of one programme, he/she reports to Engineer-in-Chief. Based on the above 135

32 lines, offices have been established at various levels in the organization for execution and maintenance of works 70. Within the department, there is a separate wing; the Geological Wing is headed by the Executive Director, who is overall in-charge of the wing covering two main work areas ground water survey and selection of points / sources for RWS works 71. For each zone, there is one Senior Geologist to oversee the selection of sources attached to the circle offices. In all, there are six such officers in AP supported by 41 Junior Geologists. In order to test water samples for chemical composition and bacterial residue, 51 water testing laboratories have been established. Role of Technical Functionaries In accordance with the constitutional directions with regard to federal structure, the PR-RWS&S department also had drawn various roles and responsibilities for each functionary to carry out rural water supply and sanitation activities. 7 Detailed information is provided in the table below 73. Role of Engineer-in-Chief, RWS&S Head of the organization and is accountable to the Government in all matters relating to RWS&S Department. Advisor to State Government on all matters relating to RWS&S Engineering Department. Responsible for the following functions: Overall control on both administrative and technical matters, for effective formulation, implementation and monitoring of the programmes and schemes entrusted to the organization with budgetary 136

33 control. Overall accountability in matters relating to LF Audit, AG Audit, and Public Accounts Committee (PAC). Recommend to the State Government postings of SEs. & EEs, removal and transfers. Empowered to transfer Dy. EEs within their zones and to see that budget allotments of the year under various schemes and programmes are fully utilized. Role of Chief Engineer, RWS& Projects Works under the control of Engineer-in-chief. Exercises technical control over Superintending Engineers, RWS/ Executive Engineers, RWS/ Dy. Executive Engineers, RWS/Section Officers, RWS and all other subordinate staff working under his/her control. Overall in charge of formulation, implementation, monitoring and satisfactory completion of all schemes taken up under RWS, ARWS programmes SMP, NABARD, PMGY, etc. Maintain hand pump systems and CPWS schemes in the State. To monitor the pace of implementation and take suitable measures for timely completion of programmes and schemes. To collect information needed by the Engineer-in-chief or the Government and submit consolidated reports on time. Attend PAC meetings, LF and AG Audits 74. Project Director (SWSM) Works under the control of Engineer-in-chief. In charge for IEC programme launched by GoI to create awareness among people through mass media about Water Supply and Sanitation. In charge of UNICEF Assisted Training Programmes 137