72448 Report Situation Assessment of the Supply Market for Rural Sanitation in Himachal Pradesh and Madhya Pradesh Amaka Godfrey Global Scaling Up Sanitation Project April 2008 This report is one in a series of products of the Water and Sanitation Program’s Scaling Up Sanitation Project funded by the Bill and Melinda Gates Foundation. A major focus of the project is on learning how to scale up efforts in the sanitation sector in the developing world.. The project tests proven and promising approaches to create demand for sanitation and the use of marketing techniques to generate demand and improve the supply of sanitation-related products and services among the rural poor. This series of reports documents the findings of work in progress in the sanitation sector in order to encourage the exchange of ideas and information and to promote learning. Please send your feedback to: wsp@worldbank.org Water and Sanitation Program WSP is a multi-donor partnership administered by the World Bank to assist the poor in gaining sustained access to improved water supply and sanitation services (WSS). For more information, please visit: www.wsp.org Credits Photo Credits: The World Bank Photo Library Editorial Support: Paula Whitacre Production: Hannatu Ogunnaike ABOUT THE AUTHOR Amaka Godfrey Amaka Godfrey is a hygiene/sanitation promotion and institutional capacity building specialist in rural and urban water supply and sanitation. He has over 14 years experience in community development and training in water supply, sanitation and wider environmental health issues in developing countries and the UK. The findings, interpretations and conclusions expressed in this report are entirely those of the author. They do not necessarily represent the views of the International Bank for Reconstruction and Development/World Bank and its affiliated organizations or those of the Executive Directors of the World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this publication and accepts no responsibility whatsoever for any consequence of their use. The boundaries, colors, denominations and other information shown on any map in the document do not imply any judgement on the part of the World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. ii Global Scaling Up Sanitation Project Table of Contents LIST OF ACRONYMS AND ABBREVIATIONS…………………………………………...v SUMMARY……………………………………………………………………………………..vi Findings from Himachal Pradesh………………………………………………………………...vi Findings from Madhya Pradesh………………………………………………………………….vii 1. INTRODUCTION…………………………………………………………………………….1 Overview of Total Sanitation Campaign in India…………………………………………………1 Overview of TSC Program in Himachal Pradesh…………………………………………………2 Overview of TSC Program in Madhya Pradesh…………………………………………………..4 2. SITUATION ASSESSMENT OF THE SANITATION SUPPLY MARKET……………..7 Himachal Pradesh…………………………………………………………………………………7 Madhya Pradesh………………………………………………………………………………….16 3. IMPLICATIONS OF THE SANITATION MARKET SITUATION IN HP AND MP FOR TOTAL SANITATION AND SANITATION MARKETING (TSSM)…………….27 Comparing CLTS, Sanitation Marketing and TSC Approaches…………………………………27 What is the place of CLTS and Sanitation Marketing in the current TSC Program?....................28 Scaling Up TSSM – Recommendations for the Way Forward…………………………………..29 Proposed Framework for TSSM…………………………………………………………………34 Proposed Institutional Structure to support TSSM………………………………………………39 REFERENCES………………………………………………………………………………….42 iii Global Scaling Up Sanitation Project LIST OF TABLES Table 1: Details of amount released (from Central Govt. share) to Himachal Pradesh…………3 Table 2: Annual Achievements of Physical Latrine Components – Madhya Pradesh………….6 Table 3: Breakdown of Latrine cost as given by PHE Department…………………………….21 Table 4: Comparison of CLTS, Sanitation Marketing and TSC………………………………..27 LIST OF FIGURES Figure 1: Examples of Simple Pit Latrines……………………………………………………….9 Figure 2: A Septic Tank under construction……………………………………………………..10 Figure 3: Examples of Low-Cost Latrines in Himachal Pradesh………………………………..11 Figure 4: Estimated Costs of Latrines in Himachal Pradesh…………………………………….12 Figure 5: Types of Latrine Pans in Himachal Pradesh…………………………………………..13 Figure 6: Some Examples of Latrines in Madhya Pradesh……………………………………...22 Figure 7: Types of Latrine Pans in Madhya Pradesh……………………………………………24 Figure 8: Proposed TSSM Framework…………………………………………………………..38 Figure 9: Proposed Institutional Structure for TSSM…………………………………………....41 iv Global Scaling Up Sanitation Project LIST OF ACRONYMS AND ABBREVIATIONS APL Above Poverty Line BPL Below Poverty Line CBO Community-based organization CEO Chief Executive Officer CLTS Community Led Total Sanitation GoI Government of India GoMP Government of Madhya Pradesh GP Gram Panchayat GVS Giyan Vigyan Samiti HP Himachal Pradesh IEC Information, Education, and Communication IHHL Individual Household Latrine MP Madhya Pradesh NGO Nongovernmental organization NGP Nirmal Gram Pruskar (Total Sanitation Award) PDS Public distribution shop PHE Public Health Engineering (Department) PRA Participatory rural appraisal PRI Panchayat Raj Institution RSM Rural sanitation mart SSHE School sanitation and hygiene education TSC Total Sanitation Campaign TSSM Total Sanitation and Sanitation Marketing (Project) WSP Water and Sanitation Program 1 Lakh Rs100,000.00 or approximately US$2,500 v Global Scaling Up Sanitation Project SUMMARY The Total Sanitation Campaign (TSC), a national program for sanitation by the Government of India, has been ongoing for more than three years. The TSC program is managed by the Rajiv Ghandi Mission for Drinking Water of the Rural Development Department at the national level. At the state level, the program is managed by the Rural Development Department in Himachal Pradesh and Madhya Pradesh, although previously by the Public Health Engineering Department in Madhya Pradesh. The TSC program, which is aimed at eradicating open defecation in India by 2010, has four main components: (1) Individual household latrines; (2) school sanitation and hygiene education; (3) community sanitary complexes; and (4) anganwadi latrines. The program encourages cost-effective and appropriate technologies, and recommends the conversion of dry pit latrines to pour flush. The TSC guideline strongly recommends the use of a demand-driven approach that is people-centered and at the same time offers a subsidy to assist poor households to build latrines. The subsidy has recently been increased three-fold from Rs500 to Rs1,500. The program also has an award scheme (known as the Nirmal Gram Pruskar) with financial incentives for villages that have achieved total sanitation coverage. Although the guideline recommends the use of demand-driven approaches, TSC in many states, including Himachal Pradesh and Madhya Pradesh, has become supply-driven. The increased awareness of the TSC program amongst various state governments and the urge to win more Nirmal Gram Puskar (NGP) awards had led to an increase and extension of latrine subsidies to every household. If the current trend continues, the program will end up like previous sanitation programs, with many latrines abandoned soon after receiving an NGP award. vi Global Scaling Up Sanitation Project In comparison, Community-Led Total Sanitation (CLTS) is an approach that involves the community in analyzing its sanitation situation and encourages members to develop solutions for eradicating open defecation. CLTS focuses on communal rather than on individual household actions. Sanitation marketing is the use of commercial marketing principles to create demand and uptake of improved sanitation. It uses market research methods to try to understand the motivations and barriers for individuals to acquire or not acquire improved sanitation facilities. This information is used to develop concepts and materials for promotion. It also identifies attributes that consumers want or need in a toilet, which is then used to enhance supply mechanisms by providing various toilet options, improving access to builders and materials suppliers. The Global Scaling Up Sanitation Project is the fusion of CLTS and sanitation marketing. The project is applying a total sanitation and sanitation marketing approach (TSSM). In TSSM, sanitation marketing complements CLTS to assess and create demand and to improve supply mechanisms. It develops approaches to create demand for sanitation and to improve the supply of sanitation-related products and services in order to increase household access to safe and sustainable sanitation. This report documents findings from the situation assessment of the supply market for rural sanitation in Himachal Pradesh and Madhya Pradesh within the context of current state-level sanitation programs. Findings from Himachal Pradesh • CLTS has been ongoing in some districts in Himachal Pradesh but not in others. In districts where CLTS is being implemented, such as Solan District, evidence shows that it is a sustainable approach for eradicating open defecation. • At the state level, responsibility for the TSC program lies with the Joint Secretary of the Rural Development Department, which is also responsible for 12 other government schemes. As a result, it is practically impossible for the TSC program to receive due attention. • The lack of a specific cell for TSC headed by a senior officer may have contributed to the minimal achievement otherwise expected from Himachal Pradesh, considering that CLTS has been implemented for more than three years. One explanation for this could be the lack of an established system for supporting and monitoring progress post-CLTS workshops. • The capacity and skills for facilitating CLTS do not seem to be widespread across the state. Solan District, for example, seems to have a strong capacity, while CLTS capacity is significantly lower in the blocks visited in Shimla District. • In order to scale up TSSM in the state, there is a need to have an effective institutional framework and strategy for supporting and monitoring progress. The motivators at the village level should be part of this institution, led by a community leader. Depending on the size of a District, the gram panchayats can be grouped into clusters with a facilitator assigned to each cluster, preferably staff members from the Health, Education, Public Health Engineering (PHE), Women & Child Development, or Rural Development Department. The facilitators would report to a block-level coordinator, preferably the chief executive officers (CEOs), who would then report to the district coordinator. Regular meetings (monthly at the onset) should be held to discuss progress and difficulties. This is not as complicated as it sounds, as the institutional framework is already in existence and these suggestions only put it to good use. • Although there is a clear state sanitation strategy, its awareness and implementation in the district is very minimal, hence the disparity in the use of the latrine subsidy. In some districts, subsidies are given directly to households and sometimes even extended to families above the poverty line. This is vii Global Scaling Up Sanitation Project clearly against the recommendations in the state strategy, which indicates that a subsidy should be given as an incentive when a community has achieved open defecation free (ODF) status. • The strategy for sanitation promotion is unclear. A nongovernmental organization (NGO) has been contracted to implement the information, education, and communication (IEC) component of TSC in more than eight districts. The NGO may be disinclined to use the CLTS approach, which could prove incompatible with the Global Scaling Up Sanitation Project in these districts. • Latrine technology in Himachal Pradesh can be divided into dry and wet latrines, including low- and high-cost options. • One striking discovery is the extremely high-cost method of latrine construction. This type of latrine, generally known as a “paca� latrine, costs between Rs30,000–Rs45,000 (US$750– $1,125). It consists of a large septic tank with reinforced concrete lining and a brick superstructure with a reinforced concrete roof. The insides of the latrines are often finished to a very high standard with matching tiles, squat pan, and shower units. It is not known how and when this technology was introduced, but it seems to be the aspiration of many households. Some families prefer to wait until they can afford such latrines. The bulk of the cost of the “paca� is in the lining of the septic tank. • Himachal Pradesh also offers interesting innovative low-cost latrine options designed by individuals. These options are, however, scattered across the state and not really documented to facilitate knowledge transfer. • One approach for ensuring that a menu of low-cost latrine options is offered to households across the state is to compile a latrine catalogue. The catalogue should also indicate which option is suitable for the various areas of the state, depending on their geological formation, and an estimated cost for each option. • In the districts visited, the government seems open to various low-cost latrine technology options. There is also a perception that they are keen for villages to become truly ODF, rather than just counting the number of latrines built. • The sanitation supply market is well established and completely controlled by the private sector. Most latrine construction materials and components are easily accessible even in the most remote parts of the state. Retailers of sanitary wares are keen to stock components of any latrine that is or will potentially be in demand. • The major information gap in the supply market regards the capacity of masons to construct low-cost latrines. It is generally known that all the masons are from outside of the state. There has been no known training on low-cost latrines organized for the masons in Himachal Pradesh. Findings from Madhya Pradesh • There has been an increase in awareness of the TSC program among the government and communities over the past year. This has resulted in increased targets for the NGP award across the districts. At the time of the assessment, the TSC program was in the process of being transferred from the PHE to the Rural Development Department. • The concept of CLTS is new in Madhya Pradesh, and there is limited capacity to implement it in the state. Over the years, a subsidy has been the main approach used in government sanitation programs. It would therefore not be surprising that the government is less keen to adopt the CLTS approach. viii Global Scaling Up Sanitation Project • A good example is in Khandwa District, where a training-of-trainers workshop on CLTS was held. There was no mention of the training by either government staff or community members who attended the training until they were asked. The TSC program was “business as usual,� and subsidies were given to every household, sometimes a higher amount than recommended. • It is hoped that with the transfer of TSC to the Rural Development Department (a less construction- oriented department), there will be more interest to adopt the CLTS approach. This will require continuous and joint advocacy by the Water and Sanitation Program (WSP) and other key players in the state such as UNICEF. • It is also important for WSP to review the contents of the CLTS training manual and differentiate between materials for trainers and those for motivators. Separate training workshops should be organized for motivators and trainers. The District Administration where training is being organized should be advised and given the criteria for nominating people as either trainers or motivators, if this is not already been done. • Although CLTS is new in the state, it was discovered during the field visits that a demand-driven sanitation project with similar principles to CLTS (non-subsidy based) has been successfully implemented in Betul and Chhindwara Districts under a UNICEF project. • The appointment of a collector who was the CEO when the above-mentioned project was implemented in Betul could be a good opportunity for WSP to build on and introduce CLTS. The major difficulty will be to implement a sanitation project without a subsidy in the current climate. • Unlike in Himachal Pradesh where there are various latrine options, MP is restricted to only one option with limited flexibility even down to the degree of sloping in squat pans. The PHE Department prescribed the size of the pit, lining methods, and even the size and type of the superstructure. • Because the government is highly involved in the supply of sanitation facilities using a subsidy, households are reluctant to build their own latrines or even make any innovative modifications. This could also explain the reason for the absence of very high-cost latrines as seen in Himachal Pradesh. • The sanitation supply market in the state is well established, but the majority of its business is with the government rather than individual households. Retailers supply most construction materials to the government, which also contracts and directly pays masons. • The retail shops stock all latrine construction materials and components of most latrines but rarely stock the rural pan with the prescribed slope. The reason is that there is minimal individual demand for rural pans so they only order these supplies when the government puts in an order. • Government and privately owned rural sanitary marts (RSMs) were visited in Betul District. While the government RSMs were nonfunctional and only stocked rural pans at a higher cost, private RSMs were running effectively and stocked most construction materials including other types of squat pans. Most of the private RSMs were initially supported by UNICEF under a revolving fund. The private retailers of sanitary hardware stocked more varieties of toilet components. It may therefore be more sustainable to allow the private sector to continue to play the supply role for toilet components and materials. • The findings from Madhya Pradesh strongly support the assertion that the sanitation supply market is more sustainable and effective when managed by the private sector. ix Global Scaling Up Sanitation Project • One strong advantage that the supply market in Madhya Pradesh has over that of Himachal Pradesh is the availability of masons who have been trained in latrine construction all over the state. These masons are often local and sometimes from the vicinity where they deliver services. • Madhya Pradesh is one of India’s largest states and also has a high tribal population that often requires a slightly different approach to development projects. The tribal populations have a very low literacy level and are mostly below the poverty line. It is not uncommon to find that latrines are not being used in parts of an NGP village inhabited by a tribal population. Tribal communities often require constant and longer support in order to achieve ODF status. • The size of Madhya Pradesh may mean that it would not be possible for WSP to target the entire state within the timeframe of this project. It would be more feasible to identify and focus on a few districts to demonstrate the strength of the CLTS approach. x Global Scaling Up Sanitation Project 1. INTRODUCTION of which the benefiting household should Overview of the Total Sanitation contribute 20 percent. The guideline Campaign in India The Guideline on Central Rural Sanitation indicates that subsidies should be given to Programme (Total Sanitation Campaign) BPL families only after they have was revised by the Department of Drinking constructed and started using latrines. The Water Supply in the Ministry of Rural guideline does not permit the construction of Development of the Government of India in dry latrines in rural areas, which said the January 2004. The purpose of the program is guideline states should be converted to pour to eradicate open defecation practice by flush latrines. 2010. The four main components of the TSC Community complexes are specifically are-- targeted to landless families up to a cost of Rs2 lakhs, with 20 percent community • Individual household latrines (IHHL) contribution. • School sanitation and hygiene education The cost of the school sanitary complexes is (SSHE) pegged at Rs20,000, of which Rs12,000 is from the central government, Rs6,000 from • Community sanitary complexes the state government, and Rs2,000 from • Anganwadi latrines. parent-teacher associations. Other key objectives of the TSC are to At the anganwadi (preschool) centers, child- “encourage cost effective and appropriate friendly latrines at a cost of up to Rs5,000 technologies in sanitation; convert dry pit are recommended, with Rs3,000 from the latrines to pour flush latrines; and eliminate central government as an incentive and the manual scavenging practices.� According to rest from the state and local government. the guideline, the strategy is to make the Based on the TSC guideline, respective state program “community led� and “people governments are supposed to develop their centered.� The guideline strongly indicates implementation strategy to suit their that a “demand driven approach is to be individual circumstances. In many states, the adopted with increased emphasis on TSC is managed by the Rural Development awareness creation and demand generation Department, although it was managed by the for sanitary facilities in houses, schools and Public Health Engineering (PHE) for cleaner environment� (Ministry of Rural Department in Madhya Pradesh until very Development 2004). recently. The TSC initially made provision for As part of the current assignment, two subsidies of Rs500 to be given to Below states—Himachal Pradesh and Madhya Poverty Line (BPL) families. This subsidy Pradesh—were visited to obtain an amount has since been increased to Rs1,500, overview of the TSC program and the status 1 Global Scaling Up Sanitation Project of the sanitation market including products, steps to begin to address the sanitation suppliers, and the nature of demand. problem with technical support from the Water and Sanitation Program-South Asia (WSP-SA). These steps include the Overview of the Total Sanitation commissioning of a rapid assessment of Campaign in Himachal Pradesh sanitation on which a Draft Rural Sanitation Strategy was prepared. The findings from Background the rapid assessment indicate that the use of Himachal Pradesh is a mountainous state latrines in sample villages was less than 20 with a total population of 6.9 million, 90 percent, and that more than 60 percent of the percent of whom reside in rural areas. The latrines in rural HP were fully funded by state has 12 districts, 75 blocks, and 20,118 households without a subsidy. Other key villages spread across four topographical findings are the absence of low-cost options, zones (Feedback Ventures 2006). These the high cost of transportation, and the lack zones include-- of supply chains resulting in the high cost of latrine construction. • Sub-tropical low hill Shivalik zone, which covers the plain areas of The TSC is solely implemented by the Rural Hamirpur, UNA, and the flat parts of Development Department, with minimum Kangra, Bilaspur, Mandi, Shimla, Sloan, input from other departments such as Kullu, and Simaur districts. This zone is Women and Child Development, Health, made up of highly permeable sandy and Education, and Public Health Engineering. potentially unstable soil, which has Within Rural Development at the state level, implications for latrine technology and no cell or officer is solely designated as cost; responsible for TSC, resulting in the program not receiving as much priority as it • Mid-hill zone including the subtemperate should. The Additional Director/Joint parts of Bilaspur, Chamba, Kullu, Mandi, Secretary is assigned the responsibility for Shimla, Sirmaur, and Solan districts; TSC as well as 11 other programs. The same arrangement occurs at the block level, where • Dry hill zone including parts of Kangra, the block development officer is responsible Kullu, Chamba, Mandi, Shimla, and for 12 ongoing programs. Solan districts. The zone is characterized by hard rock, which has implications for latrine technology options and cost for Himachal Pradesh TSC Strategy villages in this area; A draft strategy for Total Rural Sanitation was drafted towards the end of 2003 with • Cold hill zone, which is sparsely the support of WSP-SA. The strategy was populated due to the harsh terrain and based on the findings of a rapid survey climate. The nature of the areas in this conducted in six districts. The key principles zone makes pour flush latrines unsuitable of the strategy include a demand-oriented, for most parts of the year. outcome-based approach; involvement and ownership of the community; and a shift The 2001 census put HP rural sanitation from individual subsidies to community coverage at 28 percent, as compared to 98 incentives. The key components of the state percent coverage of safe drinking water. The TSC strategy include information, Government of Himachal Pradesh has taken education, and communication (IEC); school 2 Global Scaling Up Sanitation Project sanitation; choice of technology options; levels is doubtful. During the visits to the effective and sustainable supply chain; Solan and Shimla Districts, there was no training and capacity building; and finally a mention of the state strategy by any of the reward scheme. government officials. The approaches adopted in the various blocks visited The strategy recognizes the importance of indicate a lack of awareness or a disregard behavior change and, more importantly, the for the strategy. In Mashobra Block, for negative impact of a direct household example, the panchayat subsidizes the subsidy for sustainable sanitation. Although construction of low-cost latrines for BPL the central government allows for a direct families. Most gram panchayats seem to be household subsidy, the strategy indicates working on targets rather than on demand that the subsidy will be given as a lump sum and community-led approaches, as specified equal to the total amount for a BPL subsidy in the state strategy. (GoHP, undated). Apart from the Central reward scheme, known as the Nirmal Gram Reported Progress of TSC in HP Puraskar (NGP), the strategy also proposed a state award ranging from Rs1 to Rs10 Since the initiation of the TSC, a total lakhs. amount of Rs850.88 lakhs has been released to HP from the central government. This Although Himachal Pradesh has a amount was released in seven installments comprehensive strategy for total rural from the 1999 to 2006–2007 financial years. sanitation, the extent to which this is widely Table 1 below summarizes the funds known and used at the district and block released from the central government to the 12 HP districts. Table 1. Details of amount released (from Central Government share) to Himachal Pradesh (Rupee Amounts in Lakhs) District 1999- 2000- 2001- 2002- 2003- 2004- 2005- 2006- Name 2000 2001 2002 2003 2004 2005 2006 2007 Total Bilaspur 10 49.65 59.65 Chamba 10 89.31 99.31 Hamirpur 28.65 28.65 57.3 Kangra 28.47 56.93 85.4 Kinnaur 3.77 7.53 11.3 Kullu 5.66 11.32 16.98 Lahaul & 10 2.59 12.59 Spiti Mandi 10 166.73 176.73 Shimla 10 119.85 129.85 Sirmaur 6.85 19.91 26.76 116.03 169.55 Solan 9.74 19.48 29.22 Una 3 3 Total 6.85 19.91 26.76 79.29 50 641.06 27.01 850.88 Source: Ministry of Rural Development, NIC-Dept. of Drinking Water Supply; www.ddws.nic.in/TSC/crsp/rep_release_distwise 3 Global Scaling Up Sanitation Project According to the Department of Drinking Sanitation coverage in MP has improved Water Supply (2007), in Himachal Pradesh, tremendously since that census. The the construction of individual household Government of Madhya Pradesh has taken latrines (IHHL) in BPL families rose from steps to implement the TSC program. A 13 in 2001 to 29,333 at the end of June special TSC cell headed by a project director 2007. In the same period, IHHL in APL was established at the State level in the families rose from 0 to 62,124. School Public Health Engineering (PHE) sanitation facilities rose from 56 in 2001 to Department. A state strategy was also 1,074 in 2007. Himachal Pradesh received drafted with the support of UNICEF. Prior 12 NGP awards in 2007. to drafting the strategy, a sector assessment was conducted and four zonal workshops Although the number of latrines constructed were held in Bhopal, Indore, Gwalior, and over the years is an encouraging Jabalpur. The findings from the assessment development, it is worth mentioning that indicated that there is only one option for some of these latrines are based on supply- household latrines, and the state IEC driven approaches rather than on demand- strategy had very little impact at the based community-led approaches. The data grassroots level and needed a complete do not specify the percentage of the latrines review. in use. The findings from the field visit to Himachal Pradesh are outlined later in the The TSC program, previously managed by report and give an insight into the existing the PHE Department, has been recently situation. transferred to the Rural Development Department at the state level. Implementation at the community level is Overview of the Total Sanitation managed by the Panchayat Raj Institution, Campaign in Madhya Pradesh the lowest representative of the Rural Development Department. At the time of the Background assessment, plans were underway to transfer Madhya Pradesh (MP) has a total population the management and implementation of the of over 60 million according to the 2001 TSC program to the Rural Development census, of which more than 70 percent Department at all levels. This development reside in the rural areas. The state has 48 could prove successful and may encourage districts, 313 blocks, 22,039 gram more community participation and a panchayats, and 52,143 villages (WaterAid demand-driven approach to TSC in Madhya India, 2005). The scheduled caste (19.9 Pradesh. percent) and scheduled tribe population (15.4 percent) are scattered across MP’s Madhya Pradesh TSC Strategy districts. The majority of this population belongs to low-income groups and fall A strategy for Total Sanitation was drafted within the BPL category. with the support of UNICEF in February 2006. The strategy was aimed at increasing According to the 2001 census, only 9 sanitation coverage from 10 percent to 30 percent of the MP rural population has percent and to make the villages open latrines in their houses, and no information defecation free (ODF) by 2012. The key was provided on actual use of the facilities. objective of the strategy is to adopt the “total 4 Global Scaling Up Sanitation Project sanitation� concept to accelerate coverage in the 2006–2007 financial year. A first rural areas. Other objectives include installment of Rs772.55 lakhs was released adopting demand-driven approaches, in the 2000–2001 financial year. The emphasizing school sanitation and hygiene financial year 2003–2004 saw the highest education, encouraging cost-effective and amount: a total of Rs4425.96 lakhs released appropriate technology, and favoring to most of the districts in the state. In 2004– incentives rather than subsidies. 2005, the majority of the districts received some installment from the central The strategy covers sanitation marketing, a government, though not as much as in the stable supply chain of sanitary hardware, previous year. equal emphasis on construction of BPL and APL latrines, and nomination for NGP The number of individual household latrines awards. It is uncertain how widely the in BPL families rose from 1,337 in 2001– strategy is known and implemented at the 2002 to 397,401 by June 2007, while the state and district levels. No one in the two number of APL latrines rose from 0 to districts (Betul and Khandwa) visited knew 490,071 within the same period. Madhya about the state strategy and had obviously Pradesh received 191 NGP awards in 2007 developed their TSC project implementation as compared to 1 in the previous year. The plan without any link to it. astronomical increase in the number of latrines could be a result of improved There is no other state or district award reporting or a massive construction drive scheme proposed in the strategy other the embarked on by various districts in order to NGP award of the central government. obtain more NGP awards. In reality, it is probably both reasons, as the recent field Reported Progress of TSC in Madhya visit indicated that a target for NGPs was set Pradesh for the various districts by the state Since the initiation of the TSC, a total government. As a result, the implementation amount of Rs14225.75 Lakhs has been was mostly supply driven, based on a direct released to Madhya Pradesh from the central household subsidy even to APL families. government. This amount was released in Table 2 summarizes the increase in the seven installments from 1999 to the end of number of latrines constructed from 2001 to June 2007 in MP. 5 Global Scaling Up Sanitation Project Table 2. Annual Achievements of Physical Latrine Components, Madhya Pradesh 2001- 2002- 2003- 2004- 2005- 2006- Total 2002 2003 2004 2005 2006 2007 IHHL BPL 1,337 10,034 43,081 174,176 272,352 397,401 898,381 IHHL APL 0 0 186 99,523 158,450 490,071 748,230 TOTAL IHHL (BPL+APL) 1,337 10,034 43,267 273,699 430,802 887,472 1,646,611 Women’s Facilities 1 5 59 81 122 110 378 School Latrines 3 891 4,976 9,139 10,478 9,708 35,195 Balwadi Latrines 0 0 381 803 730 614 2,528 Source: http://www.ddws.gov.in/TSC/crsp/rep_yrwisephycompach.asp 6 Global Scaling Up Sanitation Project 2. SITUATION ASSESSMENT OF THE SANITATION SUPPLY MARKET Himachal Pradesh Shimla District Overview of districts visited The first installment of Rs10.00 lakhs from the Government of India (GoI) was released Two districts, Shimla and Solan, were to Shimla District in the 2004–2005 visited in Himachal Pradesh from May 24– financial year. A second installment of 29, 2007. Shimla District, with its Rs119.85 lakhs was released in the headquarters in Shimla, has a population of following financial year. According to the 721,745 with more than 75 percent of the TSC central data, Shimla District had population residing in rural areas. It has constructed a total of 14,430 IHHLs, 18 2,895 villages and 331 panchayats in 9 communal sanitary complexes, 250 school blocks, of which two (Mashobra and Theog) latrines, and 110 anganwadi latrines by July were visited. In Theog Block, Nanni and 10, 2007. It is important to note that the data Talin villages in Matiyana Gram Panchayat do not show the percentage of the latrines (GP) were visited. In Mashobra Block, that are in use. seven villages were visited: Mastai 1 & 2 and Gudshali in Tutu GP; Shilidu in Bargi In Theog Block, Ghorna GP has been GP; Rampur in Rampur GP; and Pawar in declared ODF although it was not possible Thari GP. to verify this designation due to the visit of a Minister. The level of priority given to TSC In Solan District, visits were made to Nouni in this block is questionable, as is the Majgoan and Topkiber GPs in Solan Block. capacity to facilitate demand-driven, Nouni Majgoan has achieved the ODF community-led approaches. One of the gram standard and received the NGP award in panchayats visited, Nanni in Mattiyana GP, May 2007. has 40 households with a fairly high level of income from fruit orchards. Lack of funds Status of the TSC program in Shimla and was obviously not the reason for the absence Solan Districts of latrines in some households. There is an A Rural Sanitation Program was obvious need for capacity building of implemented with full direct household panchayat members and mobilization of the subsidy from 1980–1990. The result was women’s group on the need for sanitation encouraging in terms of the number of and on low-cost sanitation options. All the latrines built, but usage was very poor and existing latrines in this village are of a very many latrines were used as storage areas. A high standard, costing between Rs30,000 baseline assessment conducted in 2002 and Rs45,000. showed that sanitation coverage was 28 percent in rural Himachal Pradesh (HP) and In Mashobra Block, TSC seems to have a 32 percent in Shimla District (Giyan Viyan much higher priority as evidenced from the Samiti, undated). commitment and enthusiasm shown by the Block Development Officer (BDO), Mr. Robin George. Mashobra Block has 45 GPs, out of which the BDO selected 20 GPs to 7 Global Scaling Up Sanitation Project make ODF. The target was to declare ten of out to an NGO (Giyan Viyan Samitte) that is these gram panchayats ODF by March 31, fixed on other approaches, such as the use of 2007, and the remaining ten by the end of community theater. December 2007. Although the initial target was not completely achieved, efforts were In Solan Block, Topkiber and Nouni intensified to achieve the targets by Majgaon GPs were visited. Interestingly, December 2007. The selected Gram women are championing ODF in all the Panchayats are using any means available to villages in Topkiber GP. Sheel village has achieve the target set for them. This has already been declared ODF, and all the work resulted again in a supply-driven rather than is carried out by the Mahila Mandhal, who demand-driven, community-led program. In also constitute a group that imposes a fine of some GPs such as Tutu Mastai, the Rs500 to people caught defecating openly. panchayat built low-cost pit latrines for most This village has the most variety of low-cost BPL families at a cost of between Rs1,000 latrine options (sub- and superstructure) and Rs1,500. amongst all the places visited. Solan District Existing latrine options in Himachal Solan is one of the first districts in HP to Pradesh initiate the implementation of the CLTS The latrines in Himachal Pradesh can be approach with the support of WSP-SA in grouped into two major categories, dry and 2005. It has two officers assigned to the wet latrines. Both categories have three main TSC program and many Panchayat Padan components (pit, platform, and have attended CLTS training. Women’s superstructure). groups known as Mahila Mandhals play a major role in changing open defecation Dry latrines practices. The two officers at the district The substructure of dry pit latrines usually level support block-level officers and the consists of unlined (4 x 4) pits and a panchayat in implementing CLTS. platform made of bamboo or timber covered with compacted earth. The superstructure is Although many villages have achieved ODF often made of local materials, which are status, only a few GP have managed this. In replaced annually or as the house owner order to have more ODF gram panchayats, moves up the sanitation ladder. In Himachal the district has decided that every district Pradesh, a pit latrine is the first step for officer will adopt one gram panchayat and many low-income families onto the work with it to achieve ODF through CLTS. sanitation ladder. All the materials used in This approach will encourage the dry pit latrine are available locally and interdepartmental collaboration for TSC. are mostly recycled. The cost of completing Quarterly meetings are held at the district a pit latrine ranges from zero to Rs1500, level to monitor progress and for cross- depending on whether external labor has learning. A District Sanitation Committee been used or materials bought for the headed by the District Commissioner has superstructure (see Figure 1 for examples). also been established. The District Project This type of latrine is locally known as a Officer indicated that they are keen to kacha latrine and is seen as a temporary continue with the CLTS approach but the measure until the house owner is able to IEC component of TSC has been contracted upgrade to a pour flush latrine. 8 Global Scaling Up Sanitation Project soak/leach pit or septic tank, the squat pan Wet latrines with water seal, and the superstructure. The Wet latrines include all options that require most common type of wet latrine found in the use of water. Unlike the pit latrines, Himachal Pradesh is the pour flush latrine, there are three major components: the which comes in different options at either 8 Global Scaling Up Sanitation Project low or high cost. The existing options the pit are fully lined with smooth plaster include the following: finishing from top to bottom. These tanks have one compartment and resemble • Direct pit pour flush 1 (lowest cost): A water tanks except that the floor of the pit direct pit pour flush can be as simple as is not lined. The tank is covered with a installing a ceramic squat pan/water seal heavy-duty reinforced concrete slab. onto an existing unlined pit latrine. This Some of the reasons given by households is often a low-cost method used by for investing in this type of tank are for households to upgrade their existing pit durability and safety. The majority of the latrines. septic tanks are located in the courtyard of buildings, which requires construction • Direct pit pour flush 2: This is similar to of strong structures. Although the tanks the first type, but the pit is lined with are likely to last for a long time, stone (dry masonry) or with bricks in a especially as they do not take waste water honeycomb style. These types of latrines from other household activities, emptying were found in a few households, as most and disposal of the sludge will become a people who can afford this option go for major issue in the future. single off-set designs. • Single off-set pour flush (low-medium cost): This option was the most widely seen latrine in the places visited. The cost ranges from Rs2000–Rs5000. The low- cost option consists of a small leach dimension pit lined with stones (dry masonry) or with bricks and is located next to the superstructure. The superstructure is made of semi- permanent to permanent materials, such as bricks. In order to reduce cost, some households make a superstructure about Another high-cost component of the paca four feet high without a roof, using jute latrines is the superstructure. They are made bags or sacks as curtains for privacy. of bricks, plastered and painted with reinforced concrete slab roofing strong • Single off-set pit pour flush (high cost): enough to carry the weight of 500–1,000 This is a common type of latrine amongst liter tanks. The inside sometimes has two middle- to high-income households. types of latrine seats, the pour flush (Orissa Many households aspire to this type of pan) and the “British�-style cistern or latrine, which costs from Rs10,000– Anglo-India cistern with matching sink, wall Rs45,000 and is known locally as a paca and floor tiles. Examples of the different latrine. The main cost is for the septic types of latrines and their costs are shown in tank and superstructure, which has a Figures 3, 4, and 5. dimension of around 8 x 15 ft with reinforced concrete lining and a smooth plaster finish (Figure 2). All four sides of 11 Global Scaling Up Sanitation Project 11 Global Scaling Up Sanitation Project rural pan with a 300 slope, which is said to Sanitation supply mechanism in use less water for flushing. According to Himachal Pradesh some of the retailers, the demand for rural Supply of sanitation products pans is very low and often nonexistent, The sanitation market in Himachal Pradesh which is why they do not stock them. Most is well developed and completely run and households would not spend money to buy managed by the private sector, which makes the rural pans because they say these pans it more sustainable than if it were are less attractive and less durable. government-run. The supply of sanitation Moreover, because the costs of the rural pan products and facilities consists of a chain of and the Orissa-style pan are the same, it is manufacturers, distributors, retailers, and no surprise that the less aesthetic rural pans masons. The manufacturers of most of the are not in demand. ceramic pans are based in Gujarat, and they supply their products to distributors in Latrine construction Gujarat, Delhi, Punjab, and, to lesser extent, Almost all the masons that build latrines in Shimla. The Punjab and Delhi-based Himachal Pradesh are from outside the state, distributors are the main suppliers to such as from Orissa, Bihar, and Nepal. The retailers in various parts of Himachal labor cost is between Rs100 and Rs125 per Pradesh. Sometimes big retailers sell to day, which is higher than in Madhya smaller retailers located in smaller towns Pradesh and may explain the reason why and villages. masons from other states migrate to HP. The majority of the masons have never received The India-style pour flush pan (Orissa type) specific training in construction of low-cost is widely available in most parts of latrines, which could explain the high cost of Himachal Pradesh. The accompanying latrines in HP. Masons and laborers are construction materials, such as cement, PVC easily obtainable even in the most remote pipes, and stones, are also easily accessible. parts of the state. The retailers of sanitary The only product not easily available is the wares can also supply masons on demand. 11 Global Scaling Up Sanitation Project 13 Global Scaling Up Sanitation Project lot of interest was generated at the onset, Mechanisms for generating demand in especially amongst decision makers; with Himachal Pradesh reduced external push and advocacy, the Two main approaches, CLTS and IEC, are priority given to CLTS also declined. It is used for generating demand for sanitation. hoped that with the current increased In Shimla District, IEC seems to be the main support from WSP-SA, the priority given to approach used in many blocks. This may be CLTS will increase once more across all because the IEC component of TSC has levels in Solan and other districts. been contracted out to an NGO, Himachal Giyan Vigyan Samiti (GVS), which does not follow the CLTS process. GVS has a Strengths and limitations of the sanitation contract with the Department of Rural market in Himachal Pradesh Development to implement the IEC part of Technology options TSC in six of 12 districts in Himachal Pradesh, including Shimla. This means that • Latrine types: There are two main types even where the block and panchayat of latrine technology in Himachal administration are willing to adopt the CLTS Pradesh, although innovations by house approach, there may not be funds from TSC owners have resulted in many options. A to support them, especially in these six major plus to the sanitation program is districts. It was obvious from the blocks the flexibility of the Department of Rural visited that there is minimal capacity for Development in terms of the latrines facilitating CLTS in Shimla District. options being promoted. Unlike in Madhya Pradesh, the government is not The situation is different in Solan District, insisting on any particular technology which has received technical support and and in some places are even promoting had local capacity to facilitate the CLTS dry pit latrines. process even at the panchayat level. This could be the reason why the district and • Need for flexibility: The districts in the block-level administration is keen to higher altitudes of Himachal Pradesh, continue to use CLTS in generating demand such as Kinnuar, experience freezing for sanitation. The existence of capacity for weather conditions, which affects the CLTS at the panchayat level means that the water seals in pour flush latrines. Dry pit CLTS process can continue even when GVS latrines or other technologies without begins to implement IEC in Solan District. water seal are the only suitable options. The results of CLTS in this district are Unfortunately, the TSC guideline especially encouraging, as it is led by the specified that all dry latrines must be villages themselves. The gram panchayat converted to pour flush and at the same and villages that have been declared ODF in time recommends that appropriate low- Solan attribute their success to the use of cost options be promoted. Based on this, CLTS. the state government recently wrote to the Central Department of Drinking Considering that CLTS was first initiated in Water, asking that Himachal Pradesh be Solan District, one would expect to find allowed to promote dry pit latrines in more ODF gram panchayats. It seems that a certain areas. 14 Global Scaling Up Sanitation Project • Awareness of options: Although various • Masons: The main job of building low-cost options are scattered across latrines is almost entirely carried out by parts of Himachal Pradesh, many areas masons, the majority of whom are from are still unaware of them. As a result, outside Himachal Pradesh. The masons households are still spending up to are mainly skilled in the construction of Rs45,000 on a latrine, thereby portraying houses and seem to have limited capacity the cost of latrines as beyond the means for low-cost latrine construction. This of low-income families. In general, there could explain the methods and high cost is limited information on lower-cost of latrines built in many parts of the state. options amongst government and village- Even with the stable land in many parts level motivators. of Himachal Pradesh, many households line their septic tanks with reinforced • Household preferences: There is a concrete. The current cost of many off- general lack of in-depth understanding on set pour flush latrines could be cut by the attributes that different household almost 60 percent if smaller unlined pits segments desire in a latrine that would are used. There is a need to investigate motivate them to be willing to pay for the possibility of using unlined pits or one. Some areas and groups may prefer using other cheaper lining techniques, and be willing to pay for a particular such as dry stone masonry, trapezoidal technology that satisfies a specific blocks (which do not require cement requirement. mortar), and honeycombed lining with bricks. Another limitation is the potential Supply mechanisms difficulty and sustainability of training masons on low-cost latrine construction, • Retailers and product availability: The as the majority of the masons are migrant supply of all sanitary hardware is laborers. It is necessary to understand completely managed by the private their activities in order to assess the sector. The fact that the government is potential of capacity-building activities. not involved makes the sanitation market more sustainable. The availability of latrine components at various prices Demand generation makes it affordable to most households, • Capacity for CLTS: The availability of even to very low-income groups. The people within the government and at the retailers are willing and keen to stock community level to facilitate CLTS is a components of any style of latrine as long major strength that will support scaling as there is demand. Other latrine up in Himachal Pradesh. The exiting skill construction materials are easily for CLTS, especially within the available in many parts of Himachal government and at the gram panchayat Pradesh. The strong private sector (e.g. in Solan District), can be used to presence in the sanitation market within build a network of people in other easy access of most villages suggests that districts, including among NGOs, to the supply of latrine products is not a facilitate scaling up. However, it is major constraining factor for not building important that the training on CLTS is latrines. tailored to suit various categories (e.g., trainers and motivators). 15 Global Scaling Up Sanitation Project • Demand generation strategy practice of the TSC program all over India. (IEC/CLTS): Although the government at Although Himachal Pradesh, in its State most levels has bought into the principle Sanitation Strategy, indicated that the TSC and process of the CLTS approach, there subsidy should be given to villages as a is no consistency on the use of CLTS collective incentive upon reaching ODF across the state. In some districts where status, this is not the practice in many parts CLTS is being implemented by the of the state. The Department of Rural panchayats, NGOs contracted by the state Development at the state level needs to government still go ahead with other IEC create awareness about the strategy across methods such as Kala Jatha (community districts and blocks and set up measures to theater). The current inconsistency could reinforce its implementation. WSP could potentially affect scaling up. Community consider supporting the government to theater can be effective if it is focused, organize a series of awareness workshops planned, and monitored closely. for the districts and block-level decision However, the current approach used by makers on the State strategy and the CLTS the NGO seems to contain many approach. messages, and it has not been evaluated to gauge its impact. Madhya Pradesh • Limited number of NGOs in HP: The Overview of districts visited limited number of NGOs in Himachal Pradesh has created a form of monopoly Two districts in Madhya Pradesh, Betul and for one big NGO. As a result, there is Khandwa (East Nimal), were visited from lack of competition and the options are July 2–6, 2007. limited when it comes to identifying Betul District, with its headquarters in Betul, NGOs to work on CLTS. Although there has a population of 1.4 million people with are numerous smaller NGOs and over 80 percent residing in rural areas. The community-based organizations (CBOs), district has 1,328 villages and 558 gram they may not have the capacity to operate panchayats in 10 blocks, four of which outside their small areas. There is a need (Betul, Chicholi, Amla, and Multai) were to assess the activities of these other visited. Rural Sanitary Marts (RSMs) were smaller NGOs/CBOs and the most also visited in Betul, Amla, and Chicholi. effective way for engaging them in the CLTS process. Khandwa District, with its headquarters in Khandwa, has a population of 1,708,170 Subsidy (including the newly created District of The issue of direct subsidy for individual Burhanpur). Over 73 percent of this household latrines is a very sensitive one, population resides in the rural areas. It has not only in Himachal Pradesh but 798 villages, 432 gram panchayats, and throughout India. Evidence from previous seven blocks, two of which, Pandhana and sanitation programs in India has shown that Khandwa, were visited during the direct subsidies have not been successful for assessment. In Pandhana Block, Borkila and ensuring sustainable use of household Ranjini Gram Panchayats were visited, latrines. The CLTS approach is non-subsidy while Rampur Gram Panchayat was visited dependent, which conflicts with the current in Khandwa Block. According to a baseline 16 Global Scaling Up Sanitation Project assessment report compiled by the Khandwa To support the immense task of community District Administration (undated), over 85 mobilization, the project established an percent of the 91,347 rural families are institutional structure managed entirely by below the poverty line, which entitles them NGOs. Motivators were appointed in every to the latrine subsidy. village and paid a maximum of Rs600 per month depending on their performance. Villages were grouped into clusters of 10 to 15, managed by a cluster coordinator paid Status of TSC program in Betul and Rs1,500 per month depending on the Khandwa Districts performance of the motivators/villages Similar to Himachal Pradesh, a Rural under him or her. The performance Sanitation Program was implemented in MP indicators included the number of with full household subsidies from 1980– households motivated to stop open 1990. Although the number of latrines built defecation and to build and use latrines. The was encouraging, usage was very poor and cluster coordinators reported to a block many latrines were not used and fell apart coordinator (paid Rs6,000 per month) who over time. The 2001 census result shows that in turn reported to a district coordinator paid only 9 percent of the rural population of Rs16000. The entire cost for personnel and Madhya Pradesh have access to a latrine capacity was borne by UNICEF. (Ministry of Health and Family Welfare, 2006). Considering that this approach was beginning to yield results, it is surprising Sanitation Programs in Betul District that the district administration did not scale up the program under the TSC. One UNICEF-supported sanitation program explanation could be the limited flexibility (2000–2002) in the government system, the limited Prior to the current TSC program, Betul and capacity within the PHE Department for Chhindwara Districts implemented a community motivation, and the push for sanitation program with government subsidy latrine numbers in order to receive an NGP from 1993–2000, resulting in the award. The UNICEF-supported project construction of 10,193 latrines. There are no yielded a promising result, and there is a data on how many of these latrines were need to review the entire process for lessons used or are still in use. Towards the end of that could facilitate sustainable total this project, UNICEF, under its Child sanitation in MP. Environment Project, supported the implementation of a drinking water supply, TSC program in Betul District sanitation, and hygiene education project The first installment of Rs219.10 lakhs from from 2000–2002. The project emphasized the Government of India (GoI) was released community participation and had a no- to Betul District in the 2001–2002 financial subsidy policy for its sanitation component. year, with a second installment of Rs219.17 It resulted in the construction of 4,223 lakhs in 2006–2007. According to GoI TSC latrines paid for by households, the majority data, Betul District has constructed a total of of which are still in use. 24,446 IHHL; over 73 percent of these were subsidized for BPL families. It is also not clear how many of the remaining 27 percent 17 Global Scaling Up Sanitation Project of the latrines in APL households were built and it could become even more difficult to with a subsidy or during the UNICEF- introduce CLTS and the concept of ODF in supported project. Other facilities include this district. eight communal sanitary complexes, 662 school latrines, and 30 anganwadi latrines. It The TSC program was managed by the PHE is important to note that the data do not Department, but with NGO involvement at show the percentage of the latrines that are the time of the assessment. Rural Sanitary in use. Marts (RSMs) and Production Centres were well established in Betul District during the In Bhainsdehi Block, Dhanora Panchayat UNICEF-supported project. The district was awarded the NGP, as were Batkido and administration has also established Jholi in Ghorandongri Block. Jholi Production Centres and RSMs, some of Panchayat, which was visited during the which still exist though are not functioning assessment, is made up of four villages effectively. (Jholi 1 & 2, Lakhipura, and Siagudi). This panchayat has particular characteristics in The PHE Department and the Block that it has a mixture of tribal population and Executive Officers are keen to see a quick Bangladesh refugees of West Bengal origin. result, which often means the use of a A remarkable difference was noticed subsidy higher than the amount between the three Bengali villages and the recommended in the TSC guideline. They tribal village. In the Bengali villages, all the believe that the approach used during the latrines were in use and well maintained UNICEF project is time-consuming and while the latrines in the tribal village were does not yield quick large-scale results. unused and falling into disrepair two months Their approach seems to be to build the after the NGP award. This finding begins to latrines first and conduct IEC afterwards, indicate that a more intensive community and, with time, people will use the latrines. motivation effort may be required in tribal villages. Another interesting finding from The arrival of a new collector in Betul the visit is that subsidies recommended for District, who was the Chief Executive BPLs were given to every household, Officer during the UNICEF-supported probably in an attempt to receive an NGP sanitation program, may open a new avenue award. This practice seems to be common, for a more community-led, rather than as the same was found in villages visited in supply-driven, approach to sanitation. At a Khandwa District. meeting, he emphasized the need for behavior change prior to latrine construction In Betul, the focus seems to be to increase and thinks the no-subsidy approach used in the number of NGP awards rather than the UNICEF project is more sustainable. It achieve ODF villages. The Divisional remains to be seen how he can enforce this Commissioner issued a new target of 20 belief in the district, where even the NGPs per block. This is twice the previous remotest villages are aware of the subsidy. target of last year, out of which only three villages received the NGP award. There is TSC program in Khandwa District an increased push towards a supply-driven Khandwa District is one of the first places program in order to improve on NGP award where a CLTS workshop was held in performance. This situation is worrisome Madhya Pradesh with the support of WSP- 18 Global Scaling Up Sanitation Project SA. It seems that the TSC program is APL households were built with a subsidy. managed and implemented by the panchayat Other facilities include two communal and Rural Development Department with sanitary complexes, 302 school latrines, and technical input from the PHE Department. 10 anganwadi latrines. It is important to note Although some panchayat leaders (sarpanch) that the data do not show the percentage of visited had attended the CLTS workshop, the latrines that are in use. The data show they still adopt a supply-driven approach that there are eight Rural Sanitary Marts and and even extend the subsidy to every seven Production Centres; however, none of household. them were functional at the time of the assessment. All construction materials were The concept of ODF villages was rarely sourced through the private sector and paid mentioned by those who attended the CLTS for by the sarpanches. training until they were asked about it. The target to increase the number of NGP Visits were made to three out of the four awards and access to other community gram panchayats that received the NGP development funds within the panchayat award: Khedi Burjurg in Punasa Block, meant that many sarpanch are spending Rampur Kala in Khandwa Block, and much more than the total subsidy amount to Ranjim in Pandhana Block. The Block which a village is entitled in order to reach (Janpat Panchayat) CEO who manages the 100 percent latrine coverage. The NGP sarpanches seems to be pushing for more target for last year was five gram panchayats NGP villages in order to achieve the targets in each of the seven blocks, although only set by the District Administration. Other four NGP awards were received. Similar to non-NGP villages visited include Borkila Betul, the target has further been increased and Bhaman Guon Nakai. Similar to the to 20 villages in each block even after the situation in Betul, the PHE Department previous year’s target was not met. conducted training of masons on latrine construction in 2004–2005. There is a significant need to review the CLTS training approach and target audience Rampura Kala is a single village panchayat in Khandwa. Discussions with some of the with a population of 1,631 in 683 sarpanches who attended the training show households, of which 242 are BPL that community leaders may be better as households. During the visit to Rampura motivators than trainers and require skills Kala, it was observed that all latrines were and practical tools to facilitate CLTS within subsidized by the panchayat up to a their communities in that capacity. superstructure level of 4 feet. Each family received two slabs, one squat pan, one bag Khandwa District received a first installment of cement, mason costs, and 300 bricks. of Rs112.52 lakhs from the GoI in the 2002– Most APL families upgraded their basic 2003 financial year, with second and third subsidized latrines to include tiles and sinks, installments of the same amount in the which indicated that they could have 2003–2004 and 2006–2007 financial years. afforded the entire latrine without subsidy. According to GoI TSC data, Khandwa Prior to the TSC program, 13 households District has constructed a total of 9,669 already had latrines. The village has 10 IHHLs; over 70 percent of these were for watchmen to ensure the latrines are used. BPL families. It is also not clear how many The panchayat plans to use the award money of the remaining 30 percent of the latrines in 19 Global Scaling Up Sanitation Project of Rs2 lakhs to upgrade temporary latrine as resource people in another training superstructures and to create drainage. session. This again raises the question on the content and target audience for the CLTS Ranjini village is also a single village training being given panchayat made up of 291 households, out of which 102 are BPL. Although the Bhaman Guon Nakai was earmarked for the subsidies were given to every household, the last NGP award but was not successful. It sarpanch used more innovative measures. has a population of 15,000 in 351 After attending a UNICEF-sponsored households, of which 71 are BPL. The exposure visit to Maharashtra, a community village seemed considerably well off, yet meeting was organized to discuss ways of every household received a latrine subsidy. ending open defecation. There was a joint The sarpanch claimed to have spent Rs4.2 agreement on the amount of subsidy to be lakhs to date on latrine construction. Of the given to APL and BPL families. About 50 340 latrines initiated, 250 had been APL families built their own latrines. The completed and in use. One noticeable majority of the households refused the constraint in this village is the lack of recommended rural pan and went for the outdoor space for latrines. This has forced more expensive “Orissa� pans. The households to convert a space within the Sarpanch spent Rs3.5 lakhs in total, Rs1.35 house to a latrine and to locate the leach pit lakhs from the TSC fund and the remaining underneath the veranda. The village has over Rs2.15 lakhs from another government 35 masons and is known in the surrounding scheme. villages as a place to get good masons. Borkila was one of the gram panchayats Existing latrine options in Madhya earmarked for the NGP award but was Pradesh unable to meet the requirements. It is made up of 282 families, all belonging to the tribal Unlike in Himachal Pradesh, there is only caste, and 176 of these families are BPL. In one type of latrine technology in Madhya order to achieve the NGP, latrines were fully Pradesh— wet latrines. The Government of constructed for every family with full brick Madhya Pradesh (GoMP) strongly promotes superstructures, except for 45 families who the pour flush latrine as the lowest option are said to have refused because they were permissible in the sanitation ladder. (See in the opposition party from the sarpanch. Figure 6 for examples.) The government Every family received 600 bricks, three bags also strongly promotes single pit off-set pour of cement, a squatting pan, slabs, steel flush latrine, which consists of the doors, stones, sand, and masons’ fees. following: Ironically, most of the houses in the villages are made of mud with slate or thatch roofs, • Pit: A single pit of 3 x 3 feet, lined with while the latrines were brick structures with bricks in honeycomb style and covered roofing sheets and painted white. None of with two flagstones. the latrines were in use at the time of visit, • Platform: A squat pan connected with a and some were already falling into disrepair. 3–5ft pipe to the pit. Rural pans with a It was also interesting to discover that the 28o – 30o slope are strongly promoted by sarpanch and two panchayat members the PHE Department. PHE claims that attended the CLTS training and even served this type of pan uses less water for 20 Global Scaling Up Sanitation Project flushing and that the honeycombed lined little demand for them. The floor is made pit cannot withstand the quantity of water with reinforced concrete and finished used in Orissa squat pans. However, most with smooth plastering. people prefer the Orissa pans because the foot rests are attached to the pan and • Superstructure: The superstructure is because they come in various colors made with bricks up to 4 ft high for BPL making them aesthetically more families, who are then expected to raise it acceptable. Rural pans are also not higher if they desire. available in the market, as there is very Table 3. Breakdown of latrine cost as given by PHE Department Subsidy Estimated cost (Rupees) Labor for pit digging Rs150 425 bricks for pit lining and superstructure @Rs2 each Rs850 1.5 bags of cement Rs337.50 3 Sand (0.5m ) Rs200 Reinforcement iron bars (0.1m3) Rs75 PVC pipe (3–5ft) Rs100 2 2 flagstones (16ft ) Rs150 Labor (mason and laborer) Rs250 Squat pan (rural pan) Rs200 Total Rs2,300 21 Global Scaling Up Sanitation Project receives a subsidy. This means that the Sanitation supply mechanism in Madhya government continues to be directly Pradesh involved in the supply of sanitation. Supply of sanitation products Although most of the materials are easily The rural sanitation market in Madhya accessible in the open market, government Pradesh is not as developed as that of insistence on the use of rural pans limits Himachal Pradesh mainly because of the independent purchase as most shops do not high level of involvement by the keep these pans due to the lack of demand. government. Unlike in Himachal Pradesh, Even with the intense promotion of rural almost every family in Madhya Pradesh, pans, many households put them aside and including those above the poverty line, purchase Orissa pans, which are widely available in the market. 22 Global Scaling Up Sanitation Project A major difference between the sanitation pans through the Public Distribution Shops markets in Madhya Pradesh and Himachal (PDS), which they claimed was more Pradesh is that rural sanitary marts (RSMs) successful. The same situation was found in still exist in some parts of Madhya Pradesh. one such shop located in Amla. All rural Two types of RSMs (privately owned and pans were also given on credit to community government supported) were found in Betul leaders. and Khandwa Districts. The government-run centers stock mainly rural pans and were not The privately run RSMs were originally functioning effectively. Most of their supported by UNICEF as distribution products were sold on credit to community centers. Upon completion of the project, leaders who present an “advice note� from some of the private storekeepers continued the district or block level. It was also to keep rural pans, but expanded their stock observed that rural pans cost more in to include all latrine construction materials government RSMs than in privately run and components. In three of the shops shops and RSMs. visited in Betul District, the private RSMs have turned into small hardware shops One of the government RSMs visited in selling components of most latrines, and less Jamti, about 10kms from Betul, was of the government-recommended rural pans. previously a Production Centre but now They claimed that most of their customers buys pans from Gujarat. The shop is run by demand Orissa pans and the rural pans are a government-paid staff and took its only rarely sold. supply of 3,000 rural pans in 2003. It sold about 2,619 pans, mostly to community All the latrine pans found in Himachal leaders on credit, and has not been able to Pradesh are also available in Madhya place any more orders. None of the credit Pradesh and at nearly the same cost (see has ever been recovered, and it does not Figure 5). However, Betul District is seem that efforts are being made to recover planning to introduce plastic child-friendly the debts. pans and plastic pans for adults (see Figure 7). The costs of the plastic pans have yet to Based on the limited progress with this be decided. system, Betul District decided to sell rural 23 Global Scaling Up Sanitation Project approaches have yet to take off in Madhya The existing RSMs will not be effective Pradesh. The TSC program seems to be mechanisms for supplying toilets to supply driven with the NGP award as the households in the TSSM Project. Supply main motivating factor. mechanisms operated and managed by the private sector seem more effective and The size, complexity, literacy, and poverty sustainable. level in MP make it necessary to identify and develop innovative approaches for Latrine construction generating demand for sanitation. A big Unlike in Himachal Pradesh, Madhya advantage MP has over HP is the Pradesh has a good number of masons availability of more NGOs with experience trained in latrine construction in most parts and capacity and their potential to easily of the districts, possibly because the acquire skills for facilitating CLTS. Betul majority of the masons are local and do not District can potentially be a good pilot due come from outside of the state. Unskilled to the previous UNICEF-supported project labor costs range between Rs70 and Rs100 that used participatory approaches. In while skilled labor is between Rs120 and Khandwa District, there was no sign of the Rs150 a day. Masons and laborers are easily impact of the CLTS training that was held obtainable even in the most remote parts of both within the government and in the the state. The retailers of sanitary wares can communities. also supply masons on demand. Strengths and limitations of the sanitation Mechanisms for generating demand in market in Madhya Pradesh Madhya Pradesh Posters and Community Theater are the Technology options main approaches used for generating Government promotion: The strong demand for sanitation. The two districts government involvement, especially by the visited contracted with NGOs to implement PHE Department, has meant that only one TSC including demand generation and latrine technology is promoted. Ecosan supply. Unlike in Himachal Pradesh, CLTS technology was recently introduced by and other participatory sanitation promotion UNICEF, but it has not taken off and is not 24 Global Scaling Up Sanitation Project promoted by the government. There were retailers stock all latrine construction fewer innovations in low-cost latrine designs materials except for the rural pans due to the as compared to those observed in Himachal lack of demand. The government currently Pradesh. The insistence on the use of rural acts as an intermediary between the main pans with a particular slope by the PHE vendors, distributors, and community. This Department has left minimal room for is understandable in remote villages of MP innovations with other low-cost where some materials may not be easily technologies. This is and will continue to be accessible. The availability of a high one key constraint to increased private government subsidy in terms of materials for sector involvement and development of a every household meant that there is minimal sanitation market. individual household demand. Lining: The low-cost latrine design Masons: Madhya Pradesh has an abundance prescribed by PHE requires that all leach of masons who have been trained in latrine pits for pour flush latrines be lined. This is construction under various programs. the major contributing factor to the high cost Skilled masons are commonly accessible of latrines and hence the inability of poor even in the most remote villages. This is a households to afford one. Although big advantage and makes the delivery of UNICEF supported the development of a latrines to households easier. With the Hindi-language guidebook that recommends current push for NGP awards, many masons various latrine technologies for the different are constantly in demand for bulk geological formations in Madhya Pradesh, a construction of latrines within a short time single option is still being promoted. period. This could explain the reason for some of the poor quality construction Low-cost technologies: The simple pit observed during the visits. latrine technology is in practice not permissible in Madhya Pradesh. There is a Demand generation general lack of information among communities and even NGOs on other low- Capacity for CLTS: There is limited cost latrine technologies. capacity to implement CLTS in Madhya Pradesh, even in Khandwa District where a Program transfer: With transfer of the TSC training-of-trainers workshop has been program to the Rural Development organized. There is a significant need to Department, it is hoped that this department distinguish between potential trainers and will be more flexible about latrines types motivators. It may be more appropriate to and will also increase emphasis on demand train sarpanches and other community generation and community-led approaches. members as motivators and equip them with tools to facilitate CLTS in the community, rather than training them as trainers. Supply mechanisms Retailers and product availability: The Demand generation strategy supply of materials for rural sanitation under (IEC/CLTS): Awareness of the CLTS the TSC is mainly controlled by the approach is very low at various levels of government. The private sector stocks all government. The TSC program is a highly sanitary hardware and construction materials supply-driven program and the government and also supplies the government. Most is less keen to invest time in behavior 25 Global Scaling Up Sanitation Project change prior to supply. Joint advocacy if the supply-driven approach. Other than the possible with UNICEF, which is a key NGOs, many districts have well-established player in MP, is required to persuade the women’s self-help groups who can be government to buy into the CLTS approach. trained as motivators. The transfer of TSC to the Rural Development Department, which is less Subsidy technical, provides an opportunity to begin The issue of a direct subsidy for individual to advocate for greater emphasis on demand- household latrines is very sensitive not only driven community-led behavior approaches. in Madhya Pradesh but, as mentioned NGO involvement: The availability of earlier, throughout the TSC program in NGOs that have been involved in sanitation India. The CLTS approach is non-subsidy projects is a major strength that can be dependent, which conflicts with the current tapped. Although most of the NGOs are not practice in Madhya Pradesh where a subsidy conversant with CLTS, they have some is extended to most households. There is a participatory rural appraisal (PRA) skills, strong indication from the government that which can be built upon. The lack of skill progress cannot be made without a direct for CLTS and the target set by the household subsidy, hence the difficulty in government has meant that NGOs also adopt applying the CLTS approach in MP.. 26 Global Scaling Up Sanitation Project 3. IMPLICATIONS OF THE SANITATION MARKET SITUATION IN HIMACHAL PRADESH AND MADHYA PRADESH FOR THE TOTAL SANITATION MARKETING PROJECT Comparing Community-Led Total Sanitation, Sanitation Marketing, and Total Sanitation Campaign Approaches This section of the report considers the and Sanitation Marketing in the TSC possibility of implementing Total Sanitation program in Madhya Pradesh and Himachal Pradesh. Table 4. Comparison of CLTS, Sanitation Marketing, and TSC Features CLTS Sanitation Marketing TSC Objective To eradicate open To eradicate open defecation To increase latrine defecation and adopt the use hygienic coverage and get NGP latrine facilities. awards Focus Targets community a whole Initially, particular groups Latrine construction rather than the entire community targeted Approach Uses PRA tools as entrance Uses market research tools to Sets targets for and fecal-oral links to ignite understand user behavior, number of latrines change. including motivations and barriers Technology Technology options may be Offers and demonstrates Limited to single mentioned various options based on user technology choice preferences and at various prices Promotion Uses fecal-oral transmission Markets behavior change and Uses didactic methods routes and other PRA tools latrine options based on user to promote latrine to motivate community motivations and preferences. construction Financing No subsidy, demand driven No subsidy, demand driven. Subsidy reliant, supply driven Institutional Requires community-based Requires promotion at the Dependent on set-up motivators and constant community level mainly government monitoring and support through private sector institutions from a higher-level marketing. institution. Results/impact May take some time to see May take some time to see Quick result, minimal results, but has a high results, but has a high impact at impact, and a very impact at a lower cost a higher cost than CLTS. high cost 27 Global Scaling Up Sanitation Project water supply, and higher level of literacy, What Is the Place of Community- among other reasons. This does mean that Led Total Sanitation and less effort is needed to scale up CLTS in Sanitation Marketing in the Himachal Pradesh. There is a need for Current Total Sanitation increased reinforcement and advocacy at the state and district levels to raise the profile of Campaign Program? sanitation. There is also a need expand the The principles of TSC, according to the capacity for CLTS across the state and national guideline, have a lot in common advocate for appropriate institutional set-ups with the principles of CLTS. However, to support and monitor progress. implementation across the states varies. The major difference is in the issue of subsidy Madhya Pradesh will require much more and technology options. Although the TSC effort, as the concept of CLTS is very new guideline recommends a subsidy for BPL to the government, NGOs, and communities. families, it also states that it should be given The awareness of the TSC program is to the community as an incentive after they widespread in Madhya Pradesh, particularly have built and continue to use latrines. Both about the subsidy. The extension of the Madhya Pradesh and Himachal Pradesh are subsidy to non-BPL families in order to get implementing the subsidy for latrine the NGP award has made the situation even construction and are even extending it to more complicated. However, the profile of APL families. The recent increase in the sanitation at the state, district, block, and amount of the subsidy from Rs500 to village levels has increased in the last two Rs1500 makes it even more difficult to years due to the TSC program and advocate for demand-driven community-led motivation for NGP awards. The recent approaches without a subsidy. This is further transfer of the TSC program to the Rural complicated by the push to get more NGP Development Department creates a good awards. opportunity to advocate for a more demand- driven, community-led approach. There is Even with all the complexities of the current an urgent need for capacity building for situation, CLTS and sanitation marketing CLTS at the various levels in MP. This can still play a major role in making the should include establishing a network of current TSC program more demand-driven trainers across the state and advocating for and sustainable in the two target states. The an enabling environment to use the trainers assessment shows that it may be easier to to build capacity at the grassroots level. achieve this in Himachal Pradesh than in Also, MP’s immense size may mean that it Madhya Pradesh within the time period for would not be possible to target the entire this project because of previous work to get state within the timeframe of this project. It buy-in from various levels of government on is highly important that WSP engage with the importance of CLTS in HP. Also there is UNICEF, which is a major player in rural existing capacity for implementing CLTS at water and sanitation in Madhya Pradesh, in the state level and in many HP districts. order to present a united force to the Other factors that may make it easier to government. scale up TSSM in Himachal Pradesh include the better economic conditions of households, better access to a year-round 28 Global Scaling Up Sanitation Project identify perceived and potential barriers that prevent them from achieving this. The study Scaling Up Total Sanitation should also identify segments of the community associated with the different and Sanitation Marketing— motivations and barriers. The consumer Recommendations for the Way study should also be able to identify Forward household preferences for latrine These recommendations are based on the technology. assessment of the field situation and While the consumer study is ongoing, a knowledge of the sanitation program in parallel rapid survey should also commence Madhya Pradesh. to compile different latrine technologies and innovations that exist in the two states. This General Recommendations will facilitate the development of a simple Advocacy at the national and state levels latrine catalogue that can provide communities with various options. The Considering that TSSM approaches differ supply study should also endeavor to assess from the ongoing TSC program, state-level the capacity of masons, particularly in advocacy is required to persuade the Himachal Pradesh, and how they carry out government to adopt more community-led their activities. and demand-driven approaches. This would require a series of meetings with high-level UNICEF previously prepared a catalogue of government officials particularly at the state low-cost technology, which was used in and district levels, supported with advocacy Betul and Chhindwara districts. It would be workshops on a regular basis. necessary to review this book prior to developing a separate catalogue. At the state level, the Chief Secretary and, if possible, the Chief Minister and Principal Secretaries of the Rural Development, Developing a communication strategy Education, Health, PHE, and Tribal It may be a bit early to develop a Departments should be targeted. At the communication strategy while a consumer district level, collectors and CEOs should be study has not been conducted, but baseline the target. At the national level, discussions information that will form part of a should continue with the Rajiv Ghandi communication strategy can be collected Mission for Drinking Water, which is during the consumer and supply study. responsible for the TSC program. The communication strategy should be based on the identified motivations and In-depth consumer and supply research household preferences for latrines. The In order to develop a strong and effective strategy should consist of key messages and TSSM strategy for HP and MP, it is materials for promotion. Prior to finalizing important to carry out a detailed consumer the communication strategy, the promotion and supply study. The objectives of the concept and materials should be tested and consumer study would be to identify key all necessary revisions carried out. motivations that make households want and would be willing to pay for a latrine and to 29 Global Scaling Up Sanitation Project CLTS training Sector-wide approach CLTS, which will form the basis for TSSM, The nature of sanitation is such that it cuts is better established in Himachal Pradesh but across several sectors, particularly the requires further reinforcement. A good Health, Rural Development, Education, initial step is to carry out an independent PHE, Women and Child Development, and review of the CLTS process and training Tribal departments. Although the Rural content to fit with the principles of TSSM. Development departments are managing and The review should specifically look at the implementing the TSC program in both contents of the materials for trainers and for states, it is essential that other related motivators and the tools given to them on departments are brought in, especially for completion of their training. It is also demand generation. necessary to establish a core group of master trainers at the state and district levels who A good example is in Solan District in can then train others at the lower levels. Himachal Pradesh, where officers from the departments listed above have been trained Another important aspect to consider prior in CLTS. To ensure continuous support and to conducting CLTS training is the monitoring, the trained officers each adopted establishment of an institutional framework a gram panchayat to support until it becomes to support and monitor TSSM after the ODF. Quarterly meetings are held at the training. In order for TSSM to be successful district level to discuss progress, share and sustainable, motivators at the experiences, and plan the way forward. community level need constant support and a strategic monitoring system. An This approach has demonstrated the need for institutional framework adapted from a intersectoral collaboration for sanitation. previous UNICEF-supported sanitation Lessons learned from this case study can be project in Betul and Chhindwara district in spread to other districts in Himachal Pradesh Madhya Pradesh is being proposed (see and Madhya Pradesh. section 3.5). Skills and staff requirements A good example to demonstrate the WSP-SA can play a major role in importance of the right institutional advocating for change in the two target framework to support CLTS is the Khandwa states. Considering that sanitation marketing District case study. It was observed during is a fairly new phenomenon in both states, it the visit that there has been no follow-up by may be worth considering appointing a the district administration and community “marketing coordinator.� This person would leaders since the training was completed. It support the country team to develop TSSM appeared that the training was conducted in the two states, particularly with without due consideration of follow-up. Any programming issues. future training should endeavor to advise and prepare the government for the The nature of this role means that the person necessary follow-up and institutional should be a senior-level sanitation and support required to implement TSSM. hygiene education specialist with vast knowledge and experience in similar work to guide and support the TSSM projects in MP and HP. If possible, an existing staff 30 Global Scaling Up Sanitation Project person can be identified but the time period reduce the current cost of lining septic tanks. for this project would require full-time The leach pit/septic tank size can also be concentration on the project. reduced even in areas where a lining is required, in order to reduce the total cost of Himachal Pradesh latrines. Technology/pricing As pit latrines are most likely to be The Himachal Pradesh government is more permitted for parts of Himachal Pradesh, it flexible about sanitation technology and would be necessary to build the capacity of options. The Rural Development government and private masons to produce Department at the state level recently longer-lasting and easier to clean latrine requested the central government to allow platforms such as the “sanplat� (dome and for simple pit latrines to be counted as square-shaped). In areas where human feces improved sanitation in some districts. These are being used for manure, it would be include districts with freezing weather beneficial to build local skills for the conditions that will not permit the use of construction of ecosan latrines. latrines with a water seal. The latrine technology handbook prepared Although innovative low-cost latrines were with the support of WSP needs to be revised seen in many parts of the state, awareness is to make it more user-friendly, with clear, not widespread, and households continue to simple drawings, cost estimates, and fewer build extremely expensive latrines. It is words. If possible, the catalogue should therefore necessary to compile information allow households to mix and match pit about existing innovative low-cost latrines design, style of platform/pan, and and disseminate the information across the superstructure. A similar booklet has been state. produced by UNICEF in Madhya Pradesh and was used in Betul and Chhindwara One aspect of latrine construction in districts. Himachal Pradesh that requires attention and possible modification is the size and lining Supply mechanism of septic tanks. The size and method of The sanitation supply market is well lining septic tanks means that many established and is entirely run by the private households want their own latrines but sector, which makes it more sustainable. cannot afford them. Considering that CLTS Most latrine components and construction awareness is already high in Himachal materials are easily accessible even in the Pradesh, creating awareness of cheaper most remote part of the state. Retailers of latrine construction methods would sanitary hardware are keen to stock any contribute to scaling up TSSM. product as long as there is demand. To facilitate the scaling up of TSSM, a A key gap in the supply market is the lack of comprehensive menu of latrine options knowledge of the activities of masons who suitable for different geophysical areas of build latrines, since their knowledge and Himachal Pradesh should be compiled. For skills for latrine construction have never example, areas with stable soil would not been assessed. It would also be helpful to require lining, which will considerably 31 Global Scaling Up Sanitation Project find out why they build the high-cost septic process and has decided to use community tanks seen in parts of Himachal Pradesh. theater instead. It is not certain how effective these methods have been, but there The fact that the masons are a mobile labor is evidence to show that more villages in force makes it difficult to track them, but it which government officials/community would be beneficial to understand their leaders implemented CLTS directly have latrine construction experience and assess achieved ODF status. the possibility of training them on low-cost latrines and construction methods. In order to scale up TSSM, it is important that different approaches and messages are Subsidy not sent out to the community. It would be necessary for WSP to facilitate discussions Similar to Madhya Pradesh, the latrine with this NGO (which is said to have strong subsidy is a sensitive issue and the decision political links) and the Rural Development on when and how to use it is dependent on Department to work a way forward. the district administration. The subsidy has even been extended to families above the poverty line in order to meet the target set Madhya Pradesh for ODF villages. The only difference here Technology/pricing is that households are motivated and sometimes forced to use the latrines or be As earlier mentioned, the restriction to only penalized. one technology option is a cause for concern in MP. This stems from the fact One positive aspect is that the state that government is heavily involved in the sanitation strategy indicates a subsidy delivery of sanitation facilities using a should only be given when villages achieve subsidy. It is important to catalogue other ODF status, though this is not followed. innovative options that have been built by Even in places where this is the case, block- individuals without TSC subsidy support. level administrations still subsidize Lessons can be learned from Betul and household latrines from other development Chhindwara Districts, where the UNICEF- funds. supported Child Environment Project had a sanitation component that was implemented WSP should continue to advocate for without subsidy. implementation of the sanitation strategy across the state and, if possible, support Himachal Pradesh’s innovative low-cost, discussions and workshops to create water-based latrines options could be awareness of the strategy among district and transferred to MP and would still be block-level administrators. acceptable to the government. Poor households in rural Madhya Pradesh Promotion may be unable to afford the latrine option An NGO has been contracted to implement being promoted. The minimal cost of these the IEC component of TSC in six districts. It latrines is over Rs1,200 without has a vast network of motivators at the superstructure, a bulk of which is as a result community level across the state. The only of a brick lining. In order to make latrines drawback is that it does not use the CLTS more affordable, it would be necessary to 32 Global Scaling Up Sanitation Project identify areas with stable land to cut the with the transfer of TSC to the Rural cost of the lining. A good first step would Development Department. be to look at the guidebook prepared by the PHE Department with the support of Subsidy UNICEF. The book (in Hindi) highlights The issue of the latrine subsidy in Madhya various technology options that are suitable Pradesh is a sensitive and potentially for the different parts of Madhya Pradesh difficult one. Many households cannot depending on geology. afford to build their own latrine due to the level of poverty, but extending the subsidy Supply mechanism to every household is not sustainable. With the increasing awareness and interest in the TSC program among top-level The government is keen to have more NGP government officials, targets for NGP awards, which is the reason for heavily awards have been set for district subsidizing household latrines. In this light, administrators. This has resulted in it may be difficulty to implement all the increased involvement of the government in principles of TSSM in Madhya Pradesh. the supply of latrines, often with a very high subsidy. A way forward would be to commence discussion with the government to devise Many households are dependent on innovative means of using the subsidy and government to provide them with latrines, to restrict it to families below the poverty and few purchase materials to build their line. There would also be a need to have own latrines. The extension of the subsidy to CLTS demonstration sites to convince the families above the poverty line has government that the approach can work. worsened the situation. This situation does This could be done by identifying villages not mean that the private sector retailers and where most households are classified as suppliers of sanitary wares are weak. The being above the poverty line and therefore sanitation market is well developed in MP, do not qualify for a subsidy. and most times the government sources its materials from the local retailers. Promotion Where any form of promotion is carried out, The major barrier to sustainable sanitation it is usually through folk performances and and increase in demand in Madhya Pradesh the use of IEC materials such as posters. In is not mainly due to a poor supply network, the government sanitation program, where but could instead be mainly the result of the success is measured by the numbers, high subsidy given to all households by the sanitation and hygiene promotion for government. behavior change often receive minimal Strong and continuous advocacy is required attention. In order to increase emphasis on to persuade the government to be less behavior change, government and involved in the supply of latrines but to community opinion leaders needs to be support more sustainable demand-driven, equipped with the skills and tools to community-led approaches. An opportunity facilitate CLTS. to commence advocacy was recently created 33 Global Scaling Up Sanitation Project As CLTS is a considerably new concept in This phase is the preparatory step for TSSM Madhya Pradesh, there is need for a mass and facilitates the identification and awareness campaign within the government development of the 5Ps of sanitation at the state, district, block, and community marketing – Product (latrines); Price; levels. Promotion; Place; Partners. This awareness campaign should be Phase 1 consist of three components: followed by identifying and training a core Consumer study – provides the baseline for group of trainers particularly at the district developing the promotion/communication level. WSP can play a major role in strategy; Supply study – provides the supporting these training sessions and if baseline for adapting products, prices, and possible join forces with UNICEF so as to place; Institutional support – advocates for present a single voice to the government. institutional structure at the state, district, and village levels to support TSSM. (See CLTS training content should clearly Figure 8 for the proposed TSSM differentiate between trainers and framework.) motivators. The community-level motivators should be equipped with skills and simple, i. Consumer study clear tools to facilitate CLTS at the This component involves a detailed study of community level. households, who in this report are It is important to select the right motivators. considered as consumers of sanitation They should be respected and looked up to services. The objective of the study is to in their communities. Another target provide in-depth understanding of sanitation audience could be members of the Self Help consumers in order to develop an Group (SHGs), who are often women. appropriate sanitation marketing strategy Evidence form Himachal Pradesh has shown with the potential to generate large-scale that women’s groups can be a great force for demand. It is expected that the study will change and can champion CLTS in their use both qualitative and quantitative villages. methods such as focus group discussions/in- depth interviews and a questionnaire survey. As Madhya Pradesh has a considerable tribal The outputs expected from the study will and schedule caste population, it would be include-- necessary to pay special attention to these groups and identify people of their own • motivations for terminating open casts to champion CLTS. Previous defecation, building and using latrines; experience shows that the tribal areas often require innovative sanitation and hygiene • barriers (perceived and actual) for promotion strategies combined with constant continuing open defecation and not support and monitoring. building latrines; • preferences for latrine technologies and Proposed Framework for TSSM options including special attributes desired; Phase 1: Preparation 34 Global Scaling Up Sanitation Project • target audience segments including those regular monitoring. The institutional that are less likely to afford basic structure being suggested is outlined in sanitation; section 3.5. This should not just be a one-off activity but should be continuously • existing and potential communication advocated and reinforced. In order to have channels that provide cost-effective the necessary institutional set to support means of reaching a high percentage of TSSM, awareness needs to be created within the population. the government at the state, district, block, and village levels through workshops, ii. Supply study individual meetings and discussions. The objective of this study is to develop an Note: Components i – iii can be conducted in-depth understanding of sanitation supply simultaneously in both states. mechanisms and to catalogue existing latrine technologies in both states. Similar to the Phase 2: Development consumer study, it is expected to survey and document distinctive and innovative features In Phase 2, the findings from the study of low-cost latrines in both states. An phase are used to develop, pre-test, and important output of the latrine survey will be revise a communication strategy. The two a catalogue containing sketches of low-cost main activities in this phase are as follows: latrine technologies and options for the two states. The study will also review masons’ i. Developing a communication strategy activities and possibly assess their capacity for low-cost latrine construction and the A communication strategy should be potential to build their capacity. Other developed for Madhya Pradesh and aspects of the study will include assessment Himachal Pradesh. The strategies should of retailers of sanitation constructions include among other things: materials and components, prices of • Message concepts: Positioning messages materials, and accessibility of retailers to should be developed using key households. The study is expected to use motivations identified during the study. qualitative (semi-structured/unstructured interviews) and quantitative (observation • Development of promotion materials: and interviews) methods. These materials could include a catalogue iii. Preparation for institutional support of latrine options with prices and places to purchase construction materials and The key objective of this phase is to help the components, as well as PRA tools to government to prepare the necessary assist village-level motivators and institutional structure needed to support and facilitators in promotion activities. Other monitor TSSM. Although the responsibility promotion materials such as drama for this activity lies entirely with the sketches and songs similar to the government, it is unlikely to happen without message concepts can also be developed. a constant push by an external body such as WSP. The recommendation is not to • Identification and selection of establish a new structure but to use the communication channels: Based on the existing institutional structure more findings from the consumer and supply effectively in both states and to conduct 35 Global Scaling Up Sanitation Project studies, cost-effective communication Phase 3: Capacity building channels with the potential to reach a Once all baseline preparations, including the good number of the adult population development of messages and materials, could be selected. Some of the channels have been completed, the next activity is to that have been used include community commence capacity-building of all partners events, point-of-purchase materials, identified during the study. A key aspect of drama presentations, one-to-one the capacity-building phase is the training of communication (motivators, opinion trainers and motivators on the CLTS leaders), mass media (radio, television, approach. It is important that suitable newspapers), outdoor advertising, and persons are trained as trainers and print materials (posters and flyers). motivators respectively. The motivators Although there are many channels should also be equipped with the necessary available, the most important tools to help them perform their functions consideration is to use a combination of more effectively in their communities. Prior cost-effective and sustainable channels to conducting the training, WSP-SA could that can reach a high number of the target prepare a simple capacity-building strategy audience. It is also important to consider for the government. The strategy should channels that can easily be implemented, consist of advocacy workshops at the supported, and monitored within the division levels targeting collectors and government structures. As there is CEOs Zila Panchayat, or, in the case of evidence particularly in Himachal Himachal Pradesh, at the state level Pradesh to show that village-level targeting the same group of government motivators are very effective in officials. Other aspects of the strategies motivating the community to change include criteria (guides) for selecting open defecation practices, this is a cost- trainers and motivators, pre-training effective method of communication that preparation, training agendas, estimated can also be used in Madhya Pradesh. costs, and post-training support. ii. Pre-testing of messages and materials The capacity for facilitating the CLTS Upon the completion of the communication approach should be established at the state strategy, it is very important that the level (TSC Communication and Capacity message concepts and promotion materials Development Unit), district and block level are pre-tested with the target audience. This (trainers), and village level (motivators). is to ensure that misconceptions at the Other groups that can be included in the development stage are corrected as much as training are NGO partners in the TSC possible and that the target audience feels program, who can become trainers for that the messages and materials are for them. motivators. WSP can work jointly with No messages or materials should be used UNICEF to ensure CLTS is incorporated widely prior to pre-testing. This not only into TSC training by the Communication avoids unnecessary waste of resources, but and Capacity Development Unit (CCDU) in also helps to run more effective promotion Madhya Pradesh. The training should activities. Messages and materials can be include an activity guide for motivators pre-tested using similar methods used for the suggesting what they could do in their consumer and supply studies. communities after completing the training. Another important component of the 36 Global Scaling Up Sanitation Project training includes monitoring systems to where possible, can be supported by the encourage all partners to carry out their cluster-level facilitator assigned to a activities with the knowledge that they are community. In places, where NGOs have being monitored. been contracted to implement the IEC component of TSC, they can instigate Phase 4: Implementation and monitoring community action using community drama Upon completion of the initial capacity- followed by discussions led by community building activities, participants should be leaders. Regular monitoring meetings should encouraged to commence implementation be held to continue to provide support and immediately. An initial community meeting, reinforce CLTS among all partners. 37 Global Scaling Up Sanitation Project 38 Global Scaling Up Sanitation Project government structure. If it becomes too Proposed Institutional Structure complex for the government to set up, the to support Total Sanitation and responsibilities and activities at this level Sanitation Marketing can be assumed at the block level. However, in a big state such as Madhya Pradesh, it The institutional structure proposed for may be difficult, if not almost impossible, TSSM is adapted from a similar structure for the block level to effectively monitor implemented by UNICEF in Betul and TSSM activities at the village level. Chhindwara Districts of Madhya Pradesh in 2000–2002. The institutional structure is Block level divided into five levels: Village, Cluster, Block, District, and State (Figure 9). Formation of a TSC Task force headed by the Janpath (Block) CEO with members Village level from related departments is recommended. As mentioned earlier, members of the task At the village level, the motivators have the force will be assigned facilitative and key responsibility for implementing TSSM supervisory roles at the cluster level. Their using participatory and other IEC tools. The role is to ensure that CLTS is being motivators could consist of women and implemented at the village level. All youth groups, respected individuals, teachers members of the task force should be trained and religious leaders, and members of the in CLTS as trainers with special attention on Panchayat Raj Institution led by the effective use of the TSC subsidy and on sarpanch. All motivators must receive monitoring. Block CEOs are very important training on CLTS and necessary PRA tools. stakeholders, as they have the power to The incentive will be for the entire approve village developmental funds and community to reach ODF status and win the have a lot of influence on the sarpanches and NGP award. members of the PRI. It is therefore Cluster level important that they are convinced of the need to use CLTS rather than supply-driven The cluster level will have members of the approaches. block-level TSC task force with assigned responsibility for 5–15 gram panchayats. District level The cluster-level facilitators will support At the district level, there should also be a and monitor village-level motivators and task force headed by the CEO Zila ensure that appropriate people in the Gram Panchayat and members from Rural Panchayats attend the CLTS training and Development and other link departments, other capacity-building activities. They including the District TSC Coordinators. should organize monitoring meetings The district coordinator (often contract staff) monthly at the beginning and then once will coordinate most TSC activities, every two months. All cluster-level including planning and preparation for facilitators should be trained on CLTS and CLTS training to free full-time government monitoring and should report to the block staff to perform their other responsibilities. CEO, who is also the nodal officer for TSC Each member of the District TSC task force at the block level. This level should be should be assigned responsibility for discussed with the government of both supervising TSC activities in a number of states, as there is no similar existing blocks. The TSC coordinator will have 39 Global Scaling Up Sanitation Project overall responsibility of feeding results into state sanitation strategies are disseminated the central report card for TSC and ensuring and used for implementation at the district that all promotion materials and tools are with the support of external agencies. In distributed to the motivators on completion Madhya Pradesh, WSP should work with of CLTS training. He or she should also UNICEF to ensure that the strategy is have the responsibility of planning quarterly compiled and approved and also support monitoring meetings to the blocks and CLTS awareness workshops. The CCDU circulating information on dates for unit should be the main training resource for monitoring meetings. It is also absolutely TSSM in the two states and should therefore important that the collector buys into the be equipped with the capacity to train CLTS approach and is convinced that it trainers and motivators on the CLTS would yield better and more sustainable approach. UNICEF is already supporting the results. It is therefore important that all Water and Land Management Institute collectors attend an awareness and advocacy (WALMI), which is the base for the TSC workshop at the state level prior to initiating CCDU to train various stakeholders to TSSM. implement TSC. Although the training contains some PRA components, it is not State level necessarily directed at the CLTS approach. It is therefore important for WSP to liaise The state level should have a specific TSC with UNICEF to ensure that WALMI cell headed by a senior officer (IAS) and resource people acquire CLTS training skills supported by a capacity-building team and tools to enable them to serve as the state (CCDU). In Madhya Pradesh, a TSC cell CLTS resource center. The same approach was in the PHE Department and has now needs to be adapted for Himachal Pradesh to been moved to the Rural Development ensure that there is a CLTS resource center Department. The TSC project directors in at the state level rather than concentrating on both states will have the role of ensuring that a few districts. 40 Global Scaling Up Sanitation Project 41 Global Scaling Up Sanitation Project REFERENCES Betul District Government. Undated. “Betul District Fact Sheet.� Retrieved June 27, 2007. Feedback Ventures. 2006. “Assessment of the Water Supply and Sanitation Sector in Himachal Pradesh.� Final report submitted to the Government of Himachal Pradesh and Water and Sanitation Program - South Asia. Government of Himachal Pradesh. Undated. “Draft Strategy for Total Rural Sanitation in HP R.D. Department.� Government of Himachal Pradesh. Undated. “Himachal Pradesh at a Glance.� Retrieved May 21, 2007. Government of Himachal Pradesh. Undated. “Profile of Solan District.� Retrieved May 21, 2007. Government of Himachal Pradesh. Undated. “State Sanitation Reward Scheme, Rural Development Department.� GVS (Giyan Vigyan Samiti). Undated. “IEC Implementation Plan.� Total Sanitation Campaign under Re-structured centrally sponsored rural sanitation campaign. Kamal, K. 2006. “Review of Progress of CLTS Implementation in Solan District of Himachal Pradesh State, India.� Khandwa District Government. Undated. Statistics of District Khandwa, Census 2001. Retrieved June 27, 2007. Knowledge Links. 2005. “A Discussion of Technologies for Sanitation in Rural Himachal Pradesh.� Ministry of Health and Family Welfare Government of India. 2006. 2005–2006 National Family Health Survey (NFHS-3). Fact Sheet - Himachal Pradesh (Provisional Data), International Institute for Population Sciences Deonar, Mumbai. Ministry of Health and Family Welfare Government of India. 2006. 2005–2006 National Family Health Survey (NFHS-3). Fact Sheet - Madhya Pradesh (Provisional Data), International Institute for Population Sciences Deonar, Mumbai. Scot Wilson, in association with IDC. 2005. “Rapid Assessment of Rural Water Supply & Sanitation Sector in Madhya Pradesh (Final Report).� WaterAid India. 2005. “Water and Sanitation in Madhya Pradesh. A Profile of the State, Institutions and Policy Environment.� WaterAid India. 2006. “Water and Sanitation in Rural Areas of Madhya Pradesh.� 42 Global Scaling Up Sanitation Project