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ARWSP GUIDELINES |
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1.1 BACKGROUND
Drinking Water Supply is a State subject. Funds have been
provided in the budgets of the States for the drinking water
supply right from the commencement of the first Five Year
Plan. A national water supply and sanitation programme was
introduced in the social welfare sector in the year 1954.
The Government of India provided assistance to the States
to establish special investigation divisions in the Fourth
Five Year Plan to carry out identification of the problem
villages. Taking into account the magnitude of the problem
and to accelerate the pace of coverage of
problem villages, the Central Government introduced the Accelerated
Rural Water Supply Programme (ARWSP) in 1972-73 to assist
the States and the
Union Territories with 100% grants-in-aid to implement
the schemes in such villages. This programme continued till
1973-74. But with the introduction of the Minimum Needs Programme(MNP)
during the Fifth Five Year Plan (from 1974-75), it was withdrawn.
The programme was, however, reintroduced in 1977-78 when the
progress of supply of safe drinking water to the identified
problem villages under the Minimum Needs Programme was not
found to be satisfactory. |
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1.2 National Drinking Water Mission
The entire programme was given a Mission approach when the
Technology Mission on Drinking Water and Related Water Management,
also called the National Drinking Water Mission (NDWM) was
introduced as one of the five Societal Missions in 1986. NDWM
was renamed as Rajiv Gandhi National Drinking Water Mission
in 1991.
- The following were the objectives of the NDWM in 1986:-
- Cover 1,37,155 residual problem villages as on 1.4.86
with safe drinking water;
- Evolve appropriate technology mix;
- Improve performance and cost effectiveness of the ongoing
programmes;
- Create awareness on the use of safe drinking water;
- Take conservation measures for the sustained supply of
water.
ARWSP continued to be implemented till 1998-99 though it
was envisaged that all the rural habitations in the country
would be covered during the 8th Plan period and the implementation
of the programme would be discontinued by the end of the 8th
Plan period. However, the objectives of the programme could
not be attained as envisaged due to lack of sufficient funds
and re-emergence of Not Covered habitations etc. and the programme
continues to be implemented during the 9th Plan.
1.3 Need for change
The strategies of Rural Water Supply
Programme hitherto adopted revolve around the basic premise
that provision of safe drinking water is the responsibility
of the Government. Increased outlay by the Government, particularly
in the last one decade and, a change in technology focus to
handpumps fitted on tube wells and bore wells, had resulted
in an impressive increase in the total rural water supply
coverage. However, the availability of potable drinking water
in rural areas, especially during the summer months, is still
not satisfactory. Eventhough about 1 lakh habitations are
covered every year, the number of problem habitations has
not declined proportionately. The reasons identified for uncovered
villages were:
- Fast depletion of ground water level, which also increases
incidence of quality problems of Arsenic and Fluoride etc.
- Sources go dry and defunct due to deforestation with consequent
reduced recharge and lack of protection.
- Heavy emphasis on new construction and poor attention
to maintenance.
- Non-involvement of people in operations and maintenance.
- Neglect of traditional water management practices/systems.
This revised guidelines is envisaged to be a tool to energise
the system towards overcoming the above and to achieve the
goal of providing safe and sustainable drinking water to all
rural habitations of the country during the Ninth Plan period
by exercising over the following:
- Control on over-extraction of groundwater
- More funds for repairs and rehabilitation
- Increasing people’s participation
- Reserve 20% funds for states promoting sector reforms
- Water to be treated as a socio-economic good
- Stronger links with watershed development programmes
Hence, the prime objectives of these guidelines are as under:
- To ensure coverage of all rural habitations especially
to reach the un-reached with access to safe drinking water.
- To ensure Sustainability of the systems and sources.
- To preserve quality of water by institutionalising water
quality monitoring and surveillance through a Catchment
Area approach.
1.4 Programmes of RGNDWM (w.e.f. April 1, 1999):
Funds are provided to the States by the Rajiv Gandhi National
Drinking Water Mission under the following programmes:
a) Accelerated Rural Water Supply Programme(ARWSP): To supplement
the efforts of the State Governments in providing access to
safe drinking water to all rural habitations of the country.
b) Sector reform programme: Funds would be provided for institutionalising
community participation in capital cost sharing, Operation
& Maintenance and Water Quality Monitoring & Surveillance
in identified pilot districts.
c) Sub Missions: Five Sub Missions on problems of water quality
and sources drying up needing construction of water conservation
and recharge structures and other measures with the States
planning and approving them on their own.
d) Human Resource Development(HRD).
e) Research & Development(R&D).
f) Information, Education and Communication(IEC).
g) Management Information System(MIS).
h) Provision of water supply in rural schools.
i) Monitoring & Investigation Units, Purchase of Rigs,
Water Quality Monitoring & Surveillance, Monitoring &
Evaluation Activity, Solar Voltaic Pumps and innovative projects.
1.5 Evolution of ARWSP guidelines
Though ARWSP was in existence from 1972,
comprehensive guidelines for implementation of ARWSP were
first issued in 1986. The present guidelines are based on
the revisions made and the following important developments
that took place since 1986:-
- National Water Policy, 1987. (Annexure-I)
Revised criteria for allocation of ARWSP funds to States/UTs
based on poverty criteria as was applicable to other Poverty
Alleviation programmes.
Earmarking of minimum of 25% of the ARWSP funds for SCs
and another minimum of 10% for STs.
Provision for utilisation of 10% funds for O&M.
Introduction of ARWSP in DDP areas without the condition
of matching funds under the MNP.
Introduction of central assistance at 75% for drinking water
supply schemes for sub-missions including water harvesting
structures/water conservation, SPV pumping systems.
Central assistance for district level laboratories.
Guidelines issued by the Mission, on Human Resources Development.
Guidelines issued by the Mission, on Research & Development.
Guidelines issued by the Mission, on Information, Education
and Communication (IEC).
Guidelines issued by the Mission, on Computerisation; MIS
in rural water supply programme.
Complete delegation of powers to States to give technical
and administrative approval for schemes under ARWSP in 1995.
Complete delegation of powers to States to give technical
and administrative approval for schemes under Sub-Mission
following the procedure adopted for sanctioning normal ARWSP
schemes w.e.f. 1-4-1998.
The Government of India, in March 1999, approved major policy
changes for implementation of Rural Water Supply Programme
during 9th Plan period.
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CHAPTER – 2 |
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IMPLEMENTATION OF THE ACCELERATED
RURAL WATER SUPPLY PROGRAMME (ARWSP) |
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2.1 IMPLEMENTING AGENCIES |
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2.1.1 The implementing agencies for the
programme may be decided by the State Government. The implementation
may be through the PHED or Rural Development Department / Panchayati
Raj Department / Board, Corporation or Authority. The implementation
should be entrusted to one single department in the State and
not to a number of departments, with a view to better implementation,
monitoring of the progress, etc. If the programme has to be
implemented in more than one department in the State due to
unavoidable and certain special considerations, one of the departments
should be designated as the Nodal Department for coordinating
the rural water supply programmes and sending consolidated progress
to the Central Government.
2.1.2 The Panchayati Raj Institutions should also be involved
in the implementation of schemes, particularly in selecting
the location of standpost, spot sources, operation and maintenance,
fixing of cess/water tariff, etc.
2.1.3 While formulating the schemes, name of the implementing
agency may be indicated for each scheme.
2.1.4 The Nodal Department in the State Government will have
the overall responsibility for planning, implementation, supervision
and monitoring, of the approved schemes.
2.1.5 In case the implementation is entrusted to the District
Rural Development Agency (DRDA) , there should be a close
coordination between the State Nodal Department and the DRDA
so as to ensure avoidance of duplication of efforts and dovetailing
of the activities with the normal schemes under MNP and ARWSP.
The implementation of specific schemes through DRDAs should
not mean reduction or stoppage of flow of funds to the particular
scheme/area under State Sector MNP. |
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2.2 NORMS FOR PROVIDING POTABLE DRINKING WATER |
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2.2.1 While implementing the Rural Water
Supply Schemes, the following norms may be adopted for providing
potable drinking water to the population:
40 litres per capita per day (lpcd) for humans to meet the following
requirements.
Purpose
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Quantity (LPCD) |
Drinking
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3 |
Cooking
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5 |
Bathing
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15 |
Washing utensils & house
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7 |
Ablution
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10 |
2.2.2 In addition, provision should be allowed at 30 lpcd for
animals in hot and cold desert/ecosystems in 227 blocks of 36
DDP districts already identified in the States of Andhra Pradesh,
Gujarat, Haryana, H.P., J&K, Karnataka and Rajasthan.
2.2.3 With normal output of 12 litres per minute, one handpump
or standpost is estimated for every 250 persons. In case of
an independent habitation/hamlet/Wadi/Tola/Majra/Mohra etc,
if their population is less than 250 persons and there is no
potable water source within its location, one source may be
provided . A rural habitation not having any safe water source
with a permanently settled population of 20 households or 100
persons, whichever is more, may be taken as the unit for coverage
with funds under the ARWSP. However, the State Government could
cover any habitation regardless of its size/population/number
of households with funds under the MNP.
2.2.4 DDP areas and SC/ST habitations with less than 100 persons
can, however, be covered under the ARWSP. |
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2.3 CRITERIA FOR IDENTIFICATION OF PROBLEM HABITATIONS |
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A habitation which fulfills the following
criteria may be categorised as a Not Covered (NC) / No Safe
Source (NSS) habitation :
a) The drinking water source/point does not exist within 1.6
km of the habitations in plains or 100 meter elevation in hilly
areas. The source/point may either be public or private in nature.
However, habitations drawing drinking water from a private source
may be deemed as covered only when the water is safe, of adequate
capacity and, is accessible to all.
b) Habitations which have a water source but are affected
with quality problems such as excess salinity, iron, fluoride,
arsenic or other toxic elements or biologically contaminated.
c) Habitation where the quantum of availability of safe water
from any source is not enough to meet drinking and cooking
needs.
Hence, in case of quality effected habitations, even if they
are fully covered as per the earlier norms it would be considered
as a NSS habitation if it does not provide safe water at least
for the purpose of drinking and cooking.
Habitations which have a safe drinking water source/point(either
private or public) within 1.6 km. in plains and 100 meter
in hill areas but the capacity of the system ranges between
10 lpcd to 40 lpcd, the habitation could be categorised as
“Partially Covered (PC)”. These habitations would,
however, be considered as “Safe Source (SS)” habitations,
subject to the water quality parameters.
All the remaining habitations may be categorised as “Fully
Covered (FC)”.
2.3.1 Once the task of providing
every habitation with safe drinking water source is completed
as per the norms and criteria indicated at para 2.2.1 and
para 2.3 (a) respectively, in the entire State, the State
Government may consider relaxation of norms with the prior
approval of the Government of India, subject to the condition
that beneficiaries of the relaxed norms are willing to share
a part (which should not be less than 20%) of the capital
cost and shoulder full responsibilities of subsequent O &
M and replacement so as to meet their enhanced service expectations.
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2.4 PRIORITY FOR COVERAGE OF NO SAFE SOURCE HABITATIONS |
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The following priorities should be adopted:
- Coverage of No Safe Source (NSS) habitations. Among them
priority may be given to the ones inhabited exclusively by
SC/ST or having larger SC/ST population enumerated in the
Status Report of 1994 (Survey) and resurveyed in 1996-97.
- Coverage of quality affected habitations with acute toxicity
first and the others later.
- Upgradation of source level of safe source habitations
which get less than 40 lpcd water to the level of 40 lpcd.
- Coverage of schools and Anganwadis where safe drinking
water sources could not be provided under the outlays allocated
by the Tenth Finance Commission. |
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2.5 Criteria for allocation of funds under ARWSP |
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Criteria for allocation of funds to the
States under the ARWSP w.e.f. 1.4.99 will be as under: |
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Weightage for
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Percentage (%) |
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40 |
| (b) States under DDP, DPAP,
HADP & special category hill States in terms of rural
areas |
35 |
| (c) NC/PC villages (at 2:1
ratio) |
10 |
| (d) Quality affected villages
(40:40:15:5) |
5 |
| (e) Overall water resource
availability (un-irrigated over irrigated area) |
10 |
| Total |
100 |
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However, the proportion of Union Territories,
North Eastern States, and Sikkim is retained at the level of
their allocation for 1986-87. 2.5.1
The allocation of Central Assistance under the ARWSP is subject
to the matching provision/ expenditure by the States under the
State Sector MNP. Releases under the ARWSP would not exceed
the provision for Rural Water Supply made by the State Governments
under their MNP. The shortfall in actual expenditure under the
MNP vis-à-vis expenditure under the ARWSP during the
previous year shall be deducted from the last installment of
the ARWSP funds for the current financial year. The allocation
of central assistance under the ARWSP for a financial year would
be communicated to the States/UTs at the beginning of the financial
year. 2.5.2 These are dynamic
figures and allocations for the subsequent years will be made
based on the data on items on 2.5 (c), (d) and (e) above as
on 31st March of the previous year. This can vary subject to
changes on (c), (d) and (e) above on an annual basis .
2.5.3 The funding pattern for Sub Mission
projects taken up after 1-4-1999 will be in the ratio of 75:25
by the Central and State Governments. No separate funds will
be released for this purpose. Upto 20% of the ARWSP funds released
to the States can be used for these projects as per the details
given in para 5.2. |
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2.6 ARWSP in DDP Areas |
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A fixed amount (of about 5%) of annual
central plan allocation is earmarked for Rural Water Supply
in DDP areas in Andhra Pradesh, Gujarat, Haryana, Himachal Pradesh,
J&K, Karnataka and Rajasthan without the condition of the
States providing matching provisions under their MNP. The share
of these States will be determined in proportion to the number
of NSS habitations without safe source. |
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2.7 OPERATION & MAINTENANCE |
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Upto 15% of the funds released every year
under the ARWSP to the States/UTs may be utilised for operation
and maintenance of assets created, subject to (i) ceiling of
matching grant provided by the States out of the MNP provision
and (ii) the approved norms already circulated to all the States/UTs.
The funds earmarked for operation and maintenance of assets
is not to be permitted for creation of capital assets. |
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2.8 EARMARKING OF ALLOCATION FOR SCs/STs |
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2.8.1 The State/UTs are required to earmark
and utilise at least 25% of the ARWSP funds for drinking water
supply to the SCs and another minimum 10% for the STs. Where
the percentage of SC or ST population in a particular State
is considerably high warranting earmarking/utilisation of more
than stipulated provisions, additional funds can be utilised.
As a measure of flexibility, States may utilise at least 35%
of the ARWSP funds for the benefit of SCs/STs, particularly
in those states where SC/ST coverage is less than the coverage
of the general population.
2.8.2 Diversion of funds earmarked for the SC/ST Sector to
other sectors is not permitted. In cases wherein the States
have achieved substantial coverage of SC/ST habitations and,
do not have sufficient SC/ST population left out so as to
utilise 35% of the ARWSP and the MNP allocations, such States
may be allowed by the Rajiv Gandhi National Drinking Water
Mission, to incur lower level of expenditure on the coverage
of SC/ST habitations, on a case to case basis, in consultation
with the Ministry of Social Justice and Empowerment and the
National Commission for SC/ST. In such cases, States are required
to submit separate proposals giving detailed justification
for availing of such relaxation.
2.8.3 The State Governments may list out the SC/ST habitations
separately and their coverage may be monitored as a distinct
component of the programme. |
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2.9 INVOLVEMENT OF WOMEN |
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2.9 INVOLVEMENT OF WOMEN |
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Since women are the principal beneficiaries
of this programme, it is of crucial importance that women are
involved at all the stages of Rural Water Supply Schemes, particularly
while making decisions on the location of the standpost/spot
sources in the villages/habitations. Information about sources
of water should be obtained from women by the surveyors of the
schemes. They should also be involved in the following manner:-
a) At least 30% of handpump mistries under NHRD, TRYSEM and
other training schemes, should be women of the local areas/habitations
as they can take better care of the operation and maintenance
of the handpump schemes than others.
b) There should be women caretakers for handpumps in the
habitations.
c) Certificate about satisfactory completion of the schemes
may be obtained from women groups in the habitations.
d) Prominent women from the habitation should be represented
on the village level water monitoring committees.
Experience has shown that where women are involved in such
consultation and in the maintenance of the spot sources, the
performance of the water supply systems has been effective.
This aspect should be kept in view and ensured by the implementing
agencies at the time of formulation, implementation and maintenance
of the schemes. Each scheme/project for Rural Water Supply
should mention the extent of the involvement of women. |
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2.10 ANNUAL ACTION PLAN |
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2.10.1 The main objectives of the Annual
Action Plan are to provide a definite direction to the programme,
and also to ensure monthly and quarterly monitoring of physical
and financial progress during the course of the financial year
vis-à-vis (i) the target as included in the Action Plan
and (ii) the priorities mentioned in para 2.4.
2.10.2 The States/UTs shall prepare Annual Action Plans six
months before the commencement of the financial year on the
basis of the shelf of schemes, the likely size of the allocation
under State Sector MNP, ARWSP as well as likely carry over
funds, if any, and submit them to the RGNDWM, by the beginning
of October of the year for use at the Annual Plan discussions.
2.10.3 While preparing the Annual Action Plans, completion
of the incomplete works shall be given priority over taking
up of new works. It should be ensured that the works taken
up are completed as per schedule and that there should not
be any delay in execution which would result in cost escalation,
non-utilisation of assets created, etc.
2.10.4 As soon as final outlay is decided, the Annual Action
Plans prepared earlier may be reviewed and finalised. It should
be forwarded to the Central Govt. latest by the 30th April
of the financial year to which they pertain. The Action Plans
should indicate the following aspects also:-
- Target of coverage of NC/PC habitations with their names,
block, district, etc with reference of serial number from
the appropriate survey list,
- Whether the habitations will be covered fully or partially.
If partially, the extent of such partial coverage in terms
of either additional segment of population to be benefited
or the number of sources to be added to the sources existing
at the end of the previous financial year,
- Steps taken by the implementing agency for functioning
in a mission-mode,
- In house plan for HRD and how these have bearing on the
projects,
- The activities to be taken up under sub-missions, magnitude
of the problem, steps to tackle it, the oranisational structure
for handling the sub-missions, details of IEC activities,.
- Population to be benefited indicating separately the SC/ST
population; and,
- Clean environment around drinking water sources including
handpumps , proper O&M and involvement of the Panchayati
Raj Institutions.
2.10.5 Dual Water Supply Policy
may be adopted for rural habitations facing acute water quality
problems. In these habitations even if safe water is provided
upto 10 LPCD, which would be sufficient for drinking and cooking
purposes, it may be considered as a habitation with a safe
source of drinking water. For other activities like washing,
ablution etc. water available from the unsafe sources can
be utilised without any problem. |
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2.11.2 The second installment to cover
the balance of the annual allocation will be released on fulfillment
of the following conditions:-
(a) Receipt of a specific proposal from the State/UT Govt. in
prescribed proforma (Annexure II) with progress reports and
returns by the end of December in each year,
(b) Utilisation of 60% of the available resources under the
ARWSP and the MNP (unutilised opening balance, if any, from
the previous years plus funds released as the first installment),
(c) Receipt of certificate of actual expenditure under the
MNP and the ARWSP from the Accountant General upto the year
preceding the previous financial year,
(d) Receipt of utilisation certificate ( in the prescribed
proforma as at Annexure-III) under the MNP and the ARWSP signed
by the Chief Engineer and countersigned by the Secretary,
for the previous financial year,
(e) Certificate that the unfinished works are given priority
for completion,
(f) Certificate that no work started more than three years
ago remains incomplete,
(g) Certificate that schemes technically cleared six months
ago have been taken up for implementation,
(h) Proposal for release of the second installment of funds
under the ARWSP, complete in all respects as indicated above,
should reach the Mission by the 31st December. Such proposals
will be entitled for receipt of full allocated amount under
the ARWSP. Proposals received after the 31st December will
be subjected to progressive cuts as indicated below:
Month of receipt of proposal
for release of second installment of ARWSP fund
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Cut on the total allocated amount
of ARWSP fund |
December
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Nil |
| January |
10% |
| February |
20% |
| March |
30% |
(i) The expenditure on O&M should not exceed 15% of the
ARWSP and 15% of the MNP funds. Excess expenditure in the
previous year, if any, will be deducted at the time of release
of the 2nd installment of funds for the year; and
(j) Any other condition(s) that may be imposed from time
to time.
2.11.3 Release of funds for other schemes/projects will also
be regulated in two installments and as per the need-based
approach. In other words, funds will be released based on
the specific proposals from the State Governments indicating
the actual requirement during the remaining part of the year
and utilisation of prescribed percentage of funds already
released.
2.11.4 While releasing the central assistance, the quantum
of unutilised funds available with the States/UTs in relation
to the total allocation for the financial year will be kept
in view. From 1.4.99, a carry over of funds, to the extent
of 20% of the total allocation for the year will only be allowed.
The maximum carryover of funds on 1.4.99 (from 1998-99 to
1999-2000) permissible is 20% of the total allocation. However,
from 1.4.2000, the carry over of funds, only to the extent
of 15% of the total allocation for the year will be allowed.
Final instalment for the year will be reduced by the amount
the carry over funds exceed this limit.
2.11.5 The States/UTs shall release the entire amount of central
assistance received along with the matching MNP share to the
executing agency/agencies without any delay and in any case
not later than 15 days after its receipt.
2.11.6 In the States where the programmes are implemented
through Statutory Bodies like Boards, Nigam and Authority
etc, central assistance will be released direct to such Bodies
and not through the States. In such cases, expenditure incurred
under the ARWSP should confirm submitting the utilisation
of Central funds should be subjected to audit either by the
Accountant General of the State concerned or by Chartered
Accountants.The expenditure incurred under the ARWSP should
be confirmed by submitting the certificate of actual expenditure
from Accountant General or Chartered Accountant which shall
be acceptable. The Audit of Central funds is mandatory from
the financial year 1999-2000 onwards. In respect of expenditure
incurred under the Minimum Needs Programme the statutory audit
by the Accountant General concerned upto the year preceding
the previous financial year is necessary and hence the Certificate
of expenditure incurred from the AG clearly indicating the
audited expenditure figures will have to be necessarily submitted
2.11.7 Copies of orders for release of funds by the State
Governments both under the ARWSP and the MNP should be invariably
endorsed to the Central Govt. to ensure funds are released
on time.
2.11.8 Vigilance and Monitoring Committee at State, District
and Village level may be set up as indicated in the Ministry
of Rural Areas & Employment letter No.V-24011/27/95-RE-III
dated 16-10-95 and regular meetings of the same held. This
would also be a pre-condition for release of funds henceforth.
2.11.9 Amount released under the ARWSP cannot be utilised/adjusted
against any cost escalation of schemes or excess expenditure
over the approved cost of schemes in the previous years.
2.11.10An official of the Mission should be invited to the
meeting of the Scheme Clearance Committee of the State.
2.11.11The unutilised fund under the ARWSP, due to non drawl
/ non utilisation of the allocated amount by any state government
will be redistributed to the better performing states, towards
the end of the financial year, as per the allocation criteria.
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CHAPTER – 3 |
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SECTOR REFORMS - COMMUNITY PARTICIPATION
IN RURAL WATER SUPPLY PROGRAMME |
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3.1 Background
Water is today perceived by the rural
public as a social right, to be provided free by the Government,
rather than as a scarce resource which must be managed locally
as a socio-economic good in order to ensure its effective
use. This perception has been grown out of the fact that the
present rural water supply systems are designed and executed
by the Department/Boards and, imposed on end-users. Demand
preferences of the people are not taken into account while
executing the schemes. In other words, rural water supply
programme till now has been adopting a supply driven approach.
Experience has shown that the present approach has led to
the failure of a large number of water supply systems/schemes
due to poor operation and maintenance.
Now that substantial investment has been made in the sector
and huge infrastructure and systems built up, it is paramount
that they are made functional to a great degree to achieve
sustainability. There is a general recognition that a transformation
from a target based, supply-driven approach which pays little
attention to the actual practices and/or preferences of the
end users, to a demand-based approach where users get the
service they want and are willing to pay for is urgently required.
Implementation of a participatory demand driven approach will
ensure that the public obtain the level of service they desire
and can afford to pay. Further, full cost recovery of operations
and maintenance and replacement costs will ensure the financial
viability and sustainability of the schemes
The conditions under which people would be willing to maintain
and operate water supply schemes are:-
If they own the assets,
- If they have themselves installed the handpump, or being
actively involved throughout,
- If they have been trained to do simple repairs,
- If they know the government will not maintain the asset,
- If they have sufficient funds for maintenance, and
- If they have to pay for O&M.
Hence, it is possible to institutionalise
community based rural drinking water supply programme if the
Panchayati Raj Institutions/local communities are empowered
to generate resources and are trained and equipped to plan,
implement, use, maintain and replace water supply schemes
themselves in coordination with the Government agencies/Private
Sector/NGOs. |
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3.2 Incentives to States for institutionalising
community participation: |
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3.2.1 From the financial year 1999-2000
onwards, incentives would be given to the States which initiate
steps for institutionalising community participation in the
rural water supply programme in the form of additional funds,
as indicated below:
(a) 20% of the annual outlay will be earmarked in accordance
with the ARWSP criteria to those Sate Governments which keeping
in view the principles of sector reform process discussed
above, will implement the following broader elements:
- adoption of a demand-driven approach based on empowerment
of villagers to ensure their full participation in the project
through a decision making role in the choice of scheme design
and management arrangement;
- focus on village level capacity building (Village Water
and Sanitation Committees);
- ensure an integrated service delivery mechanism by streamlining
the functions of the agencies involved in project implementation
and;
- 10% (at least) capital cost sharing and 100% sharing of
O&M cost by users. The proportion of capital cost shared
should increase proportionately with increasing service
demand. This contribution can be in the form of cash or
kind (labour, land or material)·
- Taking up of conservation measures for sustained supply
of water through rainwater harvesting and ground water recharge
structures.
(b) The share of the States which do not introduce the reforms
will be given to the States implementing the reforms measures
for coverage of NC/PC quality affected habitations as an incentive.
Explanation: 20% of the ARWSP central outlay will be earmarked
and kept aside for implementation of the sector reforms (implementation
of the pilot projects), and only the balance amount will be
intimated to the respective states, as their allocation at
the beginning of the financial year. The unutilised sector
reform funds of any state would be given to the states reporting
better implementation of sector reforms. If funds are still
not fully utilised, the balance available funds would be distributed
to all the eligible states as per the allocation criteria,
as additional central assistance under ARWSP(Normal). |
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3.2.2 The State Governments are required
to prepare projects incorporating the above elements as per
the operational guidelines explained in Chapter –4, indicating
institutional arrangements and sequencing of project activities.
3.2.3 States are now required to implement the project reports
in the identified pilot districts in accordance with the project
concept. |
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3.3 National Scheme Sanctioning Committee |
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A National Scheme Sanctioning Committee
consisting of experts drawn from the sector/field will appraise
the project and approve it for implementation. A six monthly
visit by subject matter specialists/experts will review the
implementation in accordance with the guidelines and recommend
remedial action and release of funds. |
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3.4 Release of funds
3.4.1 For districts which have District
Water & Sanitation Mission (DWSM) (PRAKALP) constituted
as per Para 3.8.1.b, funds will be released directly to the
District Water and Sanitation Mission which will have their
own separate Bank accounts (SBI or its associate banks ) to
receive and disburse the funds for project implementation.
For any alternative district level implementing agency constituted
as per para 3.8.1.b funds would be directly released to them.
The implementing agency is required to have a separate Bank
account (SBI or its associate banks) to directly receive and
disburse funds for project implementation.
3.4.2 30% of the funds will be released immediately after
the approval of the National scheme Sanctioning Committee.
Further releases will be made periodically depending upon
the progress of implementation based on the recommendations
of the experts visiting the projects.
3.5 The successful experiences of implementation of the projects
in identified pilot districts will be replicated all over
the State subsequently in the second phase.
3.6 Some States like Maharashtra, Karnataka, Mizoram, Goa,
Kerala, etc. have already made a beginning in the concept
of community participation in rural water supply programme.
All States are required to endeavour to bring in this concept
throughout the State outside the pilot districts also. Panchayati
Raj Institutions and the user community should be encouraged
to adopt the concept of community participation in rural water
supply programme.
3.7 Gradually, over a period of time in all the districts
of all the States/UTs community participation in rural water
supply programme will be institutionalised. On completion
of the projects, the States/UTs will take upon the responsibility
to plan, approve and implement such projects based on their
experience gained from implementing the pilot projects. Consequently
ARWSP(Normal) may cease to exist as a Centrally Sponsored
Scheme. In order not to lose any time, States/UTs shall initiate
activities for final adoption of the three principles of sector
reforms in the rural water supply sector on the conclusion
of the pilot projects during the implementation of the pilot
project itself. Finally at the end of the 9th Plan, States
will strive to strengthen the concept of community participation
in rural water supply programme all over the country and continue
to plan and implement rural water supply schemes on their
own. |
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3.8 Institutional set up |
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3.8.1.a Constitution of
Water and Sanitation Mission (WSM) at the State Level:
Ideally there should be a single department in the States/UTs
looking after both water and sanitation. As a first step towards
achieving this objective, it is proposed to have a Water and
Sanitation Mission at the State/UT level. It shall be a registered
society under the aegis of the Department/Board/ Nigam/ Authority/Agency
implementing rural water supply programme in the State. It
will be providing the operational flexibility to the States/UTs,
so that the desired thrust is made available for an integrated
implementation of institutionalising community participation
under Rural Water Supply Programme and Total Sanitation Campaign
(TSC) under the Rural Sanitation Programme.
The State level Water and Sanitation Mission shall consist
of :
i. an Apex Committee headed by the Chief Secretary/Additional
Chief Secretary and Secretaries in-charge of PHED, Rural Development
(RD), Panchayati Raj (PR), Finance, Health, Education, Information
and Public Relations (I&PR) as members. Secretary(PHED)
(or the Department concerned with rural water supply) shall
be the nodal Secretary responsible for all the Mission activities
and for convening the meetings of the Apex Committee. The
Apex Committee shall meet atleast twice in a year.
ii. an Executive Committee shall be constituted by the Apex
Committee and shall be headed by an officer of PHED (or the
Department concerned with rural water supply), not below the
rank of Joint Secretary, who shall be its Executive Officer.
Officers from the Departments of Rural Development, PHED(Chief
Engineer), Panchayati Raj, Health , Education, Social Welfare,
Information and Public Relations shall be nominated by the
respective State Departments and shall be the ex-officio members
of the executive committee. Experts in the field of IEC, HRD,
MIS, Media and NGOs not exceeding six, may be co-opted as
members. It may be ensured that the strength of the Executive
Committee does not exceed 15. The State HRD cells, IEC cells
and MIS shall work within the State Water and Sanitation Mission.
iii. However, the States may continue with their existing
institutional set up or constitute appropriate institutional
set up as deemed fit, to supervise the implementation of the
pilot projects at the State level, so as to demonstrate implementation
of community based rural water supply programme in the pilot
districts with a view to encourage PRIs to take up similar
initiatives in other districts in conformity with the principles
envisaged in the 73rd Constitution Amendment.
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3.8.1.b Constitution of Water and Sanitation
Mission at the District Level:
The District Water and Sanitation Mission(DWSM)
constituted at the district level shall be called as “PRAKALP”,
which shall be a registered society under the overall State
laws and should function under the supervision, control and
guidance of Zilla Parishad subject to the following:
(1) Wherever Panchayati Raj Institutions are firmly in place
and are ready and willing to take up the responsibility of
effective implementation of Sector Reform Project and the
PRIs are strong enough to do so, they may be allowed to implement
the project in those districts instead of the DWSM. In such
districts constitution of DWSM may not be mandatory. However,
the districts need to ensure that separate bank account in
State Bank of India or any of its Associate Bank is opened
to receive the central funds and are not mixed up with other
funds provided to the Panchayati Raj Institutions for carrying
out other activities. Such districts may ensure proper methodology
for ensuring proper and accurate monitoring and utilisation
of the funds and intimate the mechanism to the Dept. of Drinking
Water Supply, Government of India.
(2) Districts which do not have a proper PRI set up in place
and desire to supervise the working of the DWSM through alternative
mechanism, may prepare a detailed proposal explaining the
mechanism through which the project is intended to be supervised
and submit the same to the RGNDWM for consideration.
The Governing Body shall invariably be headed by Chairman
of Zilla Parishad. In Districts where Zilla Parishads have
not been constituted and there is no Chairman in place, the
Chairman of the District Planning Committee or the District
Collector/Deputy Commissioner, as may be decided by the State
Water & Sanitation Mission / State Govt / institutional
set up created at the State level (as the case may be) will
be the Chairman of the Governing Body. The members would be
– all MPs/MLAs and MLCs of the District; Chairman of
the Standing Committees of the Zilla Parishad; District Collector/Deputy
Commissioner, District Officers of Education, Health, Panchayati
Raj, Social Welfare, ICDS, PHED, Information and Public Relation;
Project Director, DRDA. CEO of the Zilla Parishad would be
the Member Secretary. The Governing Body shall meet atleast
twice a year. In case of MPs / MLAs / MLCs of the district
who are also Ministers in Central/State Governments, they
may be allowed to depute one representative each on their
behalf to the Governing Body of the District Water and Sanitation
Mission.
The actual implementation of institutionalising community
participation in rural water supply programme and TSC at District
level would be done by the CEO of ZP/District Collector, as
the case may be, and shall be the chairperson of the district
level Water and Sanitation Committee(DWSC), comprising of
the Executive Engineer of PHED/Executive Engineer, ZP; District
Education Officer, District Health Officer (Civil Surgeon),
Project Director DRDA, District Panchayati Raj Officer, District
Social Welfare Officer, Community Development Project Officers
(CDPOs of ICDS) and District Information & Public Relations
Officer. NGOs (not exceeding 3 in number) shall be identified
by the District Water & Sanitation Committees and co-opted
into the Committee as members with the prior approval of the
Government of India. The Executive Engineer of PHED/District
Engineer of the ZP shall be the Member Secretary and the Drawing
and Disbursing Officer. The Member Secretary shall ensure
utilisation of the existing infrastructure with him for administrative
support for day to-day functioning. No additional post shall
be created for this purpose |
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CHAPTER - 4 |
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OPERATIONAL GUIDELINES FOR
SECTOR REFORM PROJECTS FOR IMPLEMENTING COMMUNITY BASED RURAL
WATER SUPPLY PROGRAMME
(Extracts from the Project Concept Document, as amended) |
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4.1 Funding of the project
Funding is governed by paras 3.2.1and
3.4. The fund kept aside for sector reforms is to be utilised
inter-alia for implementation of approved sector reform projects
in identified pilot districts, which would be fully financed
by the Govt. of India. . The unutilised sector reform funds
of any state would be given to the states reporting better
implementation of sector reforms. If funds are still not fully
utilised, the balance available funds would be distributed
to all the eligible States as per the allocation criteria,
as additional central assistance under ARWSP(normal).
As such, normal ARWSP funds allocated to each State should
not be utilised for Rural Water Supply activities in the pilot
districts once the sector reform pilot project proposal in
respect of identified districts are approved. However, ongoing
schemes may be completed under normal programme simultaneously.
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4.2 Institutional Arrangements
The State government and its lead sector
institution viz. PHED/Water Supply and Sanitation Boards/Nigams/Authority
would be the coordinating agency for the project. However,
their role in the project would primarily be that of a facilitator
rather than that of an implementor. An exclusive institutional
structure consisting of State-level and district-level and
grass root level units would be set up for project implementation.
The salient features of the institutional framework are as
under.
The new institutional framework would:
(a) promote adoption of a demand driven and participatory
approach to service delivery through maximum empowerment of
villagers in decision making on the choice of service levels;
(b) provide government at State, district and village level
(PHED or Water Suppy and Sanitation Boards, Zilla Panchayat
and Gram Panchayat) with a facilitating role in scheme selection,
and effective monitoring and evaluation mechanisms to ensure
a high-quality of construction and sustainability of investments;
(c) ensure the effective integration and co-ordination of
project components at the village and district level;
(d) have sufficient autonomy to take decisions and implement
them promptly;
(e) have an incentive structure conducive to hiring and retaining
highly qualified staff;
(f) have a good mix of professionals from private sector,
NGOs and government and reflect an adequate gender balance;
and
(g) be replicable for district-wide and eventually state-wide
transformation of service delivery system. |
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4.2.1 The State level Water and Sanitation
Mission (SWSM) would be overall
responsible for the following
(i) Overall policy guidance
(ii) Liaison and coordination with various concerned departments
of the State Government and other sector partners
(iii) Monitoring and Evaluation of the project implementation
(iv) Ensure coordination among various pilot districts
(v) Ensuring of Audit by competent authority
(vi) Interaction with the Central Government |
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4.2.2 The role of District Water and Sanitation
Mission (DWSMs)
(i) Formulation and management of project
implementation in the district and ensuring that the project
development objectives are achieved in the district.
(ii) Receipt of central funds for the project and its management
for effective implementation of the project.
(iii) Selection, of private sector agencies and/or NGOs on
a competitive basis, and signing MOU with them for project
implementation and overall supervision.
(iv) Sensitizing the Panchayati Raj functionaries, related
Govt. officials, local opinion makers, and politicians regarding
the merits and modalities of the community managed programme.
(v) Formation of Village Level Water and Sanitation Committee
(VWSC) at every Gram Panchayat(GP) level after generation
of demand for any particular scheme as per the sector reforms
concept.
(vi) For taking up the scheme under this programme there should
be a bi/tripartite agreement between VWSC, GP/Block Level
Panchayat Samiti as the case may be and the DWSM. Contract
documents may be prepared by DWSM in consultation with the
VWSC and GP.
(vii) Should tie up with key institutions for imparting training
on all aspects of the programme with special emphasis on community
managed programme implementation to all levels of stakeholders.
(viii) Carrying out IEC (awareness) campaign and Training
(HRD) activities.
(ix) Interaction with Government of India |
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4.2.3 Village Water and Sanitation Committees(VWSCs)
(i) To be set up after the demand for
any particular water supply scheme is generated as per the
sector reforms concept explained above.
(ii) To be set up in each Gram Panchayat for implementation
of Water Supply Scheme of their own choice with active participation
of the villagers. In case the scheme covers more than one
GP, such Committee may be constituted by involving representatives
from all concerned Panchayats.
(iii) The membership of a VWSC may consist of about 6 to 12
persons, comprising members of Panchayat. Women, SC/STs and
poor sections of the village may be given due representation
in the VWSC. Provision may also be made for co-option of other
stakeholders, subject matter specialists, etc.
(iv) This Committee shall function as a Committee on Water
and Sanitation of the Gram Panchayat. In case a scheme encompasses
more than one GP, a similar Committee may be constituted under
the Block level Panchayat Samiti. These committees should
be an integral part of the Village Panchayat / Block Panchayat
for which, if necessary, appropriate amendments in the State
Panchayati Raj Acts / Rules / Bylaws may be made.
(v) The composition and functions of the VWSCs can be regulated
by a set of by-laws under the State Panchayati Raj Acts.
(vi) Till such time as States make suitable amendments in
accordance with the above for composition and functions of
VWSCs, suitable Government orders to that effect may be issued. |
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4.2.4 Role of Village Water and Sanitation Committee
(VWSC) |
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(i) ensuring that the GPs take up the
issues related to this programme in each Gram Sabha meeting;
(ii) ensuring community participation and decision making
in all scheme activities;
(iii) arranging community contributions to capital costs,
both in cash and kind (land, labour or materials);
(iv) opening and managing bank accounts for depositing community
cash contributions and for management of project funds that
may be solely channelled through them;
- signing on behalf of the community, various agreements
with the DWSM;
- planning of water and sanitation activities;
(v) Procuring construction materials/goods
and selection of contractors for construction activities related
to RWS and Sanitation sectors;
(vi) supervision of construction activities related to RWS
and sanitation sectors;
(vii) signing off on all completed works and community development
activities;
(viii) commissioning and eventual takeover of completed water
supply and sanitation works through a joint inspection with
DWSM;
creating hygiene awareness;
collection of funds through a tariff system for O&M of
water supply and sanitation works;
(ix) managing and financing of O&M of the services, on
a sustainable basis;
(x) Empowering of women of the villages for O&M and day
to day affairs of the scheme;
(xi) Participation in HRD and IEC activities in other villages
after completion of the scheme in own village |
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4.2.5 Role of Women
(i) The project envisages empowerment
of community through VWSCs and GPs. It is a well known fact
that collection of drinking water in a village is primarily
done by women. These women can thus involve themselves in
implementation of water supply schemes by functioning in close
coordination with the VWSCs.
(ii) To strengthen women’s participation in the project
activities, specially in the area of sustainability of the
system, formation of user groups comprising exclusively of
women in each village may be taken up. These women groups
shall act as sub-committees functioning in close coordination
with VWSCs. Since this approach is new, different methodologies
based on local situation may be evolved. Lessons learnt from
other programmes may be useful.
(iii) The overall objective is to improve the user owned sustainable
water supply maintenance system and related sanitation conditions
through empowering the women from all sections of the society
into the mainstream of water supply maintenance process and
the immediate objectives are:
- to create awareness about the importance of community
participation in establishing sustainable water supply maintenance
system and maintaining a clean environment ;
- to sensitise women to take active role in the process
of maintenance of water supply and sanitation systems;
- to create a sense of empowerment and ownership responsibilities
among the users;
- to improve the knowledge and transfer technical skills
on the preventive maintenance/minor repairs;
- to identify suitable means for fund raising process and
ensuring maintenance fund availability at all times;
- to create awareness on handling and management of water
supply.
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4.3 Sequencing Project Activities
Scheme Cycle
During project preparation, a detailed
project implementation schedule would be developed for a three-year
project implementation period. The project would follow a
scheme cycle not exceeding 36 months consisting of four distinct
phases and a post project completion phase:- |
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4.3.1 Institutionalising Phase –Not more
than 3 months: This comprises of
- Formation of SWSM, DWSM and DWSC and establish linkages
vis-à-vis PRIs
- Opening of bank accounts for receipt of funds from the
Centre at the district level
- Generation of base line data
- Identification of NGOs/ training institutes, etc. for
various activities
- Monitoring mechanism to be put in place (familiarising
the proforma, questionnaire for obtaining information from
the field and submitting information to the Government of
India).
- Initiate action for amendment of State Panchayati Raj
Acts/Rules / Bylaws for constitution of VWSC
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4.3.2 Sensitisation and Identification phase
- Not more than 12 months: This would involve –
Sensitizing and awareness creation among
implementers (Government functionaries/ political representatives/PRIs/NGOs/etc.)
at all levels through various communication channels about
the programme
Assessment and analysis of the existing water supply and sanitation
systems (village-wise) through primary data collection
Analysis and Identification of the villages to be taken up
in the various phases depending on demand by the beneficiaries
and the available resources. (a) For Water Supply –
each phase may comprise of construction of new schemes, augmentation
and/or rejuvenation of the existing system and handing over
of the complete (acceptable) system to village Panchayats.
(b) For Sanitation – The phase may comprise of setting
up of RSM/Production Centre (PC) as an alternate delivery
mechanism - Habitations where implementation
is to commence immediately to be identified (preferably NC/PC
habitations and those where the success rate is likely to
be fast, higher and sure ) and intimated to the Government
of India.
Agencies for IEC, HRD to be identified and intimated to the
Government of India along with explanation of HRD and IEC
strategy.
Agencies for IEC, HRD to be identified
and intimated to the Government of India along with explanation
of HRD and IEC strategy
IEC campaign for awareness creation and demand generation
IEC campaign should clearly give the
following messages:
1. The beneficiaries will own the assets
created;
2. The government will not maintain the assets created;
3. This is the one time investment in the district;
4. On completion of the project, the district will be considered
fully covered;
5. Two or more alternative technologies suitable to a particular
area along with information regarding its capital cost, the
beneficiary share, the O & M cost, the replacement cost
etc. in respect of each technology;
6. Full O & M and replacement cost and part capital cost
is to be borne by the beneficiaries;
7. Importance of water quality monitoring & surveillance;
8. Importance and benefits of water recharging activities;
9. Possible technologies for water recharging activities in
the area;
10. Any other local issues pertaining to the area.
Various IEC modules to be prepared accordingly
giving the above information.
IEC modules to be prepared in the local language also.
Agencies for preparation of the above modules and carrying
out IEC activity to be identified.
Training activities to equip the villagers
for implementation and operation and maintenance and management
of schemes of their choice
Training to be given at the following
levels:
1. Departmental Level
a) Behavioural sciences – interaction
with the villagers.
b) Sociological aspects
c) Importance of traditional schemes – needs to be propagated.
d) Trainers’ training to train villagers for installation,
O & M, water quality testing, water recharging and harvesting
technologies
2. District Level and NGOs
a) Managing and supervision of project
implementation
b) Identification and selection of agencies for various activities
of the project
c) Recruitment (on contract basis) of experts as per the requirement
d) Monitoring of physical and financial progress – collection
of data and submission to the Govt. of India
e) Various IEC campaigns to be carried out and related behavioural
sciences – interaction with people.
f) Record keeping and documentation of project implementation
– both progress and process activities.
3. Village Level (VWSC)
a) Record keeping – financial management,
transparency, maintenance of minutes of proceedings of VWSC
meetings
b) Communication with villagers – IEC activities
c) Technical matters like installation, specification of various
components, procurement procedures, contracting procedures,
etc.
d) Matters related to O & M, replacement of the schemes,
water quality monitoring, water harvesting structures etc.
(during and after implementation of the chosen scheme)
e) Collection of funds – capital cost share, monthly
O & M cost, maintaining its records
f) Crisis/conflict management
4. Villagers (selected/interested villagers)
a) Technical matters like installation,
specification of various components, procurement procedures,
contracting procedures, etc.
b) Matters related to O & M, replacement of the schemes,
water quality monitoring, water harvesting structures etc.
(during and after implementation of the chosen scheme)
c) Collection of funds – capital cost share, monthly
O & M cost, maintaining its records
d) Crisis/conflict management
Preparation of manuals/modules for the
above training including in the local language.
Identification of agencies for the above agencies and getting
it done.
Getting the schemes of their choice identified by the villagers
(decision making process).
Creation of Village Water and Sanitation Committee (VWSC)
and opening their accounts.
4.3.3 Scheme/System
Planning - Not more than 9 months: This comprises of
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Rough design and estimation of the water
and sanitation schemes/units based on the community’s
choice.
Consensus on the most appropriate scheme based on affordability
and technical feasibility
Further awareness and training campaigns for collection of
people’s contribution and its deposit in VWSC account.
Collection of part (percentage to be decided by DWSM
in consultation with the VWSC) of the beneficiary’s
contribution for starting detailed planning and design of
the water supply schemes. In case of sanitation, it may be
as per the Restructured CRSP guidelines (TSC).
Detailed designing, planning, estimation and seeking approval
of the competent authority as decided by the DWSM. In case
of household latrines, it should be as per the beneficiary’s
choice and affordability.
Identification of the contractors and assigning the job for
implementation.
Release of Government share from DWSM to VWSC account.
4.3.4 Implementation
and Commissioning/Handing over - 12 months: This comprises
of –
Collection of the balance beneficiary contribution in terms
of cash/kind/labour (contribution in terms of labour and kind
should be quantified and treated as the cash contribution
of such contributors and a proper record of the same must
be maintained)
Procurement of materials – the VWSCs shall purchase
the materials. No centralised purchasing be done. However,
in exceptional cases and as the situation demands w.r.t. certain
items, centralised purchasing may be opted but only with due
consultation with the VWSCs. The DWSM shall guide and assist
VWSCs to ensure that standard quality of materials is purchased.
Execution of work – actual implementation of the scheme
of choice of the villagers
Supervision by VWSC and DWSM for water supply and community
based sanitation schemes. In case of household latrines, joint
supervision by the NGO and the beneficiary
Completion, commissioning and handing over of completed scheme
to the villagers / PRIs / VWSCs for its continued O&M
and replacement.
Awareness and training campaigns for water quality monitoring
and surveillance
Development of data base with updating mechanism
Training to VWSC and selected villagers for O & M, etc.
as explained earlier at sensitizing stage
Monitoring and evaluation of the scheme by the VWSC
Participation of the VWSC whose scheme has been completed
in awareness and training campaigns in other parts of the
district
- A continuous process of monitoring
and evaluation, review and mid-course correction (if any
required ) will be carried out by the DWSM, SWSM/State Government,
RGNDWM and implementing agencies.
- All the above four stages may
co-exist at the same time at any given point of time in
various places within the same district.
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4.4 Concurrent activities
during and post project implementation: This would
involve the following activities –
- Introduce community based appropriate water quality monitoring
and surveillance;
- Development of data base with mechanism of updating;
- Monitoring and evaluation of all aspects of the project;
- Analysis of the data base generated and taking up corrective
measures, if required;
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4.5 Technology Options and Choices
As these projects are proposed to be
community participation oriented, a part (minimum of 10% for
the proposal with designs as per the RWSP criteria) of the
capital cost should be borne by the community themselves.
The balance amount would fully be provided by the Government
of India.
The selection of water supply technology for a given locality
(e.g. habitation, Gram Panchayat) could be determined by a
number of factors, such as technical feasibility (e.g. water
quality conditions), user preferences and requirements combined
with affordability and willingness to contribute towards implementation,
(capital cost), and O & M
In some cases, specially in the southern and western parts
of the country, the limiting factors in relation to technololgy
options and choices are mainly related to the scarce groundwater
resources and/or the groundwater quality.
The principles for the choice of water supply technology should
be that:
i) the level of service shall, if at all possible, be in accordance
with the user preferences and expressed demands, their level
of affordability and their willingness and ability to take
active part in planning, implementation and maintenance at
village and Gram Panchayat level.
ii) The criteria and technologies applied should emphasize
least-cost solutions and should allow for flexibility since
the community based demand driven approach might call for
a flexible interpretation of existing norms. This implies
that minor deviations from the present design criteria and
standards should be allowed for, as per the requirement of
the community provided they are willing to pay more for the
relaxed criteria.
iii) Highest priority should be given to rehabilitation and/or
extension of existing schemes, whenever feasible, in order
to gain most benefit from previous investments.
In case of sanitation programme the vertical upgradation should
be encouraged keeping in view the affordability of the economically
weaker sections of the society.
4.6 Other Issues:
- The water supply and sanitation, including health and
hygiene component for rural schools should form an integral
part of the project
- Water Quality monitoring and surveillance: The community
based water quality monitoring and surveillance involving
schools, Institutions viz. Health Department etc. as indicated
in the Rural Water Supply Programme guidelines should also
form an integral part of the project.
- Documentation (both in print & video) of the implementation
of the project should be integral part of the project.
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CHAPTER – 5 |
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SUB-MISSION |
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5.1 SUB MISSION PROJECTS
Sub Mission projects are undertaken by
the States for providing safe drinking water to the rural
habitations facing water quality problems like Fluorosis,
Arsenic , Brackishness, Excess Iron etc. Sub Mission projects
are also taken up for ensuring source sustainability through
rain water harvesting, artificial recharge etc.
5.2 DELEGATION OF POWERS FOR SANCTIONING SUB-MISSION
PROJECTS.
Powers have already been delegated to
the States for sanctioning Sub Mission Projects w.e.f. 1-4-98.
The State Governments/UTs may approve the Sub Mission projects
by following the procedure being adopted for sanctioning normal
ARWSP schemes without detriment to coverage, sustainability
and quality aspects. The funding pattern of Sub Mission projects
taken up after 1-4-99 will be in the ratio of 75:25 by the
Central and State Governments and expenditure thereto met
out of the ARWSP in the manner indicated in the sub-para(a)
below. However, the funding pattern for the Sub Mission projects
sanctioned between 1-4-98 and 31-3-1999 would remain in the
ratio of 50:50 between the Central and State Governments.
The States/UTs are also required to
comply with the following:
a) No separate funds would be released
for implementation of Sub Mission projects. Upto 20% of the
ARWSP funds are to be earmarked and utilised for the new projects
under the Sub Mission activities designed to address water
quality and sustainability issues. However, if the States/UTs
have achieved the full coverage of habitations as per the
national norms, they may utilise more funds to tackle quality
problems, subject to the Ministry’s specific concurrence
in each case,
b) Names of habitations affected with quality problem in each
district should be sent to the Central Government indicating
the extent of excess arsenic, fluoride, salinity and iron
with the undertaking that the schemes are taken up in the
order of priority, first covering the habitations with the
highest extent of chemical contamination,
c) An Action Plan for coverage of quality affected habitations
in a year to be formulated immediately and sent to the Central
Government for information and monitoring of the progress.
The Action Plan should indicate the left over and total number
of habitations affected with specific quality problems at
the commencement of the year and the target for the year (with
the names) of the habitations to be covered,
d) The existing Committee in the PHED with Secretary, in-charge
of RWS as the Chairman and with representatives from the CGWB,
NGRI, etc., constituted for the purpose of clearing the ARWSP(normal)
projects may also consider and clear the Sub Mission projects,
e) Common habitations which are NC/PC and also quality affected
should be first covered fully with safe drinking water facilities.
The habitations already covered fully but affected by chemical
and/or bacteriological contamination may be covered under
separate schemes/projects,
f) The per capita cost should not ordinarily exceed the cost
norms under the ARWSP and the State MNP,
g) Periodic reports on the physical/financial progress of
Sub Mission projects should invariably be incorporated as
a separate item in the reporting format for ARWSP schemes,
h) A representative of the Mission should invariably be associated
with the Committee set up to sanction Sub Mission projects
by the States/UTs; and
i) A copy of the minutes of the meeting of the State level
Scheme Clearance Committee held for sanctioning Sub Mission
projects should be sent to the RGNDWM immediately after any
Sub Mission project is cleared.
5.3 Dual Water Supply
Policy may be adopted for rural habitations facing
acute water quality problems. In these habitations even if
safe water is provided upto 10 LPCD, which would be sufficient
for drinking and cooking purposes, it may be considered as
habitation(s) with a safe source of drinking water. For other
activities like washing, etc. water available from unsafe
sources could be utilised without problem. |
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CHAPTER – 6 |
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SUPPORT SERVICES |
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6.1 WATER QUALITY MONITORING AND SURVEILLANCE
Even though the coverage has been impressive
over the last decade, various studies indicate that there
is no institutionalised quality monitoring and surveillance
system in the country. This is going to be critical to the
entire water supply sector in the future owing to increase
in pollution and depletion of water sources. The National
Workshop held on 7-9 August, 1997 recommended that there is
a need to institutionalise water quality monitoring and surveillance
systems in the country. Establishing of water quality labs
could be only one of the components of the programme. A “Catchment
Area Approach” would be adopted by involving various
grass root level educational and technical institutions by
utilising existing resources and strengthening them by providing
additional financial resources to these institutions. This
may be implemented at three levels consisting of a Nodal Unit
at the top level catchment like a premier technical institution,
university, etc., intermediary level units like district laboratories,
polytechnics, etc. and grass-root level units like (+2) level
education institutions, labs, etc. Activities relating to
preliminary water testing etc. could be carried out at the
grass-root level itself and more complicated cases could be
referred to higher levels in such a way that only focussed
cases of complex nature and of value and utility at State
level reach the nodal unit. The nodal units will be networked
with the State headquarters(PHED). 100% funding, as per the
approved norms, would be provided to the States for strengthening
water quality monitoring facilities, based on projects received
from the State Governments. Restructuring the State PHEDs
with the required grant-in-aid support, as indicated in para
6.11, to bring in the much missed link up with the Health
authorities will also be attempted as a part of institutionalising
the monitoring system. Health Department officials will be
increasingly involved in the surveillance activity.
6.2 RIGS AND HYDRO FRACTURING UNITS
The expenditure for purchase of Rigs/Hydro
fracturing units would be made by the Central Government and
State Government on 50:50 basis. The purchase of rigs on a
very selective basis for sophisticated rigs for remote and
difficult access areas is to be financed out of the MNP funds.
The expenditure will however, be counted as matching provision
for central assistance under the ARWSP.
There should be well planned and systematic programmes for
training of Drilling Crew & Supervisory Staff in the States
by sponsoring or conducting regular training programmes, under
PHED/State Training Institutions, CGWB or State Ground Water
organisations in coordination with the Mission. The personnel
who have undergone the above training should preferably be
posted in the field. A rig monitoring plan for the State should
be drawn up right at the beginning of the year to effect optimum
utilisation of these machines and the crew.
6.3 HUMAN RESOURCE DEVELOPMENT
A National Human Resource Development
Programme (NHRDP) has been launched by the Mission from 1994
based on the Human Resource Development Policy Document evolved
jointly by the central and state governments. The NHRDP, interalia,
aims at training at least one grassroots level trainee through
district level trainers who in turn may be trained at selected
institutions forming the Indian Training Network (ITN). Under
the NHRDP, the States and UTs should set up state level HRD
cells for planning, designing, implementing, monitoring and
evaluating an appropriate and need based HRD programme. The
HRD programme should aim at empowerment of Panchayati Raj
Institutions/Local Bodies with the objective of enabling them
to take up operation and maintenance activities related to
rural water supply systems. It should also aim at capacity
building of local communities by giving requisite training
to mechanics/health motivators/masons etc, especially women
to operate and maintain handpumps and the components of other
water supply systems as well as to generate demand for adequate
sanitation facilities. To train the grass root trainees, the
States/UTs may build up a pool of district level trainers
who could be sent for training to the participating and key
institutions. The States/UTs should establish state level
HRD cells. The suggested staffing pattern, norm for equipment
alongwith delineating of major functions already communicated
vide D.O.Letter No. W.11038/1/94-HRD dated 15.9.94 and d.o.
letter No.W-11043/1/95(Media) dated 31-12-1997. The Central
Government will provide 100% assistance
during the plan period for the above activities as per the
cost norms given at Annexure-IV.
6.4 INFORMATION EDUCATION & COMMUNICATION
The emphasis of IEC programme should
not be on hardware aspects but should be aimed at front loading
software with the objective of generating a felt need which
would result in an increased demand for safe drinking water
and better sanitation facilities. Awareness on matters related
to water borne diseases manifestations and symptoms should
be created. The services of the State Publicity/Public Relations
Department should be utilised to provide publicity to the
rural water supply programme through mass media to disseminate
information about the programme, highlighting the achievements,
emphasis on use of safe water to overcome water borne diseases,
etc. The importance of using safe water, using water as a
socio-economic good and the problems related to water quality
in any specific area should be highlighted. This could be
done by bringing to the public knowledge through appropriate
methods like folk songs, folk drama, documentary films, pamphlets,
brochures and other local means suited to the area. Publicity
should also be given in the local newspapers about the action
plan for coverage of habitations actually covered on year
to year basis with other details like the type of schemes
provided, the service level, delivery system, agency responsible
for operation and maintenance, etc. 100%
Central funds will be provided during the plan period
for activities under the IEC, as per the cost norms (Annexure-V)
communicated vide GOI letter No.W-11043/75/95-Media dated
29.12.1997.
6.5 MONITORING AND INVESTIGATION UNITS
The Government of India has been providing
assistance to the States to establish and continue special
investigation divisions from the Fourth Five Year Plan to
carry out investigation, planning and feasibility study of
the schemes. The special monitoring cell and investigation
unit at the State headquarters should be headed by an officer
suitably qualified and of suitable level for monitoring and
investigation with necessary supporting staff. Monitoring
unit shall be responsible for collecting information from
the executing agencies through prescribed reports and returns
(Progress Monitoring System), maintenance of the data and
timely submission of the prescribed reports and returns to
the Central Government by due dates. The unit shall also be
responsible for monitoring at field level of aspects of quality
of water, adequacy of service and other related qualitative
aspects of the programme. The Unit shall also maintain water
quality data in coordination with the concerned Department,
Central/State Ground Water Board, details of different technologies
developed by institutions for tackling different problems
and to provide the same to the field level executing agencies.
The Monitoring and Investigation Units should also have technical
posts of hydrologists, geophysicist, computer specialists
with data entry operators, etc. A Quality Control Unit should
be an integral part of M&I Units and should work in coordination
with the R&D Cell. This unit will be responsible for controlling/regulating
the quality of construction works in water supply schemes
and will ensure practical application of latest technologies
in the field. The expenditure will be borne by the Central
Government and the State Governments on a 50:50 basis.
6.6 MONITORING AND EVALUATION
Central Government takes up monitoring
and evaluation studies through reputed organisations/institutions
from time to time. The State Governments may also take up
similar monitoring & evaluation studies on the implementation
of the rural water supply programme. 100% financial assistance
will be provided by the Centre to the States for taking up
such evaluation studies with prior approval of the Mission.
The reports of these studies should be made available to the
Mission and immediate corrective action should be initiated
as a follow up to improve the quality of programme implementation.
6.7 MANAGEMENT INFORMATION SYSTEM
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