2. PREVAILING RURAL SANITATION SCENARIO IN THE STATE OF ODISHA

(1)

(2)

This page is left blank intentionally

(3)

Page | 1

LIST OF ABBREVIATIONS

AIP Annual Implementation Plan

ASHA Accredited Social Health Activist

BCC Behaviour Change Communication

CBO Community Based Organisation

CRSP Central Rural Sanitation Programme

CSO Civil Society Organisation

CSR Corporate Social Responsibility

CT Community Toilet

DAY-NULM Deendayal Antyodaya Yojana – National Urban Livelihoods Mission DWSM District Water & Sanitation Mission

FSSM Faecal Sludge and Septage Management

FSTP Faecal Sludge Treatment Plant

GOI Government of India

GP Gram Panchayat

GPDP Gram Panchayat Development Plan

IEC Information, Education and Communication

IPC Inter Personal Communication

KRC Key Resource Centre

MDWS Ministry of Drinking Water Supply & Sanitation MoRD Ministry of Rural Development

MGNREGS Mahatma Gandhi National Rural Employment Guarantee Scheme

NBA Nirmal Bharat Abhiyan

NRDWP National Rural Drinking Water Program O&M Operation & Maintenance

ODEP Open Defecation Elimination Plan

ODF Open Defecation Free

ODF-S ODF-Sustainability

ORMAS Odisha Rural Development and Marketing Society ORSP Odisha Rural Sanitation Policy

OWSM Odisha State Water & Sanitation Mission PRI Panchayati Raj Institutions

SBCC Social Behaviour Change Communication

SBK Swachh Bharat Kosh

SBM(G) Swachh Bharat Mission (Gramin)

SEM Self Employed Mechanic

SHG Self Help Group

SLRM Solid and Liquid Resources Management

SOSO Swachh Odisha Sustha Odisha

ToT Training of Trainers

TSC Total Sanitation Campaign

VWSC Village Water & Sanitation Committee WASH Water, Sanitation & Hygiene

(6)

Page | 4

DEFINITIONS

Black water: Black water is the mixture of urine, faeces and flush water along with anal cleansing water (if water is used for cleansing) and/or dry cleansing materials. Black water contains the pathogens of faeces and the nutrients of urine that are diluted in the flush water.

Biosolids: Sludge/septage that is partially treated/digested/stabilised and can be used or applied with reduced risk as compared to raw sludge.

Capital Cost: Funds spent for the acquisition of a fixed asset, such as sanitation infrastructure.

Collection and Storage/Treatment: Collection and storage/treatment describes the ways of collecting, storing, and sometimes treating the products that are generated at the user interface. Treatment that is provided by these technologies is often a function of storage and usually passive (e.g. no energy inputs).

Thus, products that are ‘treated’ by these technologies often require subsequent treatment before use and/or disposal.

Conveyance: Conveyance describes the transport of products from one functional group of a sanitation system to another (user interface to treatment systems).

Domestic Wastewater: Used water including sewage/ black water/grey water originating from domestic sources.

Excreta: Excreta consist of urine and faeces that are not mixed with any flush water. Excreta are small in volume, but concentrated in both nutrients and pathogens.

Faecal Sludge: Faecal Sludge is raw or partially digested, in slurry or semisolid form. It is the collection, storage or treatment of combinations of excreta and black water, with or without grey water, and comes from onsite sanitation systems (pit latrines, non-sewered public ablution blocks, septic tanks, aqua privies, and dry toilets). The physical, chemical and biological qualities of faecal sludge are influenced by the duration of storage, temperature, soil condition, and intrusion of groundwater or surface water in septic tanks or pits, performance of septic tanks, and tank emptying technology and pattern.

Faecal Sludge Management: Faecal sludge management includes safe storage, collection, transportation, treatment and end use or disposal of faecal sludge.

Faeces: Faeces refer to (semi-solid) excrement that is not mixed with urine or water. Fresh faeces contain about 80% water. Of the total nutrients excreted, faeces contain about 12% N, 39% P, 26% K and have 10⁷ to 10⁹ faecal coliforms in every 100 ml.

Greywater or Sullage: Greywater is the total volume of wastewater generated from washing food, clothes and dishware, as well as from bathing, but not from toilets. It may contain traces of excreta (e.g., from washing diapers) and, therefore, also pathogens.

Menstrual Hygiene Management (MHM): Women and adolescent girls use a clean material to absorb or collect menstrual blood. MHM includes access to safe menstrual hygiene products, awareness about hygiene practices, usage of soap and water for washing the body as required, and access to facilities to disposal of used materials.

(7)

Page | 5 Onsite Sanitation: A sanitation system in which excreta and wastewater are collected, stored and/or treated on the same plot where they are generated. There are two main categories of on-site sanitation technologies: ‘wet’ which requires water for flushing; and ‘dry’ which doesn’t require any water for flushing.

Operation and Maintenance: Routine or periodic tasks required to keep a process or system functioning according to performance requirements and to prevent delays, repairs or downtime.

Recycling: Recycling of wastewater is the process of converting wastewater into water that can be safely reused. Reuse may include irrigation of gardens and agricultural fields or replenishing surface water and groundwater.

Safely Managed Sanitation: Improved sanitation facility where faecal wastes are safely disposed either on site or transported and treated off site; plus, a hand washing facility with soap and water.

Sanitation Technology: Sanitation technologies are defined as the specific infrastructure, methods, or services that are designed to contain and transform sanitation products, or to transport them to another functional group (i.e. user interface, conveyance, storage, treatment and final disposal or reuse).

Septage: Septage is the liquid and solid material that is pumped from a septic tank, cesspool, or such onsite treatment facility after it has accumulated over a period of time.

Septic Tank: An underground tank that treats sewage by a combination of solid settling and anaerobic digestion. The effluents may be discharged into soak pits or small-bore sewers, and the solids have to be pumped out periodically.

Sewage: Sewage is defined as the wastewater containing human waste matter (faeces and urine etc.), either dissolved or undissolved, discharged from toilets and other receptacles intended to receive or retain such human wastes.

Sewer: An open channel or closed pipe used to convey sewage.

Sewerage: The physical sewer infrastructure (sometimes used interchangeably with sewer). A sewerage system includes all the components of a system used for collection and transportation (including pipes, pumps, tanks, etc.).

Sludge: Sludge is a mixture of solids and liquids, containing mostly excreta and water, in combination with sand, grit, metals, trash and/or various chemical compounds

(8)

Page | 6

(9)

Page | 7

1. BACKGROUND

Sanitation is defined as access to and use of facilities and services for the safe disposal of human urine and faeces. A safe sanitation system is a system designed and used to separate human excreta from human contact at all steps of the sanitation service chain from toilet capture and containment through emptying, transport, treatment (in-situ or offsite) and final disposal. It aims to meet sanitation requirements in a manner consistent with human rights, while also addressing co-disposal of grey water, associated hygiene practices and essential services required for the functioning of technologies (World Health Organisation (WHO), 2018)¹. While safe sanitation pertains to management of human excreta and associated public health and environmental impacts, it is recognized that integral solutions need to take into account other elements of environmental sanitation, i.e. solid waste management, drainage, and also the management of drinking water supply (National Urban Sanitation Policy, 2008)².

Government of India (GoI) launched Swachch Bharat Mission (SBM) Gramin programme in 2014 putting considerable emphasis on sanitation to make it a national priority. The programme aimed at eliminating open defecation through making sanitation a people’s movement and engaging communities for making their environments clean, green and disease-free by effective solid and liquid waste management; thereby contributing towards a healthy life (SBM-G, 2014). In response, Odisha has made a rapid stride in the field of providing toilets to rural households and is set to achieve Open Defecation Free (ODF) status for all its villages by October 2019.

Towards sustaining such efforts, the Hon’ble Chief Minister of Odisha has proclaimed Swachha Odisha Sustha Odisha (SOSO) initiative in 2018, which aims to adopt a holistic approach towards ensuring access and sustainable management of water and sanitation for all, in line with the Sustainable Development Goal – 6: achieving sanitation for all at all time.

Historically as well, Odisha has remained committed to providing better access to safe water, sanitation and hygiene to its rural population in the state. Over the past couple of decades, the state has undertaken a number of steps to improve access to sanitation services through implementation of centrally sponsored programmes viz. the Central Rural Sanitation Programme (CRSP), the Total Sanitation Campaign (TSC), and the Nirmal Bharat Abhiyan (NBA).

While the current interventions, in its present form, focussed significantly on increasing toilet coverage, going forward, Government of Odisha would take a note of the sanitation sector as a whole, in lieu with international standards. The UN Sustainable Development Goals (SDGs) call upon signatory nations “to emphasise the importance of safely managed sanitation services including hand washing facility with soap and water, (6.2.1) and of improving water quality by reducing pollution, eliminating dumping and minimising release of hazardous chemicals and materials and halving the proportion of untreated wastewater and substantially increasing recycling and safe reuse (SDG 6.3)”. In line with this, Government of Odisha embarks in setting out a framework for structured sanitation interventions through launching of a comprehensive Rural Sanitation

1 Guidelines on sanitation and health. Geneva: World Health Organization; 2018. Licence: CC BY-NC-SA 3.0 IGO (https://apps.who.int/iris/bitstream/handle/10665/274939/9789241514705-eng.pdf?ua=1)

2National Urban Sanitation Policy (NUSP) (2008)

(10)

Page | 8 Policy. The policy would provide guidelines to both state and non-state actors to work towards universal access to sanitation for a long term 10 year period.

A holistic policy guideline will work towards realising the vision of Odisha Rural Sanitation Policy and addressing the issues and challenges of the sanitation sector in the State. This policy would build on available social inclusion frameworks, adopting a time bound target-based approach with adequate planning, human and financial resources, and mechanisms of coordination among diverse agencies at various levels of government and key stakeholders, and robust mechanisms for tracking and monitoring results. In order to maintain the traction in the sector and ensure its sustainability, it would be crucial to assess the existing situation.

(11)

Page | 9

(12)

Page | 10

(13)

Page | 11

2. PREVAILING RURAL SANITATION SCENARIO IN THE STATE OF ODISHA

With the rapid progress under Swachh Bharat Mission Scheme in rural Odisha, the current sanitation coverage stands at 100% for the individual household latrines (SBM (G), September 2019).³ The state exhibits stride in institutional toilet coverage with 76% of the schools’ toilets provisioned with useable sanitation amenities (ASER 2018)⁴.

Since the inception of Swachh Bharat Mission (Gramin), Odisha has come a long way in achieving an Open Defecation Free Odisha. The State is relentlessly working to ensure adequate sanitation outcomes in terms of clean & green areas, and improved public health benefits. Implementation of various government led interventions has emphasized the importance of access & usage for sustaining ODF status, addressing sanitation needs of the rural population and safe management of all domestic wastewater and faecal sludge.

Sustained sanitation outcomes are based upon channelizing social, economic and environmental benefits to each and every rural household in the country. The economic potential⁵ of rural areas could be higher if adequate and safely managed sanitation, necessary hygiene facilities and practices are implemented, ensuring universal access and use of toilets, safe collection, conveyance and treatment of all domestic wastewater and faecal sludge.

2.1 Evolution of Rural Sanitation

Over the past couple of decades, the state has undertaken a number of steps to improve access to sanitation services, through implementation of centrally sponsored programmes viz. the Central Rural Sanitation Programme (CRSP) (1986-2000), the Total Sanitation Campaign (TSC) (2000-2007), and the Nirmal Bharat Abhiyan (NBA) (2007 onwards) and several state sponsored schemes. In order to accelerate the efforts to achieve 100% sanitation, the Swachh Bharat Mission (Gramin) was launched on 2nd October, 2014 and taken up by the state in stride, manifesting great political will.

Odisha has been implementing various centrally launched water-sanitation programmes over the years and this has been captured in the following chart placed in page 14. Further, a scheme wise tabulation with the sectors mapped across them is placed in Appendix 1.

2.2 Rapid Population Growth – Exacerbation of the need for safe sanitation

With the state witnessing decadal population growth rate of 14.05% with urban and rural population growing at 26.9% and 11.8% respectively, Odisha remained pre-dominantly rural with more than 80% of its residents living in the rural areas.

3 Swachh Bharat Mission (Gramin) is GOI programme launched by Ministry of Drinking Water and Sanitation on 2^nd October 2014. It aims to achieve a clean and Open Defecation Free (ODF) India by 2nd October, 2019 ( https://swachhbharatmission.gov.in/SBMCMS/about- us.htm)

4Annual Status of Education Report 2018

http://img.asercentre.org/docs/ASER%202018/Release%20Material/waterandtoilet2pagerenglish.pdf

5 A World Bank study calculated the costs of inadequate sanitation for India to be INR 2.4 lakh crore as per 2006-07 data, which included key components of health, access time, water and tourism related impacts. This trend to affect the economy unless all domestic wastewater and faecal sludge is safely contained, conveyed and treated. Further, rural India bears INR 930 per capita losses which increases to INR 1000 per capita for rural HHs in the poorest quintile.

(14)

Page | 12 With the current urbanisation pace, state needs to draw upon emerging urbanisation trends in the rural areas manifested through proliferation of census towns and address transitioning issues from

rural areas to

(15)

Page | 13

(16)

14 | P a g e peri urban and peri urban to urban areas. The heightened rural urban continuum needs to be established in two ways – one by addressing urbanisation trends across rural settlements in the 114 Census Towns⁶ and other by provisioning for sanitation needs in the upcoming CTs (46)⁷. The policy needs to advocate for graded solutions in planning and infrastructure which accounts for the denser rural pockets showing trends of urbanisations in the existing and upcoming Census Towns continually. The State may further identify and club the above transitioning rural areas into peri- urban/urban areas as the Rurban cluster⁸, with resources garnered to meet the urbanisation trends of the cluster and address integrated sanitation services across HHs and the institutions like school, market, transport hubs, health centre and others.

2.3 Assessing the Full Sanitation Value Chain

2.3.1 Accounting of Water for Sanitation Various studies point out that water availability is one of the key

6 Census Towns Census 2011 had notified 3892 Census Towns which are categorised based on three parameters-(i) population is greater than 5000, (ii) population density is greater than 400 persons per sq. km. and (iii) 75 percent of male working population is occupied in non-agricultural sector. Following a similar pattern, projections suggest that by 2021 potentially 3100⁶ towns could be added to Census Towns across India.

7 Pradhan K. and Roy S. N., Predicting the Future of Census Towns, Dec 2018 (epw.in/journal/2018/49/review-urban-affairs/predicting- future-census-towns.html)

8 A 'Rurban cluster' is a cluster of geographically contiguous villages with a population of about 25000 to 50000 in plain and coastal areas and with a population of 5000 to 15000 in desert, hilly or tribal areas. As far as practicable, clusters of villages would follow administrative convergence units of Gram Panchayats and shall be within a single block/tehsil for administrative convenience. These growth centres could be block headquarters, census towns (under the administration of Gram panchayats) or the largest village in that cluster.

(http://rurban.gov.in/cluster.html)

Tap Water 7%

Underground 87%

Surface 5%

Others 1%

Water Sources in Rural Odisha

Tap Water Underground Surface Others

(17)

15 | P a g e determinants for in-house toilet usage, while selection of on-site technologies for management of liquid waste depends on the access to water.

The Government of Odisha made provisions under “Odisha Rural Drinking Water Programme”

(ORDWP) in the year, 2014-15 under Basudha⁹ (Buxi Jagabandhu Assured Drinking Water to all Habitations) scheme. 88% of rural habitations of the State have access to a water source (minimum 40 LPCD of water) through hand pump tube wells/piped water supply project¹⁰ (as on March 2018).

It was reported that access to water has a slightly higher association with the improvement of septic tank penetration in smaller villages. As corroborated by a study¹¹, access to water is inextricably tied with the disposal of wastes, and a larger deficit of water in already backward spaces like smaller villages can have implications for the type of sanitation facilities used by the households. Given that most of rural Odisha still rely on underground water sources, management of Liquid Waste Management (LWM) will gain high importance.

2.3.2 Integrating Liquid Waste Management in the Value Chain

Rural Odisha remains heavily dependent on on-site sanitation systems to manage the black water emanating out of toilets. With only 20% households in urban Odisha remained connected to sewer, the limited-availability of such networked systems in rural Odisha is not an aberration.

Septic tanks and single pits have emerged as the preferred sub-structures in rural Odisha (SBM Assessment 2017¹², Quality Council of India (QCI) and NARSS). With the single leaching pit emerged as the predominant on-site sanitation system in use in rural Odisha for the toilets constructed under SBM (National Rural Sanitation Survey (NARSS) 2018-19 and PRDWD, Govt. of Odisha), septic tank systems (septic tank with soak-pit) and twin leaching pits are almost equally prevalent at 12% and 15% respectively in the case of newly constructed toilets (NARSS 2018-19). However, Census 2011 stated a much higher percentage of septic tanks for the toilet owning households in rural Odisha.

Grey water from kitchen and bathroom is either recycled for irrigating kitchen gardens (47%) or discharged (47%) into common drainage (NARSS 2017-18). About 5% households also report using a soakpit for its disposal.

9 Basudha is Odisha Rural Drinking Water Programme launched in 2017-18 by Panchayat Raj & Drinking Water Department, Government of Odisha. It aimed to provide universal access of drinking water to all rural people in the state.

10 Bottled water, piped water into dwelling and piped water to yard/plot, Public tap/standpipe, Tube well/borehole, protected well/unprotected well, protected spring/unprotected spring, Rainwater collection, Surface water, Others (tanker-truck, cart with small tank or drum, etc.) are some of the principal sources of drinking water.

11 Towards a new Research and Policy Paradigm: An analysis of the Sanitation Situation in Large Dense Villages

http://www.cprindia.org/research/reports/towards-new-research-and-policy-paradigm-analysisd-sanitation-situation-large-dense 12 SBM Assessment report by Quality Control of India ,2017 (https://mdws.gov.in/sites/default/files/Final_QCI_report_2017.pdf)

Source: Census 2011

(Source: SBM (G), MoDWS as January 2019)

55%

1%

17%

61%

27%

70%

33%

69%

12%

24%

21%

5% 4% 0%

Census 2011 PRWD 2017-18 PRDWD 2018- 19

NARSS 2018-19 Liquid Waste Management in rural

sanitation space

Septic Tank (with/without soakpit) Single Leaching Pit Twin Leaching Pits Leaching Pit (Single/Twin) Others

(All HHs) (SBM HHs) (SBM HHs) (All HHs)

(18)

16 | P a g e

Rural Popula tion:

34.97 million (2011)

While there seems to be a large scope for increased recycling of grey water, the high incidence of septic tanks and single pits engenders a strong need for off-site treatment facilities towards securing sustainable sanitation.

2.3.3 Examining the present Shit Flow Process in the Rural Setting

Confluence of wastewater with surface and groundwater supplies in absence of adequate treatment, puts rural communities at heightened risk. It further emphasizes the role of untreated sewage being discharged into the drainage system as the main pollutant, engendering an imperative for the state to strive for better wastewater management.

Shit Flow Diagram ¹³

The shit flow diagram of rural Odisha examines full sanitation value chain in terms of lack of safe containment, transportation and treatment or disposal which is a significant contributor of the poor sanitation outcome of the state. Rural population in the diagram is sourced form Census 2011 while other sanitation related data is from NARSS (2018-19).

While open defecation has decreased significantly over the past 8 years, treatment facilities for waste water and septage, even from sanitary latrine facilities in the rural context, is limited. As incidences of constructing septic tanks decreased during 2011-2019, there has been a significant increase in single pits, leading to increase in manual emptying due to dearth of mechanised cleaning services in rural areas. This will further compound concerns of manual cleaning practices in emptying such structures. Moreover, emptied sludge is largely disposed directly into open drains and/or into an unsecured pit in a designated open area, which is often next to ponds and rivers.

On-site sanitation systems, except for the twin pit systems, come with limited technologies to render safe containment, collection, transportation and disposal. This indeed will cause adverse environmental impact with water source contamination and abuse.

13 The Rural population is as given by Census 2011 while the numbers for different typologies of on-site sanitation systems are data given by NARSS 2018

(19)

17 | P a g e 2.3.4 The State of Solid Waste Management Mechanisms

The management of solid waste has been missing in settlements across the spectrum of sizes and the rural-urban continuum. In the latest attempt to tackle the subject institutionally, the National Green Tribunal recognised with all the states and union-territories in 2018. The NGT required states to develop actions plans for the implementation of the Solid Waste Management Rules, 2016, under the supervision of the state’s Principal Secretaries of both the Urban and Rural Departments.

Despite this, its understanding of the issue remained largely urban-focused – presumably, since rural households are seen as generating (and productively recycling) solely organic waste, in contradiction of the evolving trends. Further, small shops/shacks and upcoming market stretches in these regions usually remain unaccounted - not only as waste-generators but also as stakeholders enabling the penetration of plastic-packed food products. Waste-generators, both domestic and non-domestic, are individually responsible for its management since most Gram Panchayats have not instituted waste collection or processing.

Where domestic organic waste is concerned, it is often utilized it as cattle feed. In turn, the cattle- waste itself is recycled as compost and/or as a kitchen fuel. Coconut waste, which is also produced in abundance in the state, is also used as a compost feed. In fact, 60% of households reported that they safely disposed waste within the household premises, as per NARSS 2018-19. Still, in larger and more urban villages, these practices are on the decline due to a reduction in avenues for recycling. In the same vein, tribal villages generate negligible non-organic waste. The type of waste generated and its management, therefore, are a function of the settlement type.

Non-organic waste such as disposable plastics, along with all else which is not recycled, is burned or dumped at common disposal sites, such as vacant plots. Community bins, where available, either lie unused or are employed as vessels for waste-burning. Informal waste pickers, or kabbadiwalas, do have a sporadic presence in some of the villages.

2.4 Analysing the Auxiliaries of Sanitation

2.4.1 River Basin Pollution Abatement Policy

Odisha’s natural topographical features coupled with natural disaster incidences like flood and cyclones are critical factors leading to drainage congestion and water logging in the state. Drainage congestion is seen to affect the coastal settlements due to formation of sand bars across the river mouths and tidal lockage. The state in its endeavour to check drainage congestion and water logging has rolled out programmes like Drainage Improvement Programme (DIP) and Rural Infrastructure Development Fund (RIDF) programmes¹⁴ for agricultural lands and selected urban areas and low- lying areas around wetlands. At the household level, however, presence of drainage has remained minimal with 88% of rural households not having access to any such system (Census 2011).

As in-house toilet access and endeavours to improve waste supply at the HH levels increase, it would be crucial to provide for drainage infrastructure for management of grey water. This would also prevent local accumulation of grey water and thereby incidences of vector borne diseases.

14 1). “Drainage Improvement Programme (DIP)” to be implemented over a period of five years i.e. from 2014-15 to 2018-19.

The

Scheme will be operational in the seventeen Doabs facing drainage congestion in logged agricultural, selected urban areas and low lying area around wetlands where flooding for a longer period possess threat to the life and property of the affected people.

2) Rural Infrastructure Development Fund (RIDF): During 2003-04, NABARD has agreed to provide loan for flood control &

drainage works under RIDF. So far, 161 (out of 409) flood control projects and embankment road improvement works have been completed by March 2017.

(20)

18 | P a g e 46

56

41.2

21.5

7.4

38.3

9.6

47.9

65.8

43

53

35.3

20.9

6.4

35.8

10.2

68.6 68.6

IMR per 1000 live births

U5MR per 1000 live births

U5 stunted children (height-for-age)

U5 wasted chidren (weight-for-height)

U5 severely wasted children (weight-for-

height)

U5 underweight children (weight-for-

age)

Prevalence of diarrhoea in last preceding 2 weeks (%)

Children with diarrhoea in the last 2

weeks who received oral rehydration salts

ORS) (%)

Children with diarrhoea in the last 2

weeks taken to a health facility (%)

Health Indicators across Rural Odisha and Rural India

India (Rural) Odisha(Rural)

Source-NFHS 4(2015-16)

With different land use forms affecting all levels of river ecosystems through loading of suspended solids, nutrients, metals and acidifying substances, there is need to incorporate river basin pollution abetment policy in the state’s rural sanitation policy. This is to be designed taking river basin as a whole and adopting water pollution control methods (e.g. sedimentation basins, buffer zones and wetlands) to make it more effective, by minimising the environmental impacts.

2.4.2 Sanitation based Outcomes for Health and Hygiene

Public health is accorded highest attention by the state in all its programs and schemes. Given the statistics reported by NFHS 4 which indicates progress on various counts of Infant Mortality Rate (IMR) and under 5 Children Mortality Rare (U5MR), diarrhoeal incidences have been limited, and health and hygiene have been placed at the centre of sanitation schemes and programs.

The following figure shows the health indicators across Rural Odisha and Rural India.

The policy in its form underlines need to account for health and hygiene concerns through sanitation-based outcomes.

2.5 Governance and Institutional Capacities for Sanitation

2.5.1 Assessing Prevailing Governance and Human Resource Structures for Rural Sanitation

Department of Panchayati Raj and Drinking Water is the agency responsible for implementing rural water and sanitation programme in the State, with the objective of keeping rural areas clean and Odisha Open Defecation Free (ODF). A multi-tier implementation decentralized mechanism (exhibited in Pg. 20) has been put in place at the State/district/block/Gram Panchayat and village level.

As implementation of sanitation and water supply programme require large scale social mobilization, demand generation and effective monitoring, PRIs come to play a critical role for demand generation using participatory tools and behavior changing communication exercises. The Government of Odisha is currently implementing the SBM (G) using the following institutional arrangement:

(21)

19 | P a g e At the State Level – Odisha State Water & Sanitation Mission (OSWSM)

At the state level, Principal Secretary, Rural Development Department has¹⁵ over-all responsibility for implementing the SBM (G) in the state, including over-all sector policy formulation, planning and review, including periodic monitoring of the program performance, as well as third party evaluation etc.

A High level monitoring committee is constituted at the state level under the chairmanship of Chief Secretary to address the issues relating to convergence, inter departmental coordination during the plan preparation and post plan arrangement every quarterly. A State Level Steering Committee is constituted under the chairmanship of Secretary PRI Department to review the progress and other constraints affecting the programme implementation, once in two months.

There is a State Level Resource Group comprising of 7-member body which capacitates stakeholders particularly in preparation of GP development plan for the state.

At the District Level – District Water and Sanitation Mission (DWSM)

District Collector is the Chairperson and Executive Engineer (RWSS) is the Member secretary of the DWSM. DWSM is headed by District Collector and assisted by a team of Executive Engineers, Rural Water Supply Sanitation Organization (RWSS) staff at district and Gram Panchayats, Water and Sanitation Support Organisation (WSSO) consultants and district project coordinators. EE (RWSS) is the nodal person responsible for the implementation, monitoring and financial management of the programme. The district WSSO consultants and District Project Coordinator (DPC) are responsible for assisting the DWSM Officers in the operations, coordination with various agencies and monitoring of the SBM (G) program.

There is a District Level Steering Committee cum Resource Group constituted under the Chairmanship of District Collector to undertake bimonthly review of the programmes for periodic reporting to PR&DW Director.

At the Block Level -Block Resource Centre

Block Resource Centre is headed by Block Development Officer (BDO) and works in coordination with Junior Engineer-I & II, RWSS, Block Coordinator and Cluster Coordinator (covering 2-3 GPs each). BRC is responsible for overseeing sanitation works at the Gram Panchayat levels.

(22)

20 | P a g e District Management Unit

Administrative Head: District Collector Technical Head: Executive Engineer

Implementing Agency: Gram Panchayat Support Structure: VWSC, Swachagrahi

Block Management Unit

Administrative Head: Block Development Officer (BDO)

Technical Head: Junior Engineer-I & II Odisha Water and

Sanitation Mission (OWSM)

District Water and Sanitation Mission

(DWSM)

Block Resource Centre (BRC)

Village Water and Sanitation Committee (VWSC)

State Project Management Unit Administrative Head: Principal Secretary,

Rural Development Deptt.

Technical Head: Chief Engineer State

•Panchayati Raj and Drinking Water Department

District

•Zilla Parishad

Block

•Panchayat Samiti

Village •Gram Panchayat

District Level Steering Committee cum Resource Group

Chaired by District Collector

Block Level Co-ordination Committee cum Resource Group

Chaired by Secretary Panchayat Samiti High Level Monitoring Committee

Chaired by Chief Secretary State Level Steering Committee Chaired by Secretary PRI Department

State Level Resource Group

GP Level Standing Committee EXISTING MULTI-TIER IMPLEMENTATION ARRANGEMENT FOR RURAL SANITATION PROGRAMS

(23)

Odisha Rural Sanitation Policy - Draft

21 | P a g e A Block Level Co-ordination Committee cum Resource Group is constituted under the Chairmanship of Secretary Panchayat Samiti to mentor GPs in preparation of village development plan and undertake weekly review of programmes for periodic reporting to District Collector.

At the Gram Panchayat (GP) Level

GP is the nodal organization at the village level. Village Health and Sanitation Committees (VHSC), Village Water and Sanitation Committees (VWSCs) and Swachhagrahis are involved in the implementation and monitoring of the program at the GP level. There is a Standing Committee at the GP Level which is responsible for overseeing implementation of sanitation programs at the village level.

Village Water & Sanitation Committee (VWSC) is accorded priority as Sub-committee of the Gram Panchayat as dedicated institution for designing, implementing and managing the rural water supply and sanitation infrastructure in the GPs. In each of the participating villages a Village Water &

Sanitation Committee (VWSC) is formed, if not already constituted. Any other committee may be designated as VWSC as the case may be. It is the key functional institution at the grass roots level that functions as an extended arm of the Gram Panchayat for rural water supply and sanitation management, SLWM management and O&M arrangements at habitation, village or GP level. VWSC is also mandated with facilitating behaviour change, community-based monitoring mechanisms, raising funds by imposing sanitation cess and enforcing penal provisions and framing regulations for ensuring smooth and sustained drinking water & sanitation servicing within the GPs. There are more than 47,415 VWSCs in Odisha as per AIP 2019-20, SBM (G), GOI. (As on March 2019). Detailed section on VWSC is explained in the Appendix 3

Village Health and Sanitation Committee (VHSC) known as Gaon Kalyan Samiti (GKS) in the state of Orissa is a revenue village level institution constituted for improvement of health and sanitation standard of the villages under National Rural Health Mission. It plays an important role to identify local health issues and undertake suitable measures to solve the issues.

At the Village Level- Swachhagrahis

Swachhagrahis are sanitation motivators for bringing about behaviour change with respect to key sanitation practices in rural areas and in sustaining ODF status in the villages. Every village should ideally have at least one Swachhagrahi, with preference given to women candidates. He/she is a volunteer who can belong to any background, including a local ASHA worker, ANM, Anganwadi worker, water line man, pump operator, member of NCO/CSOs, youth organisations or from the general public living in villages.

A Detailed section on Committees across levels is explained in the Appendix 2

2.5.2 Relevant Legal framework Governing Sanitation Service Delivery

Regulation of Sanitation Services in Rural Areas: As per the Seventh Schedule of the Constitution of India, Public Health and Sanitation fall within the ambit of the State List. Further, by introduction of 73rd Amendment to the Constitution, rural sanitation has essentially become a mandate of Gram Panchayats by introduction of Article 243-G along with 11th Schedule to the Constitution.

(24)

22 | P a g e Functions, Duties and Powers of Gram Panchayat in relation to Sanitation, in Odisha: Obligatory functions of Gram Panchayat are laid down in Section 44 of the Orissa Gram Panchayat Act, 1964, which mention construction, maintenance and cleansing of drains and drainage work. Section 52 and 53 talk about ‘Improvement of Sanitation’ and ‘Scavenging’, respectively, and elaborate upon duties of gram Panchayat in relation to sanitation, including maintenance of drains, water closets, latrine, provision of infrastructure etc. However, there is no specific reference to on-site sanitation.

Moreover, Section 51 of the Orissa Gram Panchayat Act, 1964, pertains to the Gram Panchayats duties to water supply, which is felt to be enabling factor towards increasing access to sanitation services.

Power to manage and regulate Sanitation in the 5th Schedule areas as notified under The Constitution of India: In Odisha, certain areas have been declared as ‘Scheduled Areas’ under Article 244 (1) of the Constitution, under its 5th Schedule. Any legislation made at the State level, applicable to the Panchayats in Scheduled areas governed by the Provision of Panchayats (Extension to Scheduled Areas) Act¹⁶ should necessarily be made in consonance with the customary law, social and religious practices and traditional management practices of community resources in the particular region. The PESA empowers the Gram Sabha to decide on matters relating to the above practices.

(Section 4 (d). The ambit of the Orissa Gram Panchayat Act, 1964 was extended to apply to Scheduled Areas via E. O. No. 438 dated 21st April 1994. Planning and development of Minor Water Bodies is also entrusted with Panchayats in Scheduled areas under Section 4 (j) of PESA

Waste Management in the rural areas of Odisha-The Environment Protection Act, 1986 was enacted to provide for the protection and Improvement of Environment in rural areas and rules can be laid down for the same (Sec. 3, 6 & 26). In pursuance of the powers, Solid Waste Management Rules, 2016 were notified in 2018¹⁷ by the Central Government to extend the application of the said rules to the rural areas, thereby obligating the waste generators to ensure segregated, safe disposal of waste. Under rule 7, Plastic Waste Management Rules, 2016 responsibility was cast on Gram Panchayat to operationalize and coordinate waste management in the rural areas along with ensuring that open burning of plastic waste does not take place. Rule 3 read with Schedule III, Bio- medical Waste Management Rules, 2016 assigns Gram Panchayat duty to provide and allocate a suitable land for development of common bio-medical waste treatment facilities

Treatment of sewage and trade effluents-Water (Prevention and Control of Pollution) Act, 1974 can also lay down; modify or annual effluent standards for sewage and trade effluents. Thereby, the State Pollution Control Board, Odisha has been entrusted with wide powers to prevention and control of water pollution, which extends to whole of Odisha.

Prohibition of Employment as Manual Scavengers-To prohibit the dehumanising practice of manual scavenging, the Prohibition of Employment as Manual Scavengers and their Rehabilitation Act, 2013 was enacted to promote right to life with dignity and lay down safeguards and protective gear and safety devices for cleaning of sewer or septic tanks.

Building Development in the rural area of Odisha-The Orissa Development Authorities Act, 1982 was framed in order to ‘provide for urban and rural development in Orissa.’ According to this Act, Development Authorities could be established to provide for Development Areas under their

16 On the basis of Report submitted by Bhuria Committee in 1995, The Provision of Panchayats (Extension to Scheduled Areas) Act, 1996 (hereinafter referred to as PESA) was enacted to extend the provisions under the Part IX of the Constitution, with certain modifications and exceptions to the 5th Schedule Areas notifies in ten states.

17Compliance of Municipal Soild Waste Management Rules, 2016 by the state in response to National Green Tribunal (NGT) order dated 16.01.2019 ( https://forest.odisha.gov.in/Forest_Act/pdf/Rules/Municipal_Solid_Waste_Management.pdf)

(25)

23 | P a g e jurisdiction. Gram Sabha/ Gram Panchayat at the appropriate level to be consulted in relation to land acquisition for development projects, rehabilitation and resettlement of people and for seeking building plan approvals, if such land is acquired in scheduled areas (Section 4 (i) PESA).

Detailed section on existing legal framework is explained in the Appendix 4

(26)

24 | P a g e

(27)

Odisha Rural Sanitation Policy - Draft

25 | P a g e

3. POLICY STATEMENT

3.1 Vision

The vision of this policy is to form a “Swachh and Sustha gram”, where all the rural habitats have access to improved sanitation, where safe hygienic behaviour is a norm, where recycling of solid and liquid waste is widely practiced, where the environment is waste free, clean and unpolluted, leading to an enhanced quality of life with improved health, general well-being, and social equity fostering economic growth.

3.2 Goal

The overall goal of this policy is to translate the vision of “Swachh and Sustha gram”, into reality throughout rural Odisha by constructing improved sanitation facilities at household and institutional level, ensuring transportation and safe disposal of waste, promoting recycling of solid and liquid waste, creating awareness about public health and environment, improving hygiene knowledge, and institutionalizing core capacities to ensure effective management along the entire sanitation value chain.

The specific goals are:

3.2.1 Achieving sustained Open Defecation Free villages 3.2.1.1 Achieving Open defecation free villages

All rural HHs, irrespective of their tenurial status, will have access to IHHLs and use safe sanitation and hygiene facilities such that no one defecates in the open. In order to achieve this goal, the following activities shall be undertaken:

 Sustain and improve upon the gains made under SBM-G to ensure each household, including the additional households on account of population growth, have access to IHHLs and safe sanitation facilities.

 Under exceptional scenarios, where technical difficulties prevent provision of IHHLs in certain settlements/geographies, provision of community/public sanitation facilities will also be supported.

3.2.1.2 Sustaining Open Defecation free villages

 Ensure continuous usage of toilets by every member of the households within the village/GP.

 Adequate upkeep and management of public sanitation facilities in all rural areas will be ensured, to free them of open defecation and environmental hazards;

 All public sanitation facilities to integrate appropriate design elements, making them accessible and safe to use at all times by women, children, transgender persons, aged, and differently abled.

3.2.2 Achieving sustained open discharge free villages 3.2.3.4 Sanitary and safe treatment and disposal

Human excreta, domestic solid and liquid waste from all households, institutions, commercial establishments and sanitation facilities including toilets must be treated safely before disposing into the environment. In order to achieve this goal, the following activities shall be undertaken:

 Ensuring proper collection of all domestic solid and liquid waste including faecal sludge/septage from on-site installations (septic tanks, pit latrines, etc.) in a timely manner;

(28)

26 | P a g e

 Ensuring that all such collected waste is properly transported and scientifically treated with focus on re-use and re-cycle in order to avoid any public health or environmental hazard;

 Ensuring adoption of occupational safety practices by all sanitation personnel at every stage of the sanitation value chain;

 Promoting maximum adoption of mechanical solutions for cleaning of on–site sanitation installations with exceptions for use of innovative and partly mechanical solutions adhering to safety practices as mentioned above.

 Encouraging participation of women and transgender persons in sanitation value chains and procurement cycles – as entrepreneurs, door-to-door waste collectors, handling & Treatment Plant operators, plumbers, masons – capitalising on the pivotal role played by women and transgender persons led Self Help Groups (SHGs) of Deendayal Antyodaya Yojana – National Rural Livelihoods Mission (DAY-NRLM), Mission Shakti, Ama Gaon Ama Bikash programme etc.

 Ensuring proper functioning of network-based sewerage systems, if available in the Census towns and/or large dense villages and ensuring connections of households to them wherever possible;

3.2.3.5 Formulation and adherence to appropriate standards for handling and treating faecal waste

 State government shall issue appropriate standards, wherever needed, for safe management of solid and liquid waste including faecal waste, so as to ensure safety of all stakeholders involved across the sanitation value chain.

 Further, the treated products shall be discharged based on existing national standards. For integrated solid and liquid waste management systems, treatment and disposal mechanisms shall be formulated based on international best practices such as ISO, wherever needed, to address environmental concerns.

 Specifications for PPE and other components for safe operations will be clearly prescribed and mandated to ensure safety and dignity of all sanitation workers, with a special focus and attention on women sanitation workers.

3.2.3.6 Recycling and reuse of treated products

 Creating enabling environment and mechanisms for recycling and reuse of treated solid and liquid waste;

 Strengthening capacity of GPs and other service providers to adopt innovative solutions for productive reuse of treated solid and liquid waste; once they meet the prescribed standards;

 Encouraging partnerships with industries and bulk users that may purchase the end products from solid and liquid waste treatment.

3.2.3 Inclusive sanitation and community participation

3.2.3.1 Re-Orienting Institutions and Mainstreaming Sanitation

 Mainstream sanitation planning and implementation in all sectors and departmental domains as a cross-cutting issue, especially in all rural management endeavours;

 Strengthening state, village and local institutions (public, private and community) to accord priority to sanitation provision, including planning, implementation and O&M;

 Extending access to entire sanitation value chain for poor communities and other un-served or under-served settlements with a special focus on women, transgender persons and the vulnerable.

 Ensuring equal representation of women and socially excluded groups in all decision-making bodies and institutions related to sanitation, from national to local level, to increase their agency

(29)

27 | P a g e and participation in sanitation as decision makers, consumers and providers of services across the value chain.

The following goals are inter-related and it is envisaged that their operation in tandem will help achieve the overall goal of this Policy. The key inter-related components are explained below:

3.2.3.2 Awareness generation and behaviour change

 Increasing awareness about sanitation and hygiene (including MHM), and their linkages with public and environmental health, economic growth and liveable villages amongst communities and institutions;

 Institutionalizing mechanisms to bring about and sustain behavioural changes aimed at adoption of safe sanitation and hygiene practices by rural households with a special focus on women and children (as agents of change) along with other gender groups (including men and transgender persons).

 Adopting internal communication mechanisms to create commitment and capacity among decision-makers and service providers at all levels (national to local) for planning and delivery of safely managed sanitation, integrating FSSM and safe management of domestic solid and liquid waste.

 Need to shift the awareness generation messaging from ‘dignity, safety and vulnerability’ of women to their ‘empowerment’ through real life success stories, testimonies and narratives.

3.2.3.3 Strengthening of institutions for proper O&M of SLWM

 Developing a sustainable O&M model for SLWM service delivery through detailed strategy formulation, resource allocation, community and private sector engagement.

 Ensuring proper usage, regular upkeep and maintenance of SLWM facilities (transfer stations, public and community toilets, treatment plants etc).

 Strengthening institutional mechanisms and capacities of GPs to provide safely managed sanitation services across the entire sanitation value chain;

 Developing institutional mechanisms and business models within GPs and other service providers for achieving cost recovery of O&M expenses for all sanitation facilities (including but not limited to user charges, fees, and taxes, etc.).

3.3 Specific Milestones/Targets

Achieving the goal requires a time bound target-based approach, with adequate planning, human and financial resources, mechanisms of coordination among diverse agencies, levels of government and key stakeholders, and robust mechanisms for tracking and monitoring results.. The targets would not be uniform for all the villages; it should be a graded solution, based on the existing status of the village.

Goals

Benchmark (grade the GPs based on progress, preparedness and willingness)

Timeframe and Target 2019-

2024

2025- 2030 Attaining sustained Open Defecation Free villages

1

All rural population, especially women, girls, transgender persons, differently abled, aged, poor and vulnerable have equitable and adequate access to safely managed sanitation and

Exemplary* 90% of

districts

100%

districts Meets expectation**

Less than 90% of districts

100%

districts

Approaches expectation *** - -

(30)

28 | P a g e Goals

2024

2025- 2030 hygiene facilities, at all times.

(This would include not only new toilet construction owing to population growth, but also retrofitting of dysfunctional toilets, on-site systems etc.)

2

All rural population, especially women, girls, transgender persons, differently abled, aged, poor and vulnerable have equitable and adequate use safely managed sanitation and hygiene facilities, at all times

Exemplary* 85% of

districts

100%

districts Meets expectation ** 75-85% of

districts

100%

districts

Approaches expectation ***

Less than 75% of

the districts

85% of the districts

3

All rural population adopt safe sanitation and hygiene practices including hand washing with soap before meals and after toilet use

Exemplary* 75% of

districts

100%

districts Meets expectation ** 65-75% of

districts

100%

districts Approaches expectation *** Less than

65%

75% of districts Attaining sustained Open discharge free villages

Solid Waste Management (Domestic)

1

Safe management of domestic solid waste (To be detailed based on door to door collection, transportation of collected waste, treatment of transported waste, re-use and recycling of treated waste and untreated waste going to landfill sites)

Exemplary* 80% 100%

Meets expectation** 70-80% 80-90%

Approaches expectation*** Less than

70% 70%

Liquid Waste Management (Black and Grey Water)

1

Formulation and adherence to appropriate standards for handling and treating faecal waste

All implementing institutions 100%

100%

2 Recycling and reuse of treated wastewater and biosolids

Exemplary* 50% 100%

Meets expectation** 30-50% 50%

Approaches expectation*** 10-20% 30%

3

Strengthening of institutions for proper O&M of all sanitary installations

All institutions at all levels 70% 100%

(31)

29 | P a g e Goals

2024

2025- 2030

4

O&M costs of sanitation systems/

infrastructure sustained through dedicated allocation of financial resources

All institutions at all levels 70% 100%

Inclusive sanitation and community participation

1

All institutions related to sanitation at local, state and national level have adequate representation of women in decision making

At all levels of institutions

50%***** 50%*****

* Exemplary: districts/blocks/GPs showing exceptional progress

** Meets expectation: District/Blocks/GPs showing average results

*** Approaches expectation: District/Blocks/GPs require to make concentrated effort towards achieving targets

**** Measured in terms of representation of women in a particular institution as a proportion of its total membership.

3.4 Principles

The achievement of the vision and goal will be based on the following principles:

 Sanitation will be treated as a basic public service through support and opportunities provided by State Government, enabling all citizens’ access to sanitation services as their basic entitlement.

 Equity and safety of access and use, particularly to the vulnerable and unserved population so that rural citizens irrespective of their socio-economic status, caste, gender, age or legal status of land/status of migration are not denied access to use of sanitation services.

Adequate arrangement for access to services for differently abled, women, children transgender and other vulnerable sections of the society. Schools, Aanganwadis, Government office buildings and other institutions would also provide for adequate access to sanitation for all.

 Increased awareness of the collective goal of sanitised villages through behaviour change, adoption of hygiene practices and use of safe technology options to protect environment and public health.

 Institutional roles, responsibilities and capacity development through progressive articulation in policy and law enshrined in the 73^rd Constitutional Amendment Act 1993 for devolution of functions, funds and functionaries to the Gram Panchayats (GPs). District sanitation planning will thrive on the vibrancy of GP level leadership, CSO participation, management of information and citizens’ engagement.

 Centrality of operation and maintenance (O&M) of sanitation facilities in selection of technological options planning construction and design of systems and facilities. This would necessitate adequate fund allocation for O&M either through state funds supported by incremental reliance on user charges.

 Integrating broader environmental concerns in the provision of rural sanitation service delivery so that adverse risk to environment (land, air and water resources) and public heath

(32)

30 | P a g e are adequately minimised in the entire sanitation chain (planning, implementation, management and sustenance). Direct or indirect contamination of river basins in the state due to discharge of untreated wastewater, sewage and sludge should be prevented by setting up pollution abatement systems.

 Promote recycling and re-use organic and cattle waste towards energy generation through implementation of schemes/programs like Gobar-dhan schemes ¹⁸ for energy generation.

 Selection of appropriate technology and solutions contingent upon the needs of the context

18 Gobar-dhan Scheme-It is one the critical constituent of ODF plus strategy envisioned under Swachh Bharat Mission (Gramin) launched by Ministry of Drinking Water & Sanitation (MoDWS). It aims to keep villages clean, increase the income of rural households and generate energy from cattle and organic waste.

(33)

31 | P a g e

2. PREVAILING RURAL SANITATION SCENARIO IN THE STATE OF ODISHA

CONTENTS

LIST OF ABBREVIATIONS

DEFINITIONS

1. BACKGROUND

2. PREVAILING RURAL SANITATION SCENARIO IN THE STATE OF ODISHA

3. POLICY STATEMENT