Innovative participatory Drinking Water delivery approach in Gujarat – India
Water And Sanitation Management Organization (WASMO)
India

The Problem

The institution being nominated viz. Water and Sanitation Management Organization (WASMO) was established as a Special Purpose Vehicle (SPV) in May 2002 for bringing perceptible systemic changes through a paradigm shift in the role of governance from provider to facilitator and citizens’ engagement in drinking water service delivery at users’ levels in rural areas of Gujarat State – India.

Prior to this, water supply in rural areas was provided by Government agencies, the entire program being supply driven which is often criticized as of build – neglect – rebuild syndrome due to rigid uni-disciplinary engineering bureaucracy with almost no community participation. This was resulting into development of a strong complacency of provider for which no user charges are to be paid. The entire service delivery was turning financially unviable wherein society is not willing to pay. Service delivery was becoming highly irregular and inefficient. Due to lack of awareness of stakeholders and citizens’ engagement issues of exclusion, equity, gender and drudgeries to women and children have been evident quite often. Drinking water scarcity and quality issues necessitated concerns on sustainability, both availability as well as financial. Internal distribution within villages and habitations was almost non-existent leading to hardships to women and children as they had to walk long distances for fetching water for drinking and household use. Users were totally unaware of quality of drinking water being used. Decentralized mechanism for water quality surveillance was not established and community on their own had little capacity and awareness in this regard.

Due to the above issues, women and children were most affected throughout the State as responsibility of fetching water lies on them. Downtrodden communities and lower caste groups in the societal strata had specific issues of exclusion and equity in water availability. Due to supply driven programme, community satisfaction level for the service delivered was low. A typical bureaucratic response to several pressures of exigencies brought about different ways of rationing the services and absence of a accountability and feedback mechanism. Development of social capital, capacity building and empowerment of community needed a totally different outlook for bringing in reforms in the sector.

Solution and Key Benefits

 What is the initiative about? (the solution)
The key benefit is in terms of decentralization, users engagement and development of community managed water supply. A paradigm shift in the role of governance from provider to facilitator has been achieved in the State. Of the 13,994 elected village local governments in the State, more than 8,600 Village Water and Sanitation Committees (VWSCs) have been made operational in the State. 2,678 villages have commissioned their projects and are now also looking after the Operation & Maintenance (O&M) of schemes. Schemes are under implementation in another 2,100 villages. Awareness creation and capacity building has resulted in formation of 9,973 Village level Water Quality Monitoring Teams who have started assuring safe drinking water by testing of drinking water sources for its potablity. In 2006-07, 52 villages where WASMO had carried out interventions, received the ‘Nirmal Gram Award’, an award announced every year by the Government of India for villages that have achieved full sanitation coverage. Strong partnerships have been formed with about 75 good Non-Governmental Organizations (NGOs) for facilitation of rural community.

Due to a novel process driven approach at users and community level capitalization on local leaderships has been achieved which has resulted in building up of strong social capital. New trends of leaderships that are inclusive participatory and horizontal founded on effective communication are resulting in better utilization of resources, effective management, strong ownership feeling of community and increased efficiency of service delivery. The approach followed is directed to demand driven program instead of supply driven systems. The initiative is leading towards creation of a learning society for conservation, efficient utilization of scarce resource, water quality issues and addressing the equity issues in innovative ways. The initiative has also resulted in payments of tariffs by users for water supplied by Government agencies as well as bearing the entire Operation and Maintenance (O&M) by community. The process, in turn is quite effective in developing micro-links for social audit, transparency and accountability that is essential for good governance, which will go a long way for consolidation and long-term sustainability of achievements under Millennium Development Goals.

Several program evaluation studies taken up through various independent organizations, internship fellows and internal monitoring have revealed that there is a great impact on women’s lives after the initiative and issues like inadequacy of water, traveling long distances, conflicts, long time for fetching water etc. have substantially reduced as water is now available up to household level with improved service delivery. Most of VWSCs are confident of taking up O&M of the systems, time taken for repairs has been reduced due to community handling it, willingness to pay has improved and tariff recoveries have seen phenomenal increase (upto 10 times), work of VWSC’s is appreciated by community and decisions are taken in village assembly for ensuring transparency where community acts as a strong social audit tool. Many VWSCs have created surplus corpus of funds for O&M. Issues of sanitation and hygiene at household level and school children have shown marked behavioral improvement.

Actors and Stakeholders

 Who proposed the solution, who implemented it and who were the stakeholders?
It was the outcome of a thought process of a peer group at the level of Government of Gujarat for taking up reforms in the sector on a mission mode along with the association of externally aided programme for rehabilitation of water supply infrastructure in earthquake affected areas of Kutch district, ravaged by worst earthquake of 2001. The reforms were subsequently scaled up to cover the entire State. Secretary of water supply department and Joint Secretary (Projects) along with some like minded personalities working in the sector were instrumental in creation of this Special Purpose Vehicle as an autonomous organization with non-conventional organizational structure for a mission mode approach.

The efforts for bringing in institutional changes at the field level can be dedicated to the commitment on part of young professionals working very closely with the community, which could build a strong environment of trust and transparency. Very strong partnerships with community as well as several NGOs, has been a very effective tool for the outcomes achieved. Putting into practice a process driven approach for demand driven programme is easier said than done at grassroots levels in an extremely complex social milieu. Undeterred efforts for achieving the motto of ‘Building Partnerships and Working Together’ through team work, proactive facilitation and capacity building of the community and putting entire process and components in public domain by constant discussions in the village assembly, has built strong bonds with the community, which in turn has shown a strong commitment by owning the programme.

The entire rural community of Gujarat State- India, facing acute water shortages in about 2/3 of its geographical and water quality issues in about 1/3rd of its habitations has been targeted as the stake holders. Facilitation of NGO’s working in the sector was also making them as Implementation Support Agencies (ISA’s) has utilized their potential and capacities. Most important stakeholder beneficiaries of the program have been the women and children who are traditionally responsible for collection of water, who in most cases had to bear drudgeries of walking up to several kilometers with more than one pots filled with water on their heads thus bearing unnecessary stress on their body and health besides wasting lot of time which could have otherwise been utilized for more productive works. Other group of stake holders is the downtrodden sections of the society and families of lower caste strata in the villages.

(a) Strategies

 Describe how and when the initiative was implemented by answering these questions
 a.      What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
Objectives

• To promote, facilitate and empower rural community and local self governments to manage local water resources and have their own water supply systems and environmental sanitation facilities with citizens’ engagement in decision making.

• To empower rural community through village water and sanitation committees having a minimum 1/3rd women members and representatives from all sections of the society to plan, approve, implement, operate and maintain their own water supply, manage water resource and ensure safe, reliable and adequate water supply throughout the year.

• To work as a proactive facilitator and provide technical, social and financial support to VWSC’s and to build strong partnerships with NGO’s, other Government Institutions donors and UN and other organizations to fulfill the pursuit of strengthening local self governance for efficient service delivery.

• To encourage adoption of best hygiene practices and habitat improvement by taking up exhaustive IEC.








Strategies

• Formation of a non-conventional organization structure for role transformation
• Focus on software and IEC activities before taking up hardware activities
• Putting entire programme in public domain for seeking strong citizens’ engagement
• Building strong partnerships based on transparency and trust with community, community institutions, and implementation support agencies.
• Creating and strengthening institutions by continuous capacity building at village levels and upto state level
• Process based demand driven programme implementation for achieving five over-arching themes, viz., efficient service delivery, accountability, strong community leaderships, stakeholder engagement and gaining public confidence.

Working with a basic philosophy of, ‘Users are the Best Managers’, this reform initiative aims at empowering and facilitating local governance and the community to manage local water resources and have decentralized water supply systems, through VWSCs. WASMO has worked as a facilitator to provide social, financial and technical support for capacity building of local VWSCs and has been engaged in creating strong partnerships with Non-Government Organizations (over 75 NGOs are involved in various projects and processes), Government Institutions (GIs) and organizations like UNICEF and other sector players.

The objectives and strategies were established by a PEER group of eminent persons working in this field. Consultations with Royal Netherlands Embassy were also significant in establishing these objectives and strategies aimed at sector reforms. After lot of consultations and groundwork, it was decided to bring transformation at three different levels. The first transformation was to bring changes in organizational culture through administrative reforms thereby changing the administrative structure by creation of autonomous organization. Second transformation was to build strong partnerships with NGOs, community based organizations, community and other sector players. Third most important transformation was to take the programme in public domain wherein power to question and social audit lies with the village community.

(b) Implementation

 b.      What were the key development and implementation steps and the chronology? No more than 500 words
The key developments can be attributed to two different levels. First level is bringing administrative reforms for promoting transparency, accountability, equity and responsiveness in public service. This was done by creation of WASMO as a Special Purpose Vehicle and its unique organizational set-up.

Second key development was for village level activities wherein the entire social processes is aimed at empowerment of local self-government and community, ensuring the legitimacy of the institution. Also as a policy, VWSCs have mandatory representation from all caste groups in the village and with 1/3rd places reserved for women. Software activities and social processes are focused in the first cycle of 3 to 6 months. Engagement of the community is brought in by consulting the general assembly of the village periodically and by building their awareness and capacity levels. The entire programme and process is to be taken in public domain through IEC and regular meetings up to all sections of the society. After the programme introduction in the village and awareness generation, formation of VWSC is facilitated through meeting of Village Assembly where all village residents are members. Participatory rural appraisal (PRA) is also taken up for resource mapping, need assessment and participation of community. Action Plan is approved in village Assembly after which planning for work execution is made for bringing in transparency and accountability. The village Assembly acts as a tool of social audit. Sharing of capital costs to a minimum extent of 10 percent is mandatory and acts as a litmus test for genuine participation of village community. VWSC has been given full control over finances and there is direct communication between district and village level during project planning and implementation, reducing the other tiers to avoid bureaucratic delays.

After identification of leaderships at village level, capacity building activities are taken up. Major areas of capacity building are orientation to community based action, construction planning and monitoring, financial management including bank procedures, record keeping, water quality surveillance, operation and maintenance and personal and community sanitation and hygiene. Capacity building is concomitant during the hardware works at village level. The WASMO and ISA teams play the role of pro-active facilitator during implementation of the programme wherein all the decisions are taken by community.

The entire programme evolves different stages of community participation wherein community becomes keen and enthusiastic. Leaderships and participation encompasses caste, religion, gender, age etc. Participation of women and lower caste groups has been encouraged. In this way, strong social capital is built by capacity building programme evolved to a level of influencing decision making, innovativeness and final say over implementation. Cases of low participation or hurdles are tackled by a patient approach by working in smaller groups, rotating power sharing and flexible approach of the programme.

(c) Overcoming Obstacles

 c.      What were the main obstacles encountered? How were they overcome? No more than 500 words
The main obstacles for programme implementation and overcoming the hurdles are as follows:

i.) Indifferent social structure: In Indian context, social structure at village level is quite complex and bringing every one at a common platform is a Herculean task. Village Assembly meetings, IEC campaigns, meetings upto hamlet levels and bringing everyone together and discussing the issue in presence of village assembly acts as a strong tool to bring everyone together for a common goal.

ii.) Gender and exclusion issue: The society in our context is male dominated as well as higher caste group are given more importance. Compulsory participation of all sections of the society and building provisions for 1/3rd of women members as well as mandatory representation from lower caste strata is able to address the issues to a significant extent. Common platform sharing and discussions during village assemblies are bringing about quite compassionate proposition wherein gender and exclusion issues are addressed by village community themselves.

iii.) Pampered societal mentality: For so many years, Government has played the role of provider wherein tariffs are hardly paid. Taking community contribution and tariffs is very difficult to internalize at community level. The entire social process, involvement of community in the programme, demonstration visits and perceived benefits of efficient service delivery are the tools to overcome such mentality in addition to development of strong leaderships.

iv.) Transparency and accountability: Changing from closed, slow and non-transparent bureaucratic culture to open, fast and transparent working at all levels needed specific efforts like discussion of every issue in Gram Sabha from the very beginning, sharing capital cost by most of the households thereby getting right to question, community control over finances and a unique method of project commissioning before the village assembly.

v.) Hurdles at village level: There are issues of intimidation, indifference, persons waiting in wings to influence or obstruct as well as low income group incapable of contributing the mandatory contribution. Small group meetings, rotational power sharing, awareness for benefits and flexible approach with different technological options and if required taking community contribution in installments, etc. have been able to overcome such hurdles.

vi.) Financial resources: The programme was demand-driven and due to a novel approach of facilitation and IEC strategy, there came a point wherein it was almost certain that within the financial resources available with WASMO, it may not be possible to further the programme. Efforts were made to mobilize more financial resources from various levels. At this juncture, due to the enthusiasm of community and project benefits and feed-back, Government of Gujarat made sufficient additional allocation by which the program could be scaled up.

The above issues and the hurdles could be overcome by lot of perseverance, patience, genuine facilitation of high quality responsiveness and process driven approach for seeking and enforcing genuine participation of citizens in the programme.

(d) Use of Resources

 d.      What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Financial resources have been mobilized from various organizations for this purpose, which are as under:

Funding Agency INR in million US $ million

Royal Netherlands
Embassy 786.00 18.28

Govt. of India,
Rural Development 897.30 20.86

Govt. of India,
Economic Affairs 701.60 16.31

Govt. of India
Tribal Affairs 42.50 1.00

Govt. of Gujarat
Water Supply 2036.70 47.36

Govt. of Gujarat
Tribal Development 100.00 2.32

Gujarat Water
Supply Board 36.60 0.85

UNICEF 12.30 0.28

Total 4613.00 107.26


 Cost for software activities, facilitation, human resource and organizational overheads INR 593.0 million (12.85%)
 Cost for hardware activities/physical components of the projects INR Rs. 4020.0 million (87.15%)

WASMO is governed by a governing body and is headed by the Chief Executive Officer who is a government officer, and directly heads and supervises technical cell, project management, documentation, finance and accounts and management support units. Out of these units the technical cell guides water supply cell, water resource management cell, environmental sanitation cell and water quality cell. WASMO has a multidisciplinary team with professionals from engineering, social work, management and finance, environmental sciences, communication and documentation. The composition is young and drawn from the open market on contract basis in a transparent manner. A large number of professionals are young and they are guided by relatively very senior professionals most of whom are on deputation from the government departments. Also, through its internship and volunteer programmes, WASMO collaborates with academic institutions, and provides an opportunity to students to understand the water sector in a holistic manner and put into practice what has been learnt in the classroom.

Since inception WASMO has established partnerships with organizations involved in rural development to work at grassroots level. The partnerships are built on a shared vision to address the basic need for drinking water. NGOs have been selected through a structured process of accreditation to act as Implementation Support Agencies (ISAs). Today there are more than 75 good NGOs associated with WASMO as ISAs.

Sustainability and Transferability

  Is the initiative sustainable and transferable?
The following issues are of significance for sustaining the programme of decentralized, community managed water supply programme:

i.) Sustainability of institutions: Institutions being developed at village level have been made sustainable by continuous capacity building programme, repeated discussions at Village Assembly level, continuous facilitation up to withdrawal from village level and taking up follow up initiatives even after withdrawal and facilitating support in case it is needed even after withdrawal by developing linkages to resources.

ii.) Social processes: Sustainability of cohesive feeling and common goals is also essential for sustaining the social capital. Conflict resolution process during the first cycle leads to bringing together all the sections of society at a level platform, which is the major driving force for sustaining the efforts.

iii.) Sustainability of water sources: Groundwater recharge work, surface water storages, supplementation of deficit by piped water supply, conservation in use and conjunctive water patterns are evolved at community level through awareness creation which is able to make water supply sustainable.

iv.) Financial and Technical sustainability: The options evolved for the programme are socially acceptable, technically simple and financially viable which can be sustained within the means of the rural community. The options so provided are selected by the community and due to capacity building, financial computation and technical maintenance, the systems developed are proving to be sustainable.

The initiative is replicable and has been scaled up throughout the Gujarat State. Year-wise formation of VWSCs is given in the following table:

Year No. of VWSCs Cumulative VWSCs
formed formed

2002-03 82 82
2003-04 368 450
2004-05 334 784
2005-06 3293 4077
2006-07 4337 8414

Lessons Learned

 What are the impact of your initiative and the lessons learned?
The following replicable learnings have evolved during implementation of programme:

i.) Emergence of local leaderships and social capital: Local leaderships, citizen’s engagement and capacity building has led to building up a strong social capital which is responsive, accountable, transparent and active for addressing the water supply issues at users level by innovative ways with a strong ownership feeling.

ii.) Transparency and accountability: Due to cohesive working and ownership feeling, community has demonstrated high level of transparency and accountability by evolving different methods.

iii.) Social Audit: Entire village is acting as a social audit mechanism due to the right to question and vigil by entire society.

iv.) Equity and Social inclusion: Various innovative like care for underprivileged, differential tariffs and other social inclusion mechanisms have been devised by the community for ensuring equitable water distribution.

v.) Women and children: In several villages, all women VWSCs have been formed and women are leaders in 879 VWSCs. In several cases, women have been the front runners where men were not taking much interest.

vi.) Users to pay: Tariff recovery for Governmental supplies has substantially increased. Water tariff mechanisms have been devised for intra-village distribution by community and recoveries are to the tune of 80 to 90%.

vii.) Conjunctive use of water: Dual water supplies, use of surface water, rooftop rainwater harvesting and cluster storages are being practiced for this purpose.

viii.) Regulatory mechanisms: Community has imposed socially acceptable regulations for groundwater or surface water use so that drinking water supplies are sustainable.

ix.) Multi-agency involvement: Good lessons have been learnt for congenial working with NGOs, self-help group, village level organizations, etc.

x.) Flexible approach: Choice of technological options as well as flexible norms for community contributions have made community comfortable and attracted towards the programme.

xi.) Linkages for responsiveness: WASMO has also built up linkages for feed-back and responsiveness with Government agencies. Even metering of water supplies has been appreciated and demanded by the community.

xii.) Water Quality Surveillance: Water safety is now ensured by locals by forming 9,973 water quality surveillance teams.

xiii.) Drinking Water Woes: Drudgeries due to long waits at public stand posts, water supply through tankers, and fetching water from long distances have reduced considerably.

Key elements for success:

High level of transparency, proactive facilitation, strong team effort by professionals of WASMO and NGOs, exhaustive IEC strategy, social process at village level, Village Assembly as a strong tool of social audit, flexible approach, space for dialogue and discussions, clear partnership agreements with VWSCs and NGOs with regular follow-ups, efficient leadership at organizational level, development of social capital and local leadership and a professional organizational structure with human resource development focused approach, community control over finances and direct facilitation of village level governance from one point for reduction of delays have been the main attributes for success of the initiative in this regard.

Contact Information

Institution Name:   Water And Sanitation Management Organization (WASMO)
Institution Type:   Government Agency  
Contact Person:   Jaipal Singh
Title:   Chief Executive Officer  
Telephone/ Fax:   91-79-23247170, 23247171
Institution's / Project's Website:   91-79-23247485
E-mail:   wasmo@gujarat.gov.in  
Address:   Water And Sanitation Management Organization (WASMO), Jalseva Bhavan, Sector 10-A, Gandhinagar
Postal Code:   382 010
City:   Gandhinagar
State/Province:   Gujarat
Country:   India

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