5April 2002

SETTINGTHE CONTEXT

Igniting Change: Tacklingthe Sanitation Challenge

a rura l th ink tank

jal manthan jal manthan

Sanitation remains one of the biggestdevelopment challenges and is,appropriately, one of the millenniumdevelopment goals. At the second WorldWater Forum (The Hague, March 2000) itwas declared that by 2015 the proportion ofpeople without access to hygienicsanitation facilities should be halved, andthat by 2025 access to safe water andhygienic sanitation facilities should beavailable to everyone.

The challenge is to find approaches toachieve these bold targets. At the heart ofthis challenge are the questions of how totrigger the change in traditional sanitationpractices, how to sustain the changes,and how to scale-up successes. To achievesuch sustainable changes we need tobetter understand the role of individuals,households, communities and governmentsin this process.

Bangladesh, like many other similarlyplaced developing countries, has beentrying to answer these questions with someexcellent results on the ground. Theobjective of this workshop was to initiate anexchange between Bangladesh and India(with its bold Central Government-supportedTotal Sanitation Campaign) to see if learningfrom each others’ experiences, the twoSouth Asian neighbors could come up withinnovative approaches to tackling thevexing problem.

The Bangladesh experiment on whichthe workshop was focused suggests thatindividual-based fiscal subsidies are notcritical to winning the war on sanitation.Rather, the experience of Bangladeshsuggests that the key is to first find themechanism by which to trigger the requiredmind shift change. The next step is to comeup with institutional models for scaling-upsuch an approach. Preliminary thinking onthis issue suggests that the solution might liein combining the motivational approachwith fiscal support directed jointly at localgovernment and communities rather thanat individuals.

GU

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Department forI n t e r n a t i o n a lD e v e l o p m e n tDFID

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FOREWORDAs less than 20 percent of India’s rural population has

access to safe and hygienic sanitation facilities, there is anurgent need to address the sanitation gap and increasecoverage. The Government of India has been examiningapproaches to address the problem.

With experience worldwide suggesting that effectivesanitation schemes should be demand-driven andparticipatory, the Government has restructured theRural Sanitation Program launched in 1986, which wassubsidy-driven and allocation-based, and resulted in anoveremphasis on hardware and targets. The new TotalSanitation Campaign (TSC) promotes greater userinvolvement, lower subsidies, a facilitating role for NGOsand a range of technology options.

A number of initiatives in India and the regioninvolving the Government, the multi-lateral and bilateraldonor community, and local and international NGOs havefocused on improving sanitation coverage. Although therehave been some pockets of success, scaling-up has beendifficult, and the overall achievement continues to be poor.

An innovative initiative piloted by Water AidBangladesh (WAB), in collaboration with a local NGOVillage Education Resource Center (VERC) and funded byDFID-Bangladesh has resulted in 100 percent sanitation infive sub-districts in Bangladesh. In keeping with theprinciples of sector reforms and the philosophy ofcommunity participation and demand-responsivestrategies, it has mobilized communities to seek solutionsand to plan and implement their sanitation schemes bycreating awareness and motivating behavior change. All ofthis has been achieved without any subsidies.

Countries can learn from each other by sharingexperiences, through partnerships, and by observing theother’s successes and failures. To expose governmentofficials and other stakeholders from India to this approach,WSP-SA organized a regional workshop in Bangladesh thatincluded field visits to the sanitized villages and interactionwith stakeholders. The day-long interaction with thecommunities provided strong evidence of the efficacy andsustainability of the approach, and several unique featuresof the model were observed and noted by the participants.

Inspired by their first-hand experience of a model thathas resulted in 100 percent sanitation in communities,opportunities for piloting this approach in India andintegrating it with existing programs are now beingconsidered. The Water and Sanitation Program-South Asiawill facilitate the process through workshops, bysupporting pilots and through knowledge-sharing sessions.

The Bangladesh model may be a possible answer toincreasing sanitation coverage in India. It remains to beseen as to how far this model can be adapted andupscaled in the Indian context.

Shri A.K. GoswamiShri A.K. GoswamiShri A.K. GoswamiShri A.K. GoswamiShri A.K. GoswamiSecretarySecretarySecretarySecretarySecretary, Department of Drinking W, Department of Drinking W, Department of Drinking W, Department of Drinking W, Department of Drinking Water Supplyater Supplyater Supplyater Supplyater Supply

Ministry of Rural DevelopmentMinistry of Rural DevelopmentMinistry of Rural DevelopmentMinistry of Rural DevelopmentMinistry of Rural DevelopmentGovernment of IndiaGovernment of IndiaGovernment of IndiaGovernment of IndiaGovernment of India

Sanitation coveragein Bangladesh isestimated to be only40 percent of therural household.This means a largeproportion of therural populationpractice opendefecation. Ina densely populatedcountry,contamination ofwater bodies isreally a grave publichazard. Mereenticements in the

form of subsidy and the crash program approachcannot result in a sustainable change. Sustainabilityrequires two important things: behavior changecommunication and genuine demand creation forsanitary latrines among users.

Excerpted from the inaugural address ofExcerpted from the inaugural address ofExcerpted from the inaugural address ofExcerpted from the inaugural address ofExcerpted from the inaugural address ofMr D.K. Nath, SecretaryMr D.K. Nath, SecretaryMr D.K. Nath, SecretaryMr D.K. Nath, SecretaryMr D.K. Nath, Secretary, Rural Development and, Rural Development and, Rural Development and, Rural Development and, Rural Development andCooperatives Division, Government of BangladeshCooperatives Division, Government of BangladeshCooperatives Division, Government of BangladeshCooperatives Division, Government of BangladeshCooperatives Division, Government of Bangladesh

IGNITING BEHAVIORCHANGE FOR 100PERCENT SANITATIONIN BANGLADESH

The Bangladesh experience has shown that it ispossible for entire communities to change traditionalsanitation practices and shift from open defecation tofixed-point defecation under sanitary conditions. As aresult of a partnership between WaterAid, Bangladesh(WAB), an international NGO, and Village EducationResource Center (VERC), a local NGO, under aDFID-Bangladesh-supported project, five sub-districtsin Bangladesh are now 100 percent sanitized.

S What triggers behavior change?The WAB-VERC model is based on the principle of

‘igniting’ behavior change in sanitation practices bycreating awareness in the community of the lack ofenvironmental sanitation and its adverse impact onhygiene and health conditions. Once communities aremotivated to change behavior patterns, they seek tointroduce sanitation facilities that ultimately lead toimproved health and self-esteem. The success of the modelis based on getting people to move away from opendefecation to fixed-point defecation, even if it is at the

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bottom of the ‘sanitation ladder,’ on the assumption thatpeople will move up the ladder of superior options as theyfind these affordable.

In the Bangladesh example, communities wereinformed about the ill-effects of current open defecationpractices and how the mismanagement of feces disposalcauses disease. The enormity of the problem waseffectively understood when the communities visiteddefecation sites to make a collective assessment of thesituation and calculated the amount of feces beingdeposited in the open. One village calculated that about120,000 tons of human excreta were being addedannually! When the community visualized this figure intruckloads, they were totally repulsed and motivated tochange existing practices.

Following this, communities began to look at ways toimprove their current sanitation environment. Individualswere identified to work as catalysts in the community to

spread the demand for latrines. The community was madeaware that to achieve total sanitation it is necessary thatevery household adopt hygienic sanitary practices, andbehavior change must be taken up collectively. Animmediate response was to dig pits as makeshift latrinesand the imposition of a community penalty.

S Facilitating change through PRA toolsVERC has played a crucial role in facilitating the

process of community action for behavior change. Ratherthan providing ‘top-down’ solutions, it ‘ignited’ awarenessin communities about the stark reality of village sanitaryconditions by using a range of participatory rural appraisal(PRA) tools that involved the entire community. The entryPRA tools used by VERC is shown in Table 1.

Since the entire approach depends on the promotionof hygienic practices, sessions on health and hygiene wereheld simultaneously. Courtyard meetings, film shows,health campaigns and children’s education were used topromote 100 percent sanitation.

S Community institution-buildingThe approach is based on the belief that communities

are capable of dealing with their sanitation problems ontheir own. Based on this assumption, it emphasizesbuilding community structures and total communityempowerment rather than the delivery of services andfinancial support.

VERC helped to develop and strengthen community-based institutions. Local committees were formed withrepresentatives from all sections of society including women.Religious leaders and teachers were also involved to createsocial pressure for change. Action plans were drawn upand meetings organized to find collective responses andsolutions. These committees now monitor behaviorchange, and the feedback from monitoring is used to reviseaction plans to achieve 100 percent sanitation. The test isto see whether the institutions and successes will outliveVERC’s engagement with a particular community.

A regional workshop on ‘People’s Initiative for TotalSanitation’ was held in Bogra and Rajshahi,Bangladesh, from 12-15 February 2002. Approximately30 participants, including officials from theGovernment of India, State Governmentrepresentatives from Andhra Pradesh, Kerala,Maharashtra and Tamil Nadu and NGO representativesinteracted with approximately 20 stakeholders fromBangladesh. The workshop was organized by WSP-SAin partnership with WAB, VERC and RuralDevelopment Academy, Bangladesh. Mr D.K. Nath,Secretary, Rural Development and CooperativesDivision, Government of Bangladesh inauguratedthe workshop.

The workshop was facilitated by Mr Kamal KarThe workshop was facilitated by Mr Kamal KarThe workshop was facilitated by Mr Kamal KarThe workshop was facilitated by Mr Kamal KarThe workshop was facilitated by Mr Kamal Kar,,,,,Participatory Development ConsultantParticipatory Development ConsultantParticipatory Development ConsultantParticipatory Development ConsultantParticipatory Development Consultant

What is 100 percent sanitation?100 percent sanitation or total sanitation goes beyondthe installation of latrines and tubewells. It meansbreaking the fecal-oral chain by encouragingcommunities to change existing habits and behaviorpatterns by using and maintaining hygienic latrines,washing hands, keeping food and water covered, usingsafe water and maintaining a clean environment. Thesuccess of this approach depends on the participationof every member of the village, and making people seethemselves as a community where every member’sbehavior affects the others. This approach tries toinfluence household behavior and make it consistentwith community goals of good health and safe water.

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Is subsidy aprimary requirement?

A unique feature of this model is that this change hasbeen triggered without any subsidy. In fact, it is believedthat subsidies would distort incentives and adversely affectthe potential of communities to achieve self-reliance.Motivating communities to change sanitation practicesrather than the provision of hardware and financial supportis the focus of this approach.

Households that cannot afford to make the financialinvestment have not been excluded as the communityrecognizes that total sanitation depends on theparticipation of every member of the community. In manyvillages communities have successfully managed a systemof cross-subsidies to ensure that every member has accessto sanitation facilities.

Financing latrines has not been an issue for lessaffluent households as self-help groups provide a source forfunding hardware through micro-credit schemes. Instead ofa fiscal subsidy, access to credit is assured. The willingnessto take a loan is a test of genuine demand that is notavailable in the subsidy approach.

S A menu of optionsThe traditional approach has been to provide a few

‘acceptable’ technological options, such as the twin-pitoption in the Indian context. In a move away from thisapproach where a single latrine design is advocated, awide range of hardware options have been made availableand users can choose an appropriate model based onaffordability. Local innovations are actively encouraged toexpand the range of options available. Members are

supported to select the option best suited to theirindividual needs and budgets.

S Catalysts for changeRecognizing that field workers are frontline staff,

VERC has helped to form community-based rural sanitationengineering groups made up of individuals who have comeup with innovative sanitation technology designs. Thesegroups act as community catalysts in carrying forward theprocess. VERC has facilitated these ‘engineers’ to generateat least 10 indigenous designs within certain technicalparameters. These field workers and village engineers helpto promote effective sanitation options by demonstratingmodels, providing advice and supporting people duringlatrine selection and installation. Households hire theseengineers for the construction of toilets. In addition totechnological support, VERC has provided support bysetting up Village Sanitation Centers with local masonswho are trained in good quality latrine construction.

Upscaling the initiativeTo ensure sustainability and easier replication, VERC

has organized hands-on orientation on PRA techniques forcommittee members so that they can facilitate othercommunities in adopting this approach. It is expected thatthis will reduce dependence on NGO support and ensuresustainability. Communities have facilitated exchanges andcross-visits among several villages. As a result of theseefforts the process which had started in one habitation hasspread over five sub-divisions in Bangladesh. However,finding the mechanism and the means by which thesesuccesses can be replicated across the country remainselusive. The role of local governments in promoting thiscross-learning is an avenue that needs to be explored.

PRA Tool Objective

Transect walk To ‘ignite’ awareness of the current situation and build rapportwith the community

Social mapping To establish the number of households, inhabitants, latrines andwater points

Problem tree/Cause-effect analysis To identify the effects of the current pattern of latrine use

Visits to defecation sites To observe the current situation with regard to the dispersal offeces due to open defecation

Seasonality trend analysis To analyze the availability of water and the sources usedthroughout the year

Well-being ranking To establish the economic status of households

Venn diagrams To identify key people who have influence in the community

Table 1: Entry PRA tools used by VERC

Source: VERC

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KEY LESSONSFROM THIS APPROACH

The main driving forces behind the paradigm shift inmindset and behavior were identified during the field visitand group discussions.S A key feature is empowering communities to helpthemselves, and a shift from technocratic and financialpatronage to participatory approaches. This requires achange in approach from training and management to anemphasis on empowering communities and strengtheninglocal institutions.S One of the most noteworthy features is the absence ofhousehold-level subsidy. Unlike earlier approaches, theprocess of behavior change was initiated without externalfinancial support to households. Financing latrineconstruction has not been an issue. Communities haverecognized that total sanitation can only be achieved ifevery member of the community participates. Communitieshave arranged cross-subsidies to make sanitation facilitiesaccessible to weaker groups. The formation of self-helpgroups and micro-credit schemes provide a source offunding and recognizes the public good dimension ofprivate behavior.S The approach recognizes that there is a public gooddimension to what is generally considered a private good.In this case, the expenditure on this public good is beingmet by NGOs and donors. Clearly, to enable scaling-up,the expenditure on the public good aspect should be metby the local government with NGOs playing the role ofcommunity mobilization and facilitating and supportingthe implementation on the ground. Focusing on triggeringa change within local government officials and supportingtheir capacity to manage the process of catalyzing100 percent sanitation may be an important channel thatneeds to be explored.S By creating awareness within communities, a change inmindset is achieved. The shift from open defecation tofixed spot defecation is irreversible as, in addition to healthbenefits, it provides privacy and safety and people arelikely to find it difficult to regress to traditional practices.The latter are more immediately obvious to users than thehealth benefits that are likely to be experienced over thelonger term.S A single-model ‘blueprint’ approach for technology hadnot been advocated. Rather, a variety of innovativetechnology options were available on the ground. Evenfamilies with limited funds could opt for appropriateoptions, depending on affordability, with models rangingfrom as little as 70 Taka (US $1.5)1 to more sophisticatedmodels at 8,000 Taka (US $143). Households were atdifferent levels of the sanitation ladder, and many hadmade a gradual shift from a low-cost temporary structure toa permanent structure. Families were proud to show offtheir latrines, which are viewed as status symbols. Unlikeearlier initiatives, the model does not focus on every

household building its own latrine. In many villageslatrines are being shared between a few families.Typically, a richer household allows access to members ofa poorer household.S The effect of peer pressure and monitoring systems hasensured sustainability. Innovative systems were being usedto police open defecation, for instance through watchmenand children’s groups. The refusal of families to allow theirdaughters to marry into households without sanitationsystems is an effective incentive for encouraging totalsanitation practices.S The variety of sanitation equipment on sale in theroadside shops indicates that there is a significant demandin the area. The introduction of cheaper materials and ofmultiple technology options has increased the demand, asa growing number of users are able to enter the market.As a result, no special efforts have had to be made tocreate the supply chain. The growing demand haslargely been met by private producers of pit latrinesand related equipment.S Clearly there are conditions under which demand forsanitation exists or can be generated. Linkages with otherinfrastructure has an influencing factor for change insanitation practices. The source and availability of watersupply is one such influencing factor which catalyzesdemand for household toilets.

While sanitation provides the means by which thelessons of hygiene education can put into practice, and theenvironment for improved health through changedpersonal behavior, both require adequate water foreffective use. For example, hand-washing after defecation

1 US$1 = 56 Taka (February 2002)

‘We did itourselves!’One of the resultsof 100 percentsanitation hasbeen the declinein fecal-oral-related diseases.The new behaviorpatterns haveresulted in raisinglevels of self-esteem andcommunities nowtake pride indeclaring thatthey ‘are 100percent sanitized’.

The village signboard announces “No one defecates inthe open in our community”, and people state,“Neither we nor our children will revert to opendefecation, we have the knowledge and our localtechnology and have changed our behavior forever.”

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requires sufficient quantity of water, as does the act offlushing after defecation.

Defecation is traditionally a pre-dawn or nightlyactivity. Street lights in villages are preventing people fromdefecating in open and indirectly generates demand forprivacy and brings in change in private behavior.

THE TOTAL SANITATIONCAMPAIGN IN INDIA

Recognizing the urgent need to increase theeffectiveness of sanitation facilities, the Total SanitationCampaign (TSC) under the Restructured CentrallySponsored Rural Sanitation Program was launched in 1999.The campaign has been integrated with the sector reformprogram and is now being managed by the Rajiv GandhiNational Drinking Water Mission. The campaign is beingpiloted in 200 districts, of which 63 are sector reformdistricts. The total project cost has been estimated atRs 605 crore (US$126 million)2 , to be undertaken on acost-sharing basis.

Salient features of the Total Sanitation CampaignS A shift from state-wise allocation of funds to ademand-driven approachS Greater household involvementS Community-led and people-centered schemesS The district is the implementing unitS A flexible menu of options which is location-specific andbased on customer preference and can be upgradeddepending on requirement and finances.

2 US$1 = Rs 48 (February 2002)

S A shift from a high subsidy to a low subsidy regime,subsidy has been reduced from Rs 2,000 (US$ 41.6) perunit to Rs 500 (US$ 10.4) for user householdsS Disbursement of subsidies will be monitored and linkedwith the progress of constructionS Beneficiaries will meet the maintenance costs ofindividual household latrinesS Focus on the software aspects of sanitation coverageS IEC campaigns to create a demand for improvedsanitation servicesS Development of back-up services at the communitylevel, such as production centersS Promotes the role of NGOs, community-basedorganizations, local groups and local governments inpromoting sanitation coverage.

Program Features Standard Approach VERC’s Approach

Focus Latrine-building Eliminating open defecation

Technology One fixed model, menu of Menu of options demonstratedoptions mentioned

Motivation/ignition Focus on making use Self-realization of fecal-oral linksof subsidy

IEC Focus on sessions, materials, Focus on individual counseling,delivery of messages pack need-based messages

Time frame Infinite Short time span

Financial aspects Subsidy-driven No subsidy, demand-driven

Results 20-40 percent latrines built No more open defecation

Impact Negligible at high-cost High at low-cost

A comparison of VERC’s model and the standard approach to sanitation

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Technical

Formation of villageengineering groups

Plastic cylindricalsocket replacing thepresent conical socketin tubewell repairs

Re-installable ringsin single-ring latrine

Homemade offsetpit (tin pan)

Homemade earthenpit with bamboogas pipe

Bamboo lininginside latrine pit

Use of the single-ringpit latrine

Rexin seal pit latrine

Earthen pit/bamboogas pipe/RCC platform

Use of rickshawvan body as alatrine platform

Use of earthen pots inlatrine construction

Use of earthen potpitcher in latrineconstruction

Demonstration of theVERC latrine model invillages with price tagfor each model

Social

Imposition ofcommunity penaltyfor open defecation

Children’s street playsto create awareness

Wedding gift of aring slab by ahealth motivator

Involving children inraising awarenessabout open defecation

Conditions imposedby the WATSANcommittee forspeedy coverage

WATSAN committeecollects communitycontributions andkeeps it in their ownbank account forlatrine maintenance

Community pressureon families unwillingto use latrines

Using religious leadersas pressure groups

Organizing publicprocessions withslogans

Economic

Land owners donatingland to the poor forlatrine construction

Using stipend moneyreceived from trainingto purchase latrine slab

Formation of primarygroups to savemoney for latrineslab purchase

WATSAN committeekeeps a watch atnight to preventopen defecation

Richer familiesdonating bamboo,wood and straw tothe poor for latrine

Monitoring/Evaluation

Monitoring chartdeveloped based onthe community’s inputs

The communityplans and decidesmonitoring targets(each person monitors3-10 families)

2-3 members monitorthe cleanliness of theentire village

Management

Flexibility in funduse for latrineconstruction andthe creation ofwater facilities

Lighting facilities inthe mango orchardto prevent opendefecation at night

Institutional

WATSAN committeeresponsible forcollecting moneyfrom members andpurchasing,collecting anddistributing ring slabsto individuals

Savings by smallwomen’s groups anda lottery each weekto enable one familyto purchase a latrine

Mass sweeping ofthe village by thecommunity, includingchildren

Local knowledge + Local materials = Local solutions

Source: Mr Kamal Kar, Participatory Development Consultant

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Relying primarily on subsidyS Generally directed at householdsS Poor incentives/distortionsS May not put sufficient emphasis on collective behavior

Relying primarily on motivationS Who should finance the costs of creating awareness?S Can this be replicated?S What should be the focus of the message: health, privacy and security, especially of women and children?S At whom should the message be focused on? Schools, village members, local government officials?

A combination of fiscal incentives and motivationS Who should finance the awareness-building costs?S What should be the message?S Who should receive the subsidy/reward? Local governments and communities rather than individuals?S What should be the design of the fiscal instrument?S Role of structural factors? For example, is a system of running water needed?

Does the level of income matter; is sanitation a luxury good?S A more pessimist view of direct intervention. This view assumes that sanitation behavior follows the income path ofhouseholds and that general economic growth and change in economic systems rather than direct intervention lead tomore investment on sanitation at the household level.

VOICES...My visit to the villages in Bangladesh resulted in a

paradigm shift in my thinking on sanitation...No subsidieswere given and the villagers were convinced of thenecessity of toilets by what could be termed as ‘shocktreatment’...The villagers were very proud of their toilets,and lost all embarrassment in showing them. They hadproudly put up a board stating that no person defecates inpublic. Land was donated to build toilets.

Sumit Mullick, Divisional CommissionerSumit Mullick, Divisional CommissionerSumit Mullick, Divisional CommissionerSumit Mullick, Divisional CommissionerSumit Mullick, Divisional Commissioner,,,,,Amravati Division, AmravatiAmravati Division, AmravatiAmravati Division, AmravatiAmravati Division, AmravatiAmravati Division, Amravati

The importance given to sanitation can be gauged by thefact that people take pride in showing their toilets ratherthen any other portion of their house. Toilets areconsidered as status symbols regardless of the costinvolved in constructing them.

Asheesh Sharma, Chief Executive OfficerAsheesh Sharma, Chief Executive OfficerAsheesh Sharma, Chief Executive OfficerAsheesh Sharma, Chief Executive OfficerAsheesh Sharma, Chief Executive Officer,,,,,Alibag ZP – Dist. RaigadAlibag ZP – Dist. RaigadAlibag ZP – Dist. RaigadAlibag ZP – Dist. RaigadAlibag ZP – Dist. Raigad

The involvement of people in identifying their sanitationproblems, planning to overcome these deficiencies,implementation, monitoring, follow-up, and approachsustainability are eye-opening features.

PPPPP. Dur. Dur. Dur. Dur. Durga Prasad, Addl. Executive Secretaryga Prasad, Addl. Executive Secretaryga Prasad, Addl. Executive Secretaryga Prasad, Addl. Executive Secretaryga Prasad, Addl. Executive Secretary,,,,,Chittoor WChittoor WChittoor WChittoor WChittoor Water and Sanitation Societyater and Sanitation Societyater and Sanitation Societyater and Sanitation Societyater and Sanitation Society, Dist. Chittoor, Dist. Chittoor, Dist. Chittoor, Dist. Chittoor, Dist. Chittoor

Even though I am a social worker and activist working inthe field of rural development, I had not taken the issue ofsanitation seriously till I was exposed to the WAB-VERCinitiative in Bangladesh by WSP.

Another important outcome of this visit is that nowboth the CEO (of the ZP) and I speak the same languageand share a common objective.

VVVVVaishali Patil, Ankur Taishali Patil, Ankur Taishali Patil, Ankur Taishali Patil, Ankur Taishali Patil, Ankur Trust, Trust, Trust, Trust, Trust, Taluka Pen, District Raigarhaluka Pen, District Raigarhaluka Pen, District Raigarhaluka Pen, District Raigarhaluka Pen, District Raigarh

Contrasting approaches to sanitation and related issues

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THE ROAD AHEADIt is now increasingly becoming clear that greater

awareness and understanding of the issues and a change inmindsets is critical for moving people from traditional(open-defecation) sanitation practices to more hygienic(single-point defecation) practices. In fact it is probablyalso the case that subsidies (for building latrines) directedat individuals are unlikely to lead to the behavioralchanges that they hope to motivate. The hundreds ofthousands of latrines around the country that are beingused for various purposes other than the one for which theywere built, bear testimony to this.

Although the Government’s Total Sanitation Campaign(TSC) now includes a sizable software and IEC componentindividual subsidies, albeit lower than before, continue toform an integral part of the approach. It may well be thecase that a more innovative subsidy design may be moreeffective in achieving the goal of 100 percent sanitizedvillages. International experience states that subsidies canbe targeted at technical assistance, awareness promotionand local enterprise development in place of subsidizedconstruction. There is growing evidence from differentinitiatives in the country to suggest that fiscal supportdirected at local governments and communities, togetherwith motivation, might provide the answer to this complexand vexed problem. Careful thinking on the design of suchan approach is clearly the first step on what promises to bea long and difficult road ahead. In Bangladesh, forexample, the Government of Bangladesh could build onthe existing field experience by developing a fiscal grantwhich is allocated to local governments on a competitivebasis against certain milestones for achieving 100 percentsanitation. A portion of the grant could be used to supportcross-learning between communities and localgovernments and pay for the capacity support offered byNGOs and others.

To ensure sustainability and for scale-up, localgovernment institutions and stakeholders must be involved.VERC has been able to introduce the approach directly inthose areas where there is a strong presence of VERC.Since the approach of total sanitation is established, it iscrucial to involve the local government for widerreplicability and trade-offs are in the best interests of thelarger communities. The public dimension of sanitationpractice is best addressed when local governments areinvolved and when communities interface with localgovernment for sensible decision-making.

Empowering communities, building the capacity oflocal governments and NGOs are critical elements of asuccessful demand-responsive approach to sanitation.

Inspired by the Bangladesh experience, participantsexpressed an interest in taking the process forward. Thefollowing were identified as important requirements foreffective implementation of the TSC:S Build the capacity of local governments andsupport organizations

S Design appropriate models/strategies for implementationS Support pilots and demonstration projects in selectdistricts and StatesS Support policy debate at the State-level to scale-upthe approachS Facilitate regional exchanges, exposure to bestpractices, knowledge-sharing, forging partnerships withWaterAid and its partners, and direct technical assistancein implementation.

WSP-SA will provide linkages and technical assistancefor capacity-building, model development, exposure visitsand workshops/training to facilitate the implementation oftotal sanitation.

A new beginning...In Tiruchillapally district in Tamil Nadu, SCOPE, alocal NGO supported by WaterAid India, adapted theVERC model and motivated the communities ofChatrapatti village for sanitation promotion withoutsubsidies. In this small village of 25 households, toiletswere constructed in all the households within 24hours! This was done in spite of the fact that severalfamilies qualified for a subsidy from the Government.The community has agreed that the subsidy due to theindividuals put into a village development fund. Thefund will be managed by the community for commonvillage development activities.

Inspired by the Bangladesh experience,government officials have motivated individuals inAmbeghar village in Raigad district of Maharashtra toconstruct latrines at a cost of Rs 500-600($10.41-$12.5) each, successfully demonstrating thepossibility of implementing low cost options. AnkurTrust, an NGO working in the area, is bringingresidents from Yashwantkar village from Maharashtraon a cross-visit to see these latrines.

References1. Village Education Resource Centre (2002), ShiftingMillions from Open Defecation to Hygienic Latrines,Process Documentation of 100 PercentSanitation Approach2. Kamal Kar, Shyamal K. Saha, Adil Ahmed, TowhidaYesmin (2000) Self-mobilized Water and SanitationProgramme in Bangladesh, A CommunityEmpowerment Approach3. Timothy J Claydon, (2002) Paper presented at theRegional Workshop on People’s Initiative to TotalSanitation, Bogra, Bangladesh4. Rajiv Gandhi National Drinking Water Mission (1999)Guidelines for Restructured Centrally Sponsored RuralSanitation Programme

For more information on the Rural Think Tank, please contact:jal manthan: a rural think tankc/o India Country Team, Water and Sanitation Program-South Asia55 Lodi Estate, New Delhi 110 003Tel: 469 0488/89 Fax: 462 8250 e-mail: wspsa@worldbank.orgwww.wsp.org

The Jal Manthan (meaning ‘churning of water’ in Hindi) is athink tank on rural water supply and sanitation. It is a travelling forum thataims to be an open network encouraging frank and informal policy-leveldialogue between sector practitioners and professionals. Prior to this, fourJal Manthans have been held.

April 2002Created by Write MediaE-mail: writemedia@vsnl.comPrinted at Thomson Press

The Water and Sanitation Program is an international partnership to help the poor gain sustained access to improved water supply and sanitation services.The Program’s funding partners are the Governments of Australia, Belgium, Canada, Denmark, Germany, Italy, Japan, Luxembourg, the Netherlands,Norway, Sweden, Switzerland, and the United Kingdom; the United Nations Development Programme, and The World Bank.

Village Education Resource CenterVillage Education Resource Center (VERC) wasestablished in 1977. Its mission is to establish andpromote a dynamic participatory sustainable processfor human development through projectimplementation. In the field of WATSAN, VERC’s visionis to establish new, cost-efficient and appropriatetechnology in the community and to address the needsof people, particularly those living in remote areas.

E-mail: verc@bangla.net

u Jal Manthan 1: RestructuringPHEDs/Water Boards: Why andHow? Delhi, May 1999u Jal Manthan 2: DecentralizedRural Water Supply and SanitationManagement. Cochin, July 1999u Jal Manthan 3: State WaterMinister’s Workshop. Cochin,December 1999u Jal Manthan 4: LaunchingSector Reforms

(Proceedings of the above work-shops can be obtained from theWater and Sanitation Program)

jal manthan jal manthanWaterAidWaterAid is an independent charity working withpeople in 15 countries in Africa and Asia to improvetheir quality of life by bringing about an improvementin the water and sanitation sector by using local skillsand technologies. WaterAid works with organizationsin each of these countries and aims to influencegovernment bodies, local communities and otherNGOs in order to achieve its vision of a worldwhere everyone has access to safe water andeffective sanitation.

www.wateraid.org.uk

GOVERNMENT OF INDIAMr. A.K. Goswami Secretary, Department of DrinkingWater Supply, Ministry of Rural Development, Governmentof India, Room # 247, ‘A’ Wing, Nirman Bhawan,New Delhi 110 011, Tel: 011-3010245/0207,Fax: 011-3012715, E-mail: secyws@nb.nic.inMr. Kumar Alok Deputy Secretary, Government of India,Rajiv Gandhi National Drinking Water Mission, Departmentof Drinking Water Supply, Ministry of Rural Development,9th Floor, Paryavaran Bhawan, CGO Complex, Lodi Road,New Delhi 110 003, Tel: 011-4364518, Fax: 011-4364113

ANDHRA PRADESHGOVERNMENT OF ANDHRA PRADESHMr. Jayesh Ranjan Project Director, DPIP & ExecutiveSecretary, CWSS Collectorate, Chittoor 517 002,Tel/Fax: 08572-41678, E-mail: jayesh_ranjan@hotmail.comMr. Durga Prasad Assistant Executive Secretary,CWSS, Chittoor, Tel/Fax: 08572-35748

NGOSMr. Praganda Busi Development Inst. for SustainableHabitat (DISHA), 6-1-165, Municipal Quarters,Nalgonda District 508 001, Tel/Fax: 08684-54000,E-mail: anandp_anand@rediff.com

KERALAGOVERNMENT OF KERALAMr. A. Nazeemudeen Additional DevelopmentCommissioner, Commission of Rural Development,L.M.S. Compound, Thiruvananthapuram,Kerala 695 033, Fax: 0471-337004

NGOSMr. C. Ramakrishnan Kerala Shastra Sahitya Parishad,Palat House, Pilicode, Kasaragod, District Unit,Kasaragod, Tel: 0499-761774, Fax: 0471-337004Dr. Babu Ambat Director, Centre for EnvironmentDevelopment, T.C. 24/547, C.V. Raman Pilla Road,Thycaud P.O. Thiruvanthapuram, Kerala,Tel: 0471-338022/338022, Fax: 0471-337004Ms. Kochurani Mathews Director – Health &Environmental Sanitation, Socio-Economic UnitFoundation, Sarvodayapuram, Kattoor P.O., Alapuzha,Tel: 0477-259218, E-mail: seu@satyam.net.in

MAHARASHTRAGOVERNMENT OF MAHARASHTRAMr. B.C. Khatua Secretary to Government ofMaharashtra, Water Supply and Sanitation Department,R.N. 530, 5th Floor (Main) Mantralaya, Nariman Point,Mumbai 400 032, Tel: 022-2885144,Fax: 022-2828129, E-mail: bckhatua@rediffmail.com

Fifth Jal Manthan: List of Participants

Rural Sanitation Workshop: ‘Community Initiatives in Rural Sanitation’,February 12-15, 2002, Bogra, Dhaka, Bangladesh

Mr. Asheesh Sharma Chief Executive Officer,Raigad Zilla Parishad, Alibagh, Tel/Fax: 02141-22024,E-mail: asheeshsharma@hotmail.comMr. Bapurao Govindrao Dahikamble DistrictCo-ordinator, Raigad Rural Water Supply & SanitationMission, Raigad Zilla Parishad, Alibagh,Tel: 02141-22232Ms. Vinita Singhal Chief Executive Officer,Amravati Zilla Parishad, Amravati, Tel/Fax: 0721- 662926Mr. Sumit Mullick Divisional Commissioner,Amravati Division, Amravati, Tel/Fax: 0721-662926,E-mail: mullick@nagpur.dot.net.inMr. Sunil Gedam Deputy Chief Executive Officer &Sanitation In-charge, Amravati Zilla Parishad, Amravati,Tel/Fax: 0721-662926

NGOSMs. Vaishali Patil Ankur Trust, Shankar Rama Complex,Chinchpada Road, Pen. Dist. Raigad (Near Govt.Hospital), Raigad, Tel: 02143-53691,E-mail: ankur_trust@yahoo.co.inMr. Rakesh Thakur President, Sahyog Youth WelfareSociety, 8/1, Tope Nagar, Amravati 444 601,Tel/Fax: 0721-511472/572025,982222293Mr. Prashant Narode Sanskar Vahini, Gram VikasSikshan Sanstha, 44 Kolhatkar Colony, Shilangan Road,Amravati, Tel: 0721-574378, Fax: 0721-550178,E-mail: sanskar93@rediffmail.com

TAMIL NADUGOVERNMENT OF TAMIL NADUMr. S. Ayyar Director – Rural Development,Fort St. George, Government of Tamil Nadu, Secretariat,Chennai 600 009, Tel: 044-4323794, Fax: 044-4343205Mr. Gagandeep Singh Bedi Collector, KanyakumariDistrict Nagercoil, Tamil Nadu, Tel/Fax: 04652-233285,09842133285, E-mail: collrkkm@tn.nic.inMr. K. Ramamurthy Additional Director,Directorate of Rural Development, Panagal Building,Saidapet, Chennai 600 015, Tel: 044-4982543,Fax: 044-4343205Mr. T. Murugan Project Officer, DRDA, Vellore,Tamil Nadu 632 009, Tel: 0416-253334,Fax: 0416-258348

NGOSMr. L.S. Anthony Samy Chief, ‘BLESS’ MarketCommittee Campus, Salakarai, Cuddalore Port, TamilNadu, Tel: 04142-327254, 9842335775,E-mail: ls_antony@hotmail.comMr. M. Subburaman Chief, SCOPE, TiruchirapalliDistrict, Tamil Nadu, Tel: 0431-422276, Fax: 0431-422185

GOVERNMENT OF BANGLADESHMr. Dhiraj Kumar Nath Secretary, Rural Developmentand Cooperatives Division, Ministry of Local Government,Rural Dev. and Cooperatives, Bhaban-7, 6th floor,Room 632, Bangladesh Secretariat, Dhaka,Tel: 880-2-8618961 (PS-Shah Alam), 8611818 (P.O.),Fax: 880-2-8612284

BANGLADESHMr. Alastair Larsson BBC Reporter, Tel: 9130996-7Ms. Parveen Ahmed Associate Press,E-mail: pahned@ap.orgMr. Abir Abdullah DRIK Picture Library Ltd.,E-mail: studio@drik.netMr. Md. Bodiuzzaman Sr. Regional Manager, PRACHealth Center, Mohakhali, Dhaka, Tel: 880-2-9881265

DFIDHouse-42, Road-28, Gulshan-1, Dhaka-1212,Tel: 880-2-8810904, 8822589E-mail: r_dyer@dfid.gov.ukMr. Rodney Dyer Manager – Water and Sanitation

UNICEFBSL Office Complex (3rd Floor), Hotel Sheraton AnnexBuilding, 1 Minto Road, Dhaka,Tel: (880-2) 9336701-20, Fax: 9335641-2Ms. Joy Morgan Program AdviserMs. Afroza Ahmed Program Officer

VILLAGE EDUCATION RESOURCE CENTRE (VERC)Anandapur, Savar, Dhaka, Tel: (880-2) 7710779,7710412, 017-404519, Fax: 8113095,E-mail: verc@bangla.netMr. Yakub Hossain Deputy DirectorMr. Masud Hasan Associate CoordinatorMr. Shaikh A. Halim Executive DirectorMr. Sulash Ch. Shaha Coordinator of TrainingMr. Md. Quamrul Islam Hygiene Promotion ManagerMr. Tapan Kumar Saha Regional CoordinatorMr. Paritosh Chandra Sarker Project EngineerMr. Md. Rezaul Huda Asst. Project CoordinatorMr. Md. Rabiul Islam Asst. Project EngineerMr. Md. Asraful Islam Health MotivatorMr. Md. Rabiullah Rabi Asst. Project CoordinatorMr. Md. Yousuf Ali Health MotivatorMs. Momena Khatun Health MotivatorMs. Bina Gazi Health MotivatorMr. Abdul Khaleque Photographer

RURAL DEVELOPMENT ACADEMY (RDA)Sherpur, BOGRA, Tel: (880-051) 736601,Fax: 051-73603Mr. M.A. Matin Joint DirectorMr. Mahmud Hossain Khan Deputy DirectorMr. Nazrul Islam Khan Deputy Director

Mr. Md. Habibur Rahman Deputy DirectorMr. H.M. Alauddin Deputy DirectorMr. Md. Belal Uddin Medical OfficerMr. J. Belal BRAC

NGO FORUM FOR DRINKINGWATER SUPPLY AND SANITATION4/6, Block E Lalmatia, Dhaka 1207,Tel: 8119597, 8119599, Fax: 880-2-8117924Mr. Abdus Salam Field Coordinator

WATERAID-BANGLADESHHouse-123, Road-4, Banani, Dhaka 1213,Tel: (880-2) 8815757, 8818521, Fax: 8815757,E-mail: wateraid@dhaka.agni.comMr. Timothy Claydon Country DirectorMr. Adil Ahmed Shafi CMTMs. Rokeya Ahmed Program Coordinator – AdvocacyMr. Khandker Zakir Hossain Project DirectorMr. Liakat Ali WSHP CoordinatorMs. Kabita Yesmin Program OfficerMs. Nargis Akter (Shuma) Program EngineerMr. Morag Baird EngineerMr. Adil Ahmed

WATERAID-INDIAMr. Shunmuga Paramasivan Country Representative,WaterAid India, 22 A 1st Street, New Colony,Mannarpurum, Thiruchirappali 620020, Tamil Nadu,Tel: 0431-422276, Fax: 0431-422185,E-mail: waindia@satyam.net.in ortry_waindia@sancharnet.inMr. A. Kalimuthu WaterAid India, Mannarpurum,Thiruchirappali 620020, Tamil Nadu,Tel: 0431-422276, Fax: 0431-422185

WATER AND SANITATION PROGRAM-SOUTH ASIA55 Lodi Estate, New Delhi 110 003, Tel: 011-4690488/89, Fax: 011-4628250, E-mail: wspsa@worldbank.orgDr. Junaid Kamal Ahmad Regional Team LeaderDr. Vivek Srivastava Team Leader – India TeamMs. Soma Ghosh Moulik Urban Institutional SpecialistMr. J.V. R. Murthy Sector Reform Coordinator, MumbaiMs. Poonam Chitkara Program AssistantDr. Kamal Kar PRA Development Consultant

WATER AND SANITATION PROGRAM-SOUTH ASIAFlat #03-04, Building A, Priya Prangan, 2 Paribagh,Dhaka 1000, Bangladesh, Tel: (880-2) 8611056-1068,Fax: (880-2) 861-5351, 861-3220,E-mail: wspsa@worldbank.orgMr. K.M. MinnatullahSr. Water and Sanitation Specialist – DhakaMr. Shafiul Azam Water and Sanitation Specialist – DhakaMr. Tanveer Ahsan Urban Specialist – DhakaMr. Waled Mahmud Project Officer