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Chapter-2 Drinking Water and Sanitation Department 2.1 CHAPTER-2 DRINKING WATER AND SANITATION DEPARTMENT 2.1 Total Sanitation Campaign/Nirmal Bharat Abhiyan Executive summary Government of India (GoI) launched in the year 1999 the Total Sanitation Campaign (TSC), a community-led comprehensive programme to ensure sanitation facilities in rural area. To provide a boost to the programme, a post achievement award scheme, the Nirmal Gram Puraskar (NGP) was introduced in 2003 as an incentive scheme for fully sanitized and open-defecation-free Gram Panchayats, blocks and districts. Encouraged by the success of NGP, TSC was renamed as Nirmal Bharat Abhiyan (NBA) with effect from 01 April 2012 with the objective to accelerate the sanitation coverage to achieve the vision of Nirmal Bharat by 2022 with all Gram Panchayats (GPs). The performance audit of the implementation of the Scheme in Jharkhand was conducted between May 2014 and September 2014 covering the period from 2009-10 to 2013-2014 (five years). Some of the major audit findings are discussed below: There were significant delays in setting up of implementing agencies and the institutional arrangement for implementation of TSC/NBA was not in accordance with the prescribed institutional arrangements in the scheme guidelines. (Paragraph 2.1.6) Programme Management Unit (PMU) could utilise only 58 per cent (` 262.65 crore) of total funds available with it (` 449.25 crore) during 2009- 14. Year wise utilisation of funds ranged between 10 and 32 per cent. PMU delayed in release of fund to District Water and Sanitation Missions (DWSMs) by 31 to 226 days. (Paragraphs 2.1.7.1 and 2.1.7.2) PMU fixed targets without required preliminary or baseline survey to identify actual demand/ need of services and infrastructure. Annual Implementation Plans (AIPs) were prepared at district level without any input of GP/Block and thus the basic concept of implementing the Scheme in demand driven approach was defeated. (Paragraphs 2.1.8.1 and 2.1.8.2) During 2009-14, 6.60 lakh of Individual Household Latrines (IHHLs) for Below Poverty Line (BPL) households were constructed, which was 23 per cent of target (28.72 lakh IHHLs). In case of Above Poverty Line (APL) households, the achievement was 1.51 lakh IHHLs (six per cent) against target of 25.74 lakh IHHLs. (Paragraph 2.1.9.1) Only 22 per cent (5.84 lakh) of BPL households and seven per cent (1.75 lakh) of APL households had functional toilets as of March 2014. Further, during the baseline survey of 2012-13, 8.99 lakh IHHLs in BPL households were identified as defunct. Thus, incentive payment of at least ` 44.93 crore on these defunct toilets rendered wasteful. (Paragraph 2.1.9.1) Audit Report on General, Social and Economic (Non-PSUs) Sectors for the year ended 31 March 2014 PMU could perform only 18 per cent of planned Information, Education and Communication (IEC) activities during 2012-14. (Paragraph 2.1.11) Gram Panchayats were awarded/identified for Nirmal Gram Puraskar without them actually achieving complete sanitation coverage. (Paragraph 2.1.14) There was deviation from prescribed accounting and auditing procedures which led to discrepancies between reported and actual figures. An advance of ` 4.34 crore was outstanding with the different officials from 16 to 100 months. (Paragraphs 2.1.15.1 and 2.1.15.2) There was shortage in conduct of prescribed meetings by state to village level implementing bodies. Required social audit was not conducted to ensure involvement of community in implementation of NBA. The State Review Mission was yet to review the impact of TSC/NBA in the State. (Paragraphs 2.1.17.1, 2.1.17.2 and 2.1.17.4) 2.1.1 Introduction Government of India (GoI) launched in the year 1999 the Total Sanitation Campaign (TSC), a community-led comprehensive programme to ensure sanitation facilities in rural areas with broader goal to eradicate the practice of open defecation. The objective of TSC was to accelerate the sanitation coverage in the rural areas to access toilets to all by 2017. TSC was demand- driven and gives emphasis on information, education and communication (IEC), capacity building and hygiene education for effective behaviour change. The key intervention areas are Individual household latrines (IHHL), School toilets, Community sanitary complex (CSC), Anganwadi toilets supported by Rural Sanitary Marts (RSMs) and Production Centres (PCs). To provide a boost to the programme, a post achievement award scheme, the Nirmal Gram Puraskar (NGP) was introduced in 2003 as an incentive scheme for fully sanitised and open-defecation-free Gram Panchayats, blocks and districts. Encouraged by the success of NGP, the TSC was renamed as Nirmal Bharat Abhiyan (NBA) with effect from 01 April 2012. NBA envisages covering the entire community for saturated outcomes with a view to create Nirmal Gram Panchayats. The objective of NBA was to accelerate the sanitation coverage in the rural areas so as to comprehensively cover the rural community to achieve the vision of Nirmal Bharat by 2022 with all Gram Panchayats in the country attaining Nirmal status and to cover the remaining schools not covered under Sarva Shiksha Abhiyan (SSA) and Anganwadi Centres. 2.1.2 Organisational set up Drinking Water and Sanitation Department (DWSD), Government of Jharkhand (GoJ) is the Nodal Department for implementation of TSC/NBA in the State. For implementation of TSC/NBA, Programme Management Unit (PMU), a registered society, was constituted in July 2004. Secretary, DWSD is 8 Chapter-2: Performance Audit the head of PMU and is assisted by the Chief Engineer cum Executive Director (CEED), PMU. District Water and Sanitation Missions (DWSMs) are responsible for implementation of TSC/NBA at district level. Pramukh, Zila Parishad is the Chairman of DWSM who is assisted by Deputy Commissioner (Acting Chairman) and Member Secretary cum Executive Engineer, DWS Divisions. Block Water and Sanitation Committees (BWSCs) headed by Prakhand Pramukhs, Gram Panchayat Water and Sanitation Committees (GPWSCs) and Village Water and Sanitation Committees (VWSCs) headed by Mukhiyas of Gram Panchayats (GPs) implement the TSC/NBA at block, GP and village levels. 2.1.3 Audit Objectives The performance audit of NBA was conducted to assess whether: the planning process was effective and that funds were released, accounted for and utilised in compliance with scheme guidelines; the selection of beneficiary was transparent and construction/ up-gradation of infrastructure complied with scheme guidelines; the information, education and communication strategy was effective in generation of demand for sanitation; the convergence of NBA with other programmes was effectively achieved; and the monitoring and evaluation of the programme was effective. 2.1.4 Audit Criteria The Audit Criteria were benchmarked against criteria sourced from the following: Guidelines of TSC/NBA issued between 2007 and 2012; IEC guidelines and other notifications, circulars and orders issued by Ministry of Drinking Water and Sanitation (MoDWS), GoI and the State; and, Applicable Financial Rules of the State Government. 2.1.5 Audit Scope and Methodology The Performance Audit of TSC/NBA for the period 2009-10 to 2013-14 was conducted between May and September 2014. Audit was carried out in the offices of PMU, six1 out of 24 DWSMs, 172 out of 74 blocks and 1013 out of 330 GPs. Beneficiary surveys of 1,115 beneficiaries along with physical verification of toilets constructed in 101 test-checked GPs was carried out by 1 Dhanbad, Dumka, Gumla, Garhwa, Ramgarh and Ranchi selected by Probability Proportional to Size With Replacement method with total approved project cost as the size measure. 2 Dhanbad: Baliapur and Govindpur; Dumka: Jama and Jarmundi; Gumla: Bharno, Ghaghra and Gumla; Garhwa: Meral, Majhgaon, Nagar Utari and Garhwa; Ramgarh: Mandu and Patratu and Ranchi: Chanho, Mandar, Namkum and Silli selected by Systematic Random Sampling without Replacement method. 3 Dhanbad: 15, Dumka: 13, Gumla: 14, Garhwa: 19, Ramgarh: 20 and Ranchi: 20 selected by Systematic Random Sampling without Replacement method. 9 Audit Report on General, Social and Economic (Non-PSUs) Sectors for the year ended 31 March 2014 joint team (members of Audit team and officials/representatives of implementing agencies). An entry conference was held with CEED, PMU in May 2014 in which audit objectives, scope and methodology and sample were discussed. To discuss audit findings and recommendations, an exit conference was held with the Secretary, DWSD in February 2015. The department’s reply to audit observations has been suitably included in this report. Audit findings 2.1.6 Institutional arrangement for scheme implementation According to TSC guidelines, State Water and Sanitation Mission (SWSM), headed by the Chief Secretary/Development Commissioner, was to be formed at state level with representation from different departments to achieve co- ordination and convergence with other Departments/Programmes. Communication and Capacity Development Units (CCDU) was to be established as a support unit of SWSM for planning and implementing IEC/HRD activities along with monitoring and evaluation of TSC at state level. Zila Panchayat (DWSM in the absence of Zila Panchayat) was to implement TSC at district level. NBA guidelines (July 2012) envisaged for four tier implementation mechanism i.e. SWSM and State Scheme Sanctioning Committee (SSSC) at State level; DWSM at district level, Block Resource Centre (BRC) at block level and VWSC at village level. Water and Sanitation Support Organisation (WSSO) to be merged with CCDU; District Programme Management Units (DPMUs) and Block Resource Centres (BRCs) were to be set up as support units of implementing agencies. We observed that: Government of Jharkhand (GoJ) resolved in December 2000 to constitute a State Level Apex Body, headed by the Chief Secretary with members from different departments, to formulate the policies for implementation of TSC. However, the Apex body was not functional during 2009-14.
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