Government of India

A Handbook for
Gram Panchayats
To Help Them Plan, Implement, Operate,
Maintain and Manage Drinking Water Security

Ministry of Rural Development

Department of Drinking Water Supply
 ACKNOWLEDGEMENTS

This Handbook for Gram Panchayats has been prepared by the Water and Sanitation Program
for the Department of Drinking Water Supply, Ministry of Rural Development, Government
of India.

The preparation team consisted of Mr. T.M. Vijay Bhaskar (Joint Secretary), Mr. Bharat Lal
(Director), Dr. K Mazumdar (Deputy Adviser) and Mr. D. Rajasekhar (Deputy Advisor) from
the Department of Drinking Water Supply, Dr. Nicholas Pilgrim (Water and Sanitation Specialist),
Mr. J.V.R. Murty (Water Institutions Development Specialist) and Mrs. Vandana Mehra (Regional
Communications Specialist) from Water and Sanitation Program.

Peer review was provided by Mrs. Rajwant Sandhu (Former Secretary, DDWS), Mr. N.V.V.
Raghava (World Bank) and Mr. Jaipal Singh (Chief Executive Officer, WASMO, Gujarat).

References used in the preparation of the Handbook include:

Water Safety Plans for Rural Water Supply in India (WSP-SA, 2010)
Village Water Safety Planning Training Manual (RMDD, Sikkim and WSP-SA, 2010)
Management of water supply systems by VWSSCs (DANIDA assisted rural drinking water
supply and sanitation project, Karnataka: reference manual issued by Karnataka Rural
Water Supply and Sanitation Agency, 2004)
Tantrik Margadarshika (Technical Guide), Jal Swarajya Project, Water Supply and
Sanitation Department, Government of Maharashtra, 2004
 FOREWORD

The Department of Drinking Water Supply (DDWS), Ministry of Rural Development, Government
of India launched the National Rural Drinking Water Program (NRDWP) on 1st April, 2009. The
NRDWP builds on experiences gained through past efforts by many stakeholders and brings
all existing rural drinking water initiatives under a single program.
The focus of the NRDWP is to ensure drinking water security for all rural citizens in India.
Drinking water security means providing every rural person with enough safe water for drinking,
cooking and other domestic needs at all times and in all situations, including periods of drought
and flood and for livestock.
The people living in rural habitations and villages have an important responsibility to decide
how much water they have and how they use it, and what measures they must take to ensure
drinking water security.The NRDWP guidelines recognize this, and make provisions to
incentivize states to hand over the responsibility for planning, implementing, operating,
maintaining and managing drinking water security to Panchayat Raj Institutions.
The Gram Panchayats (GP), as leaders and representatives of the community, have to take
the lead in achieving this goal of drinking water security.The Gram Panchayats, through Village
Water and Sanitation Committees (VWSCs), have to mobilize communities, educate them and
ensure they get the necessary training and technical support to achieve drinking water security.
The Gram Sabha is the main platform for taking decisions and approving plans.
It is recognized that rural communities cannot achieve all of this on their own. Block Resource
Centers (BRCs), District Water and Sanitation Missions (DWSMs), State Water and Sanitation
Support Organizations (SWSSOs), technical agencies like the Public Health Engineering
Departments (PHEDs), training institutions like the State Institutes for Rural Development
(SIRDs) and local private partners and NGOs all have a critical role in providing support.
In light of the importance of the role of the Gram Panchayats, we are very happy to release this
Handbook for Gram Panchayats, to help them plan, implement, operate, maintain and manage
drinking water security. The Handbook will act as a reference to Gram Panchayats and a
guide for trainers in training the GP/VWSC members. I thank the Water and Sanitation Program
for taking the lead in putting together this first edition of the Handbook.
I hope that the Handbook will be extensively used by all stakeholders, and I look forward to any
suggestions to help improve the Handbook based on field experience.

Arun Kumar Misra

Secretary
Department for Drinking Water and Sanitation (Arun Kumar Misra)
Government of India
INTRODUCTION 4

HOW DO WE GET STARTED? 16

HOW DO WE PREPARE A VILLAGE 26

WATER SECURITY PLAN?

HOW DO WE IMPLEMENT THE PLAN? 42

HOW DO WE OPERATE AND 46

MAINTAIN THE SYSTEM?

HOW DO WE MONITOR OUR 52

PROGRESS AND PERFORMANCE?
 4

INTRODUCTION

What is this handbook for?

The handbook seeks to serve as a quick reference for Gram Panchayats (GP) and Village
Water and Sanitation Committees (VWSC) on how to plan, implement, operate, maintain and
manage water supplies and to ensure their sustainablity.

The handbook is based on the National Rural Drinking Water Progam (NRDWP) guidelines.
The focus of this handbook is to ensure ‘Drinking Water Security’ in rural India.

What is ‘Drinking Water Security’?

It means providing every person in rural India with enough water for drinking, cooking and other
domestic needs at all times and in all situations.

The NRDWP has identified five phases in the journey towards ensuring ‘Drinking Water Security’
in rural India.

Preparatory Phase
How do we get started?

Planning Phase
How do we prepare a Village Water Security Plan?

Implementation Phase
How do we implement the plan?

Operation and Maintenance Phase

How do we operate and maintain the system?

Monitoring, Audit and Reporting Phase

How do we monitor our progress and performance?

Timelines

The Preparatory Phase should take no more than two-three months

Planning should take place each year as a part of the annual district and state planning
process and should take two-three months. Planning can be further divided into:

Investment plans for source sustainability and water supply infrastructure for
submission to the district level

Annual operation and maintenance (O&M) plans including annual budgets at the
village level
 5

Implementation should take six-twelve months

The Operation and Maintenance and Monitoring phases are ongoing activities and will
continue during the lifecycle of the project

Please note: Steps/Phases mentioned in this handbook are indicative in nature and may vary
from state to state.

What are the roles and responsibilities of institutions/persons at the village level?

Gram Sabha (GS): The Gram Sabha comprises of the larger community and is
responsible for decisions like:

How much drinking water do we need?

What are the sources of drinking water available and what are the most
appropriate sources?
What kind of water supply scheme do we want?
How much can each household contribute to building the scheme?
How much should households pay in user fee charges?
What subsidies can be given to Schedule Casts (SCs), Schedule Tribes
(STs) and Below Poverty Line (BPL) households?

The Gram Sabha approves the village plans and reports from the GP/VWSC on financial
accounts, implementation progress and operational performance. It is also an institution
for social audit.
 6

Gram Panchayat (GP): The GP owns/manages the water supply scheme for the
community and is responsible for:

Approving investment plans and getting financing

Approving annual budgets and user fee charges after discussion in the
Gram Sabha
Approving MoU’s/contracts with operators
Co-ordinating with the block and district and Support Organizations like the Block
Resource Centre (BRC)
Hiring trained mechanics for regular preventive maintenance for handpumps
and trained operators for piped water supplies

Sarpanch/President of Gram
Panchayat: As the head of the
village, the Sarpanch has to
provide overall leadership to the
process of ensuring drinking water
security for the villages/
households. The Sarpanch is
responsible for organizing Gram
Sabha with active participation from
all stakeholders, formation of a
capable VWSC, conflict resolution
in a transparent and just manner,
monitoring construction to ensure
quality, monitoring expenditure to
ensure that the funds available are
used in a cost-effective manner,
providing equitable water supply to
all including SCs, STs and poorer
households, co-ordination with the
block/district and Support
Organizations

Panchayat/Ward members::
Panchayat/Ward members are
responsible for providing leadership
at the ward level, building
awareness of ward citizens,
mobilizing active participation of
ward citizens in Gram Sabha
meetings, ensuring that the needs
of all the sections in their wards
have been adequately represented
in the village plans and monitoring
the process of planning,
construction, expenditure and day
to day management of water supply
 7

The Pani Samiti/Village Water and Sanitation Committee (VWSC): The VWSC is a
standing committee of the GP and is responsible for planning, implementation, operation,
maintenance and management of village drinking water security:

Collecting household contributions and user fees

Opening and managing a bank account
Preparing annual budgets and recommendations for user fee charges
Organizing people to be vigilant about not wasting water and keeping
water clean
Ensuring professional support for handpump caretakers and piped water
supply operators:

Ensuring access to spare parts for handpumps and trained mechanics

for regular preventive maintenance
Ensuring the operators handling piped water supply systems are
provided with adequate training to gain the technical and financial skills
needed to do the job

The VWSC is also responsible for procurement of goods and services, supervising contracts
and works and making payments.

The VWSC should comprise of about 6-12 members including:

Members of the GP
Fifty percent women
Representation of SCs, STs and poorer sections of the village
 8

Operators and Handpump Caretakers: The responsibility of operators and handpump

caretakers includes day to day operation and maintenance of the handpump and piped
water supply systems

The Gram Sabha meets at six stages:

Program introduction (understanding the goals of the NRDWP)

VWSC formation
Needs assessment (what do users want?) and Resource mapping (what are our existing
sources and systems?)
Discussion of the Village Water Security Plan and approving it
Discussion of the operating plan (for operation and maintenance), setting up tariffs and
mechanism for collection
Presentation of accounts and social audit
 9

ROLES AND RESPONSIBILITIES OF INSTITUTIONS AT THE VILLAGE LEVEL

Operator/
Gram
Tasks Gram Sabha VWSC Handpump
Panchayat
Caretakers
• Hold meetings for • Meet as • Meet once a month • Attend
Meetings and decisions at key required by • Attend GP/VWSC and
Organization stages law/rules Gram Sabha/GP Gram Sabha
• Nominate and • Appoint the meetings meetings
constitute VWSC VWSC
• Discuss and • Approve • Prepare/update • Plan day to
decide on investment plans (water source day tasks
sustainability plans (physical plan, water safety • Support the
issues like choice and financial) plan, operating VWSC to
of water sources • Apply for plan, service prepare/update
and kind of water financing, improvement plan) plans
supply scheme training and • Collect household
Planning • Discuss and technical contributions
decide on plans assistance • Prepare annual
and budgets • Present annual budgets
• Decide the level of budgets in the • Prepare
contribution by Gram Sabha recommendations
households, • Approve user for user fee charges
connection fee charges • Organize people to
charges, subsidy after discussion not waste water and
for SCs, STs and in the keep it clean
BPL households Gram Sabha
• Approve works • Hire and supervise
contractors
Implementation
• Procure goods, keep
and audit accounts
• Discuss and • Approve water • Buy spare parts • Day to day
decide on user user charges • Hire trained operation and
fees as required after discussion mechanics for maintenance
for O&M and in the handpump • Billing and
subsidy for SCs, Gram Sabha preventative collection
STs and BPL maintenance • Customer
households • Hire specialist services
support for the • Material
Operation and
operator inventory and
Maintenance
• Connections and stock register
disconnections • Water safety by
• Daily financial chlorination or
management alternative
• Authorizing treatment
expenditure • Water quality
• Payments monitoring
• Social audit of • Half yearly • Monthly review of • Weekly review
expenditures review of accounts of sources and
accounts • Bookkeeping systems
• Half yearly • Quarterly reports to • Weekly review
review of Gram Sabha/GP on of cash
Monitoring, budgets implementation collection and
Audit and • Annual reports progress and expenses
Reporting to Block on operational • Weekly report to
implementation performance VWSC on
progress and operational
operational performance
performance • Records and
log book
maintenance
 10

Water quality monitoring and surveillance is a key responsibility of the VWSC. Bacteriological
contamination related to poor sanitation causes diseases such as diarrhea, dysentery, cholera,
typhoid, etc. Excess fluoride and arsenic in groundwater drinking sources has given rise to
crippling diseases such as fluorosis and arsenical dermatitis. The VWSC must ensure that
regular sampling and analysis takes place using field test kits and district and sub-divisional
district testing laboratories.
The VWSC’s responsibilities include maintenance of the field test kits (replacement of used
materials) and meeting the expenses of a nominated grass roots worker (VWSC member) as
well as the costs of laboratory tests. The VWSC should liaison with Primary Health Centres
and NRHM workers (ASHA) to monitor incidence of diseases relating to water (roles and
responsibilities of the VWSC member and ASHA are given in the Table in this section). The
district and sub-divisional water testing laboratories should have facilities to test:
Ph
Total hardness
Iron
Chlorine demand
Residual Chlorine
Nitrate
Fluoride and Arsenic (where it is a known hazard)
Bacteriological analysis
In order to address water quality problems, the VWSC must prepare a Water Safety Plan as
described in Section 3.
 11

INSTITUTIONAL SUPPORT ARRANGEMENTS

District support: ZPs/DWSMs help

ZILA organize financing, training
PARISHAD and technical support
GPs/VWSC implement plans to
agreed budgets and timeframes and
DWSM
provide annual reports on progress
and performance

BLOCK The Block Resource Centre

RESOURCE provides motivation, training,
CENTRE support etc. to the GP/VWSC

The VWSC is a standing

committee of the GP and is
Social audit: The
responsible for planning,
community talks about
GRAM PANCHAYAT implementation, operation,
what it wants in the Gram
maintenance and management
Sabha and approves
decisions about
VWSC
water supply Contract:
Contracts set out
mechanics/
operators tasks
and what they will
be paid

GRAM SABHA OPERATOR

CITIZEN/ HANDPUMP
HOUSEHOLD MECHANIC
Citizens/Households pay
charges as decided by
the Gram Sabha for
drinking water services
 12

What is the role of the National Rural Health Mission and ASHA?

The Accredited Social Health Associate (ASHA) under the National Rural Health Mission (NRHM)
also has a role which complements the role of the VWSC. The NRDWP specifies the roles of
the VWSC and the ASHA as below:

Role of VWSC member Role of ASHA Worker

Ascertain drinking water adequacy at the Ascertain water and sanitation related diseases at
household level including domestic animal needs the household level as per the NRHM format

Identify all sources of drinking water for different Collect samples for testing and transfer to the Public
purposes Health Centre (PHC) for testing biological parameters

Test all the sources by field testing kits Test all the sources by field testing kits

Collect sample for testing and transfer to the Take corrective measures along with VWSC
sub-division/district water testing laboratory for members to prevent pollution of drinking
testing both chemical and biological parameters water sources

Record details of water supply sources Record keeping of all water and sanitation
and system in the village/GP disease related data

Tariff collection from every household and Advocacy on hygiene promotion and disease
management of water supply scheme at prevention issues at the household level
the village level

Carry out awareness activities on water Carry out awareness activities on sanitation
related issues related issues

Any other task assigned by GP President Any other task assigned by GP President related to
related to rural water supply activities rural sanitation activities
 13

Who will help?

GPs/VWSCs are not expected to achieve all of this on their own, they receive support from a
number of other institutions. These include:

District Water and Sanitation Mission (DWSM): DWSMs are responsible for setting
priorities for investment in the district based on their available budget. Districts review and
approve village plans and compile them as an overall district plan. DWSMs help communities
by organizing financing, training and technical assistance. In exchange, the GPs/VWSCs
must agree to implement their plans to an agreed budget and timeframe, and to provide
annual reports on implementation progress and operational performance. The DWSM may
enter into a MoU with VWSCs on the respective roles and responsibilities of the DWSM,
BRC and VWSC which will also help in conflict resolution

Public Health Engineering Department (PHED): The PHEDs provide technical support
such as engineering designs, cost estimates and construction supervision as well as
technical audits

Block Resource Centre (BRC): The BRC helps communities prepare and implement
plans by providing motivation and training and organizing technical support from the PHED,
and by providing information on water quality and public health. The GP/VWSC should
contact the BRC for advice on any issue where they need help

Water Quality Testing Laboratories: The district and sub-divisional laboratories are to
be used for water quality testing and analysis

Support Organizations: In some cases, GPs/VWSCs will also receive training and
technical assistance through Support Organizations designated by the DWSM

The State Institute of Rural Development (SIRD): The State Institutes of Rural
Development are the main agency for training at the state level
14
 15

Preparatory Phase

This section is about how do we get started.

What assistance can we get from the Government?

How do we form a VWSC?
What training is available and from whom?
How do we get the community to participate?
 16

How do we get started.

Calling a Gram Sabha is the first step one needs to take in the preparatory stage. However,
prior to calling the Gram Sabha, social mobilization needs to be undertaken to create awareness.
This can be done by convening ward meetings and separate women meetings for preparing the
community to effectively take part in the Gram Sabha.

At the Gram Sabha meeting, the discussion should include the water supply situation, the needs
of the village, an understanding of the assistance available under the NRDWP and getting a
consensus on developing a Village Water Security Plan. The second step is to form the Pani
Samiti (VWSC).

Why is a Village Water Security Plan required?

The Village Water Security Plan is required to ensure optimum utilization of available water to
meet the needs of various users. It will have information about the existing water supply situation,
what improvements in the existing system or new system users need, want and can afford, and
how the proposed improvements or new infrastructure will be funded, implemented and managed
to ensure that drinking water is available at all times in the village for all households.

In many parts of India the number of rainy days is limited to as few as 10 to 15 days per year or
less. This may even result in a period of drought which can last for several years and cause
extreme hardship to humans and cattle due to water scarcity. It is very important that GPs are
able to provide adequate quantity and quality of drinking water supply for humans and livestock
during these periods without the Government resorting to emergency measures. In order to
achieve this, the GP/VWSC must plan accordingly and implement appropriate mitigation
measures, such as rooftop rainwater harvesting, groundwater recharge, rehabilitation of
traditional storage tanks, and conjunctive use of surface water and groundwater.
In addition, many parts of India are affected by floods and during this time drinking water becomes
a major problem. There is a need to ensure the quality of drinking water for humans and livestock
without the Government resorting to large scale, emergency measures. If a well has been
flooded there is a risk of contamination causing diseases such as diarrhea, dysentery, cholera,
typhoid, etc. It is critical that the well is disinfected by chlorination and/or drinking water is
boiled before consumption. There may also be contamination of the well by chemicals such as
pesticides or the well may be filled with sediment. In this case the GP/VWSC should seek
professional help either directly from the PHED or with the help of the BRC or DWSM. In all
cases, wells must be tested as soon as possible to make sure the water is safe.
In addition to ensuring adequate quantity and quality of water for domestic users, the
GP/VWSC has a responsibility to ensure provision for all schools and anganwadis, and it must
take into account the needs of livestock especially in water quality affected areas where livestock
are highly vulnerable to chemical contamination.
 17

What assistance can we get from the Government?

The Government of India provides technical and financial assistance to the State Governments
through the NRDWP for rural drinking water supply projects with the goal of providing every
rural person with enough safe water for drinking, cooking and other domestic needs at all times
and in all situations. GPs/VWSCs need to understand the norms and the assistance available
in terms of:

Service levels – Access and usage, quantity, quality and reliability, responsiveness of
service providers, and user’s satisfaction

Cost recovery – How much do households contribute for construction? What are the user
fee charges for water supply? How much money is available from the Government?

What are service levels?

What percentage of households in the GP use (i) a handpump,

Access and usage (ii) a community standpost (iii) household connections? Are connections
metered?

How much safe water is provided per person per day?

Quantity and quality Has the water been tested and found to be clean and safe to drink?

How many hours per day is water provided?

Reliability How many months/days in a year is there a stoppage in water supply?
Responsiveness of Does the provider have a customer service counter or contact?
service providers number? How quickly does the provider respond to user complaints?

User’s satisfaction Are users getting the services they need, want and can afford?

GPs/VWSCs need to understand how to achieve and sustain these objectives:

What are the service standards that they want?

How to set community contributions and user fee charges?
What is the support available under the NRDWP and other Government programs?
 18

How do we form a Village Water and Sanitation Committee/Pani Samiti?

The next step is to form the VWSC/Pani Samiti, if this does not already exist. The VWSC should
be formed in a participatory manner with members identified and nominated in the Gram Sabha.

The VWSC should comprise of about 6 to 12 members

The actual numbers of elected

members and non-elected
members may vary from state
to state

Members of Fifty percent

the GP women

Representatives Representation of SCs,

of all habitation STs and poorer sections
of the village

If the GP has more than

one habitation then each
habitation should be represented

The VWSC acts as a standing committee of the GP. The President of the VWSC can be the
Sarpanch/President of the GP or an elected member as decided by the Gram Sabha.
 19

What training is available and from whom?

In most cases, the GP/VWSC would need

training/refresher training to perform their roles.
Such training should be organized in phases
depending on the stage of preparation, planning
or implementation and maintenance needs. The
GP/VWSC can arrange such training on their
own or seek the assistance of the BRC or
DWSM to identify a suitable training institution.
The training can be in the form of:

Classroom sessions by experts

Hands on training in the field (ideally in the
GP/VWSC’s own villages)
Exposure visits to villages that have done
well in water security management

Typically, the training would cover:

How can the community be mobilized?

What are participatory planning approaches?

How to gather information on sources and systems?

How to prepare a water budget (how much water is available and how much do we need)?

What are the water harvesting and groundwater recharge options?

How to make a water safety plan and test water quality (to keep water clean)?

Operation and maintenance (what to do and when?)

How to maintain accounts and financial procedures?

Preparing investment plans (what to build, how much it costs and when to do it?)

How to check and report on performance of the water supply?

 20

How do we get the community to participate in planning?

It is the responsibility of the VWSC to get the community to participate in planning for improved
drinking water security. Some methods of mobilizing the community are:

Social mobilization by ward meetings and separate women meetings

Gram Sabha meetings and discussions
Folk drama and street plays on drinking water security
Wall paintings and posters
Student and youth rallies in the village on issues of drinking water security
Organizing special lectures or video shows on selected topics
Enlisting services of elected representatives, school teachers, ASHA workers, postman,
religious leaders, ex-servicemen etc.

The VWSC can seek support from the designated Support Organization or the BRC members
for promoting community participation.

Who should participate in the planning process?

All members of the community should be involved in the planning process so as to ensure that
members get what they need, what they want and what they can afford. In addition, help from
engineers is needed to identify problems and solutions, including engineering designs and cost
estimates.

The preparation of Village Water Security Plans therefore requires the participation of various
stakeholders:

Participation of Stakeholders

Village Water
and Sanitation
Committee

Operators and/or Members of the rural

handpump Preparation of Village Water community of the
caretakers Security Plans particular site,
especially women

Training and technical support staff, for

example, from the BRC staff, PHED
engineers, designated Support
Organization etc.
 21

How do we find out what users need, want and can afford?

To find out what users need, want and can afford, a good way to start is to prepare a
‘community map’. To facilitate this, the following steps should be followed:
Gather the community and inform them about the benefits of Village Water Security Plans
with respect to improved water supply and public health
Gather all available information on the location, type, age and condition of existing water
sources and system infrastructure, groundwater levels, water quality, incidence of water
borne diseases
Ask the community to map the locations of water sources and systems, and households in
their ward (this should be done on the ground and then copied onto a chart paper)
Discuss what users need, want and can afford to improve their water supply
Identify which households are not served by the different sources and systems

Discuss water related issues such as:

The age and condition of existing water sources and system infrastructure
Water scarcity problems
Water quality problems
Incidence of diseases (including seasonal variations in diseases)
Existing local water harvesting and groundwater recharge measures
Groundwater level management
Identify gaps in available water resources, infrastructure, service level and efficiency of
service delivery
Talk about the need to not waste water and keep water clean during household water
storage and handling, as well as the need for all households to build and use toilets.
 22

What is Source Sustainability?

Why do sources fail?

Water which falls as rain either seeps into the ground (soil) or runs off as surface water into
nalas and ponds. Water which seeps into the ground helps to recharge the groundwater aquifers.
Loss of groundwater (known as discharge) occurs either when it is drawn up by vegetation, or
it flows from springs, or it is pumped up from wells for various uses. If discharge is greater than
recharge then the available groundwater is reduced. In such cases, it is important to implement
measures to increase water availability and to control how much is used.
In many cases, when groundwater sources are unprotected or overused they begin to dry up
and are no longer sufficient to supply everyone with enough drinking water.This source failure
is often seasonal, usually occurring in hot, dry summer months. But it can also be permanent
because the groundwater has been reduced beyond recovery.
What steps should be taken to ensure source sustainability?
It is important to undertake measures to protect water sources and ensure sufficient water is
available to provide everyone with enough water for various uses, such as drinking water for
humans and livestock, agriculture and industrial uses. Such measures include both software
interventions (raising awareness, self monitoring) and hardware interventions (rooftop rainwater
harvesting, groundwater recharge, rehabilitation of traditional ponds).
Software interventions are related to behavior change of individuals and the community,
collectively leading to improved management of available water sources. The important
interventions are:

Raising Awareness: On the need to recharge groundwater, the importance of not wasting
water, and the need to plan in order to match supply (available groundwater and surface
water) with demand (for human and livestock uses including agriculture)

Self monitoring: It is important for the community to introduce simple methods and devices
like a rainwater gauge and rope scales to monitor and measure ground water tables. Data
on ground water availability, each season, enables farmers to make decisions on how
much water can be used for different purposes (agriculture, drinking water, etc.), water
budgeting (matching supply and demand), and changing crops to suit the water availability.
In making such decisions, first priority is given to secure sufficient drinking water for people
and livestock. Other main decisions are related to:
Sowing crops that are suitable to the local climate and consume less water
Adopting more efficient irrigation methods like sprinklers and drip irrigation
Protecting some sources to use only for groundwater recharge
Maintaining specified areas with vegetation to help capture rainwater runoff

Some common crops are given below with water required in cubic meters/hectare.

Crop Water required in cubic meters/hectare

Rice 6,020
Wheat 3,500
Cotton 7,850
Sugarcane 16,000
Sunflower 6,500
 23

Hardware interventions are physical structures which are used either to capture rainwater or
surface water runoff or to help recharge groundwater. Some of the most common are described
below:
Rooftop rainwater harvesting: This is when rainwater collecting on the roofs of houses,
schools and other buildings is captured using gutters and collected in storage tanks. Often
a simple filter system is used before storage to ensure the water is safe to drink
Ooranis, orans or village ponds: These are the natural ponds traditionally existing in
villages which can be used to capture rainwater and surface water runoff
Check dams/nala bunds: Check dams are made from materials like large stones, logs or
bags filled with sand. They are used to slow down the flow of water in gulleys and nalas
and reduce soil erosion
Percolation tanks: These are tanks or storage reservoirs (which may be very large)
used to capture discharge water and ensure that it is used to recharge groundwater
Sub-surface dykes: These are underground dams which capture subsurface flowing
water and ensure that it is used to recharge groundwater
Point source recharge systems/infiltration wells: These are bore wells or dug wells
that are drilled or dug into upper dry soil layers in order to directly recharge groundwater
Infiltration galleries: These are horizontal drainage areas used to collect surface runoff
and direct it towards groundwater recharge structures
Hydro-fracturing: This is an approach requiring specialist equipment to force water at
high pressure into a well and clean/break up fractures in the surrounding rock to increase
the flow of water into the well
24
 25

Planning Phase

This section is about how do we prepare a

Village Drinking Water Security Plan.

How do we get information on our source and system?

How do we use the information to plan?
What should our proposal to the district contain?
 26

How do we prepare a Village Drinking Water Security Plan.

Once the VWSC has gathered information about the existing situation and what the users need,
want and can afford, the GP must call a meeting of the Gram Sabha to discuss how the
community should go forward with preparing its Village Water Security Plan.

How do we get information on our source and system?

To find out about the sources and system, the VWSC and planning team should carry out a field
survey (inspection) of existing sources and water supply infrastructure. This helps to get
first-hand information on the actual condition of existing sources and water supply infrastructure,
identify new sources or make decisions about the new infrastructure.

There are five common water source and system options:

Handpumps
Local springs, streams or ponds with gravity fed or pumping based piped systems
Borewells with mechanized pumping based piped systems
Rainwater tanks and other traditional tanks and wells
Large surface water based piped systems with water treatment

Local spring/stream/
pond source Borewells/ Large surface
Rainwater tanks/ surface pumps water source
traditional tanks and
wells/handpumps

Sedimentation Storage tanks Water

tanks treatment

Distribution pipes

Household hygiene Community standposts of

and sanitation household connections
 27

How do we carry out a field survey?

The field survey (inspection) should start by reviewing the community map and planning the
survey. To help facilitate the survey and meet its goals, a few guidelines are mentioned below:

Inspect water sources and system infrastructure including:

The sources
Sedimentation and storage tanks
Distribution pipelines
Standposts and household connections
Identify risks of contamination of various sources of drinking water (a checklist has been
provided as a good starting point). As a part of this process, areas of open defecation and
water stagnation should also be identified
Find out what is being done to reduce the risks of contamination of drinking water – is it
working or does something else have to be done?
Inspect household storage and discuss handling practices with the women of the household
Check for any water related illnesses and discuss it with the women of the household and
the village ASHA
Identify minor/major repairs and replacements of the parts that are needed
Inspection of more complex source intakes, pumping equipment and water treatment works.
This will require technical assistance from qualified mechanics and electrical engineers
from the PHED through the BRC or the designated Support Organization
Identify any impact by natural calamities such as droughts, floods, landslides, etc.
Take water samples for testing at the district or sub-divisional laboratory. Samples should
be taken at:
The source
Collection points like handpumps, community standposts and household
connections
Document all the information
 28

Checklist of questions to use during the field survey (inspection)

A. Sources

A1. What is the source yield?

A2. Is the source protected by a strong fence to prevent animals entering?
A3. Is the catchment area/ground around the source clean and free of open
defecation?
A4. Do standposts and handpumps have a raised, concrete apron in good
condition?
A5. Is there good drainage taking dirty water away from the concrete apron?
A6. Are animals and people prevented from drinking water, defecating or leaving
garbage around the source?
A7. Are people prevented from bathing, washing laundry, animals or vehicles
at the source?
A8. Ensure that there are no latrines or seepage from latrines within 10 meters
of the source
A9. Ensure that there is no effluent from poultry, livestock, schools or houses
entering the source

B. Treatment systems

B1. Are tanks in good condition, do they need repairs?

B2. Are pipes, valves, gates and taps in good condition?
B3. Are motors fully functional?
B4. Is the treatment system fully functional? (check: coagulation, sedimentation,
filtration and chlorination)
 29

C. Storage tanks

C1. Is the tank in good condition, does it need repairs?

C2. Is the pipe from the source in good condition?
C3. Is the tank cover or lid in good condition?
C4. Is the tank cleaned regularly?

D. Pipes

D1. Are pipes in good condition and free from leaks?

D2. Are joints and valves in good condition and free from leaks?
D3. Is the area around pipes free from stagnant water, animal faecal matter
and garbage?

E. Household storage and handling

E1. Are storage tanks and containers cleaned regularly before storing water?
E2. Does the tank/container have a cover?
E3. Is there a clean ladle to remove water from the storage tank/container?
E4. Does the household practice handwashing with soap?
E5. Is the household aware about minimizing water wastage?
 30

How do we use the information to plan?

After gathering information on the sources and water supply infrastructure, the VWSC and the
planning team must now use the information to prepare their village plan. This includes
preparation of:
Water Budget
Water Source Plan
Water Safety Plan
Operating Plan
Service Improvement Plan

What is a Water Budget?

A water budget is prepared by estimating how much water is available from the surface, ground
sources and rainwater harvesting and comparing this with how much water the users require.
This should be done for summer and winter. Communities should use a combination of rainwater
harvesting, groundwater and surface water sources so as to provide the best value for money at
different times of the season.
Water used for different purposes in the village like agriculture, human consumption, animal
consumption, local industries and other purposes should be accounted for here. When there is
a gap, the Gram Sabha can discuss it and take decisions on who should use how much. First
priority must be given to drinking water for human and animal consumption.

The basic format for a water budget is shown below:

Summer Winter
Type of Source Water available Water used Gap Water available Water used Gap
(supply) (demand) (supply) (demand)
Rainwater
• Source 1
• Source 2
• …

Groundwater
• Source 1
• Source 2
• …

Surface water
• Source 1
• Source 2
• …

In case of a gap between available water and water needed, the VWSC and planning team
will need to explore options to increase the available water. This can be done by:
Implementing rainwater harvesting and groundwater recharge measures
Augmenting existing sources
Developing additional sources
Usage of surface water sources
Help can be taken from the BRC or DWSM or designated Support Organization in making
these choices.
 31

What is a Water Source Plan?

A Water Source Plan consists of sustainability structures identified for water harvesting and
groundwater recharge. These need to be planned with advice from the BRC or DWSM or
designated Support Organization to ensure proper location and type of structure.

The list of structures that can be taken up includes:

Rooftop rainwater harvesting
Ooranis, orans or village ponds
Check dams
Percolation tanks
Sub-surface dykes
Point source recharge systems (borewells or dugwells)
Infiltration wells
Infiltration galleries
Hydro-fracturing
Diversion channels and linking of ponds etc.

The basic format of a water source plan is given below. This would include the proposed
sustainability structures, their capacity and the estimated costs.

Sustainability structures Capacity Cost

e.g., rooftop rainwater harvesting

What is a Water Safety Plan?

A Water Safety Plan identifies the main problems that can affect water quality and steps to be
taken to prevent bacteriological and chemical contamination of drinking water. Based on the
information from the field survey (inspection) the community can identify:
The main problems that can affect water, e.g., dirty water around the handpump
Steps to be taken to prevent contamination of drinking water (this is called the ‘control
measure’), e.g., clean the apron and drains
Who does it? e.g., the handpump caretaker
Who checks it is done? e.g., the VWSC
What to do when the control measure is not working (this is called the ‘action’), e.g.,
temporary solution to clean the apron, permanent solution to get a contractor to repair the
apron and drains

Control Who checks Action if control fails

Risk Who does it?
measure it is done?
What to do? Who does it?
e.g., area e.g., clean e.g., handpump e.g., VWSC e.g., raise and e.g., VWSC
around the apron caretaker repair apron and procures
handpump is and drains improve drainage contractor
muddy

e.g., open e.g., ensure e.g., motivator, e.g.,VWSC e.g., form Nigrani e.g., groups of
defecation that all ASHA worker, Samitis (vigilance youths/school
near water households VWSC members committees) to children formed
sources construct and stop people from by VWSC
use toilets defecating
in open
 32

Some common risks and control measures are shown in the table below. For more complex
source intakes, pumping equipment and water treatment works, technical assistance should be
sought from qualified mechanics and electrical engineers from the PHED through the BRC or
from the designated Support Organization.

Risk Control measure

Handpumps and standposts
• Livestock encroach • Fencing
• Area is muddy and poorly drained • Raised apron
• Surface drainage is poor • Good drainage
• Latrine effluent • Relocate latrines at least 10 meters away
Spring source
• Animal faeces • Fencing
• Garbage • Public awareness, IEC – sign boards
• Livestock effluents • Relocate effluent pathways
Treatment systems
• Chemical or bacteriological contamination • Check efficacy of existing treatment system or add
new treatment system
Storage tanks
• Animals and insects get into tank • Install tank cover/lid
• Garbage, bathing and laundry • Public awareness/IEC – sign boards
• Tank is dirty • Regular tank cleaning
• Tank is damaged or leaking • Regular tank inspection and repair
Pipes
• Animal faeces, garbage, effluents • Public Awareness/IEC
• Poorly laid pipelines in public footpaths or • Relay pipes
drains • Regular leakage detection and repair
• Leaking pipes
Household storage and handling
• Unclean storage container, absence of lid on • Public awareness/IEC and empower women groups
storage container, no ladle to remove water, to advocate personal hygiene
no handwashing with soap and uncut nails • Household drinking water purification
• Drinking water is contaminated
 33

What is an Operating Plan?

An operating plan sets out the key operating functions for:

Each part of the system (source, treatment system, storage tanks, pipes,
households, etc.)
Operating function (e.g., valve inspection)
Person responsible (usually the operator or handpump caretaker)
How often the operating function is carried out?
Who can help, e.g., the PHED through the BRC, a qualified mechanic, etc.

The basic format for an Operating Plan is given below:

Key Operating Person Who can

Part of the system How often
Functions responsible help

e.g., storage and e.g., valve inspection e.g., operator e.g., once a PHED Junior
distribution pipeline month Engineer

A full list of key operating functions is provided in Section 5 – Operation, Maintenance and
Management.

What is a Service Improvement Plan?

The Service Improvement Plan is a summary of:

Proposed works and other improvements to sources and water supply infrastructure (what
is going to be done?)
The expected benefits (why it is done?)
The estimated costs (at what cost?)
When it will be done?

For each item, there would be an engineering proposal (designs and cost estimates) which will
require help from the PHED through the BRC or from a designated Support Organization. The
timing of implementation could be immediate, short term (this year), or medium term (after one
year but within the next five years).

The basic format for a Service Improvement Plan is given below:

Proposed works or other

Benefits (Why) Cost When
improvements (What)

e.g., install 200 meters of e.g., extend service access e.g., this year
new distribution pipe to 5 households

e.g., construct a piped e.g., provide tap connections e.g., in two

water supply system to all households years
 34

Some notes for handpumps

Water Safety Plan:

The most important element in a Water Safety Plan is to prevent dirty water from getting
into the well. To achieve this, a cement apron is normally constructed around the well.
Raising the apron helps to separate it from the muddy ground around the handpump. Keeping
it clean is important. Drainage to prevent stagnant water around the handpump is important.
The apron is often fenced to keep livestock away from the well. Latrines should be located
at least ten meters away from the well. Water carrying and storage containers should be
cleaned and hands and dirty dipping vessels kept out.
Operating Plan:
People should be taught to use the pumps such that the handle does not hit the handpump.
Handpump caretakers should be able to recognize simple problems and fix them. Most
importantly, GPs ought to have a contract with a qualified handpump mechanic to inspect
the pumps in all its villages on a regular schedule and carry out preventive maintenance
and repairs.
Service Improvement Plan:
From time to time parts of a handpump will need to be replaced, normally not the whole
pump at one time. As the village grows, additional handpumps may need to be added if
good quality groundwater is available all year round.
 35

What should our proposal to the District contain?

Finally, the VWSC can prepare a Village Water Security Plan proposal for the GP to submit to
the District for financing.

Water Source Plan

Village Water Security Plan
Water Safety Plan
O Basic information
O Scheme information
Operating Plan O Investments
O Management and operation
O Service Improvement Plan

The proposal should be based on the village plans (Water Source Plan, Water Safety Plan,
Operating Plan and Service Improvement Plan) and should include:

Basic Information: Names of the district, block, revenue village and habitations covered;
populations of the village and habitations
Scheme Information: Description of existing and proposed sources and systems
Investments: Details from the Service Improvement Plan on what to do, how much it will
cost and when it will be done
Management and Operations: Details from the Operating Plan about who will operate the
system, the estimated operation and maintenance costs and income from user fee charges,
and the resulting surplus/deficit in funds for operation and maintenance

Since this proposal forms the foundation of the Village Water Security Plan, the GP should call
a Gram Sabha meeting and seek their approval for the Village Water Security Plan before
submitting it to the District (DWSM) for approval and financing. The technical options and their
financial impact on operations and maintenance costs and user fees should be clearly discussed
in these Gram Sabha meetings. The Gram Sabha should approve the most suitable option
considering what the community needs, wants and can afford.
 36

When the DWSMs assess the plans, they will review technical, financial and management
aspects and GPs/VWSCs need to ensure that their proposals address the following questions:

Is the proposed water supply what the community wants?

Is the cost acceptable as compared to the other options?
Are user fee charges affordable?
Are funds available for new infrastructure, O&M, replacement of parts, and expansion?
Does the GP/VWSC have the political commitment and the management capability to
implement the plan and operate the new or improved water supply system?
The BRC would work with the GPs/VWSCs to ensure that plans are feasible and will not
result in unnecessary delays in DWSM approval

A sample Village Water Security Plan template is provided below:

Name of the GP

Total current population in the GP/number of

households (include source of data)

Number of villages/habitations/wards in the GP

Names of villages/habitations/wards in the GP

Name/s of villages/habitations/wards being

proposed for coverage

Population of the these villages/habitations/

wards and number of households

Name used to identify water supply scheme

being proposed

Description of the source(s) (e.g., rooftop

rainwater harvesting, protected spring, stream,
pond, open or covered well, protected step well,
borewells, reservoir, river, or any other
traditional source etc.)

Describe any problems with source

sustainability, e.g., during summer/winter

Description of the system (e.g., handpumps,

gravity flow piped supply, mechanized piped
 37

Investments - Handpumps
Sample only: actual information will be specific to the GP/VWSC’s own proposal.

Type of service Action proposed Why? (the benefit) Cost Timing (the
improvement (the remedy) priority)

Source conservation Refer to water Water security This year

and protection source plan

Well repair and Rehabilitate well or Ensure water security As needed

maintenance consider piped system

Handpump Contract qualified Improved operation Immediate

operation and mechanic and maintenance
maintenance Contractors (fence, raise and
including fencing, Training for caretaker repair the apron,
apron and drainage Training for users improve drainage,
ensure clean storage
containers, relocate
latrines)

Water safety Refer to water safety Water quality and Immediate

plan public health
Testing by field test kit/
district/sub-divisional
laboratory

Administrative Keeping ledgers for Improved reporting This year

tasks operational and and monitoring
financial records
Public awareness/
IEC activities
 38

Investments - Piped Water Supply System

Sample only: actual information will be specific to the GP/VWSC’s own proposal.

For more complex source intakes, pumping equipment and water treatment works, technical
assistance should be sought from qualified mechanics and electrical engineers from the PHED
through the BRC or from the designated Support Organization.

Type of service Action proposed Why? (the benefit) Cost Timing (the
improvement (the remedy) priority)

Operation and Terms of reference Clarity on responsibilities Immediate

maintenance or basic service of the operator and
capability agreement for operator how they will be paid

Contract Training to VWSC Improved capability to This year

management supervise operator
capability performance

Household Remove cost barriers Meet demand for This year

connections e.g., subsidising connections
connection cost for SC, Income increased
ST or BPL households; from new connections
Simplify application Reduced wastage
procedures

Pipe network Increase distribution Ability to increase This year

(coverage) network coverage connections and meet
based on demand demand
Increased income

Pipe network Leak detection Better water quality Immediate

(leakage) and repair and public health
Increased service
levels (pressure,
reliability) Improved
willingness to pay

Storage Upgrade existing Increased service This year

tanks or new tanks levels (reliability)
Replace filter media

Source (upgrade) Upgrade intake/ Better water quality Immediate

headworks and public health
Implement Water Source Production capacity
Plan

Source (augment) Identify new source Production capacity Next year

Water quality Implement Water Better water quality Immediate

Safety Plan and public health
Establish procedures for
regular testing by
field test kit/
sub-divisional/district
laboratory
 39

cont...
Type of Service Action proposed Why? (the benefit) Cost Timing (the
Improvement (the remedy) priority)
Customer Service Setup a customer Improved services (speed Immediate
complaints recording of response, continuity of
system supply)
Set response time Increased willingness
to pay

Accounts and Keep ledgers for Transparent planning Immediate

bookkeeping operational and and operational/
financial records financial performance
Improved reporting
and monitoring

Quality of customer Record of houses Increased income This year

database, billing with a connection Reduced wastage
and collection Procedures for new Improved accounts
arrangements connection and bookkeeping
application
Billing and collection
mechanism
Record of non-payment
Disconnection policy

Management and Operations

Management and operations arrangements e.g., VWSC, Operator,

Handpump caretakers,
Others

Income and expenses Rupees/Annum

Total staff costs

Total maintenance costs

Estimated income from water charges

Estimated income from Government i.e.,

NRDWP O&M grant, Finance Commission grant etc.

Surplus/deficit
40
 41

Implementation Phase

This section is about how do we implement

the plan.

What is an annual action plan?

How do we do procurement?
How do we ensure good quality?
 42

How do we implement the plan.

Implementation of the plan is based on:

An annual action plan

Procurement of the materials and contractors needed
Quality control of the work done

What is an Annual Action Plan?

The annual action plan includes:

Activities (what to do?)

Budget (how much will it cost?)
Time schedule with milestones (when to do it?)

The GP/VWSC should use their service improvement plan to prepare the annual action plan.

Time schedule and milestones for year 201_

Activities (from
the service Budget
June

Sept

improvement plan)
May

July

Aug

Nov

Mar
Apr

Dec

Feb
Oct

Jan
e.g., install 200 meters
of new distribution
pipe

How do we do procurement?

For procurement, appropriate State Government procurement guidelines need to be followed.

To this end, the VWSC should set up a procurement committee to handle the following decisions
as well as for hiring labour/contractors and purchase of materials:

Who will do the work? Will it be VWSC members, community members, contract labourers,
small contractors or large contractors?
From where will materials be purchased? Are they available locally? For e.g., steel, cement,
sand, pipes, joints, couplings, valves, meters, etc., as well as electrical equipment
and pumps
How much of a given material needs to be purchased at a given time and when it is needed?
How will it be stored?
 43

For large contracts at least three quotations/bids should be obtained and details placed for the
consideration of the GP. The final purchase order should be placed after the consent of the GP.
When work is completed there should be proper recording and measurement of work compared
to materials purchased.

How do we ensure good quality of materials and construction?

The GP/VWSC should continuously check the quality of materials and construction works. It
should ensure that:

All materials are ISI certified

Strength tests for steel and concrete are done
Pipes are quality certified from a reputable manufacturer
Pressure testing for pipes after installation is done to ensure joints are not leaking and
there is adequate pressure at the last tap connection
Completed works are measured and compared with materials used

It is mandatory to provide a defects liability period clause in all civil works contracts. Normally,
an amount of ten percent of the contractors fees are withheld for one year after completion of
construction. The contractor is responsible to repair/replace any work that is found to be
defective during this period. The money is released to the contractor after the end of the defects
liability period and satisfactory completion of repairs/replacements.

The GP/VWSC should compile a document at the end of the project along with the
following details:

All procurement bills and receipts

All quality certificates
Records of all payments made with bills of quantities
Built plans for all civil works from the contractor
Records of any repairs/replacements made during the defects liability period
 44

The GP/VWSC should also arrange for a financial audit through a qualified chartered accountant
of all the expenditure made for all the materials and works. The expenses for the audit should be
budgeted for by the GP/VWSC under administrative costs. This audit report should be shared
with all the citizens in the Gram Sabha forum and a full explanation should be provided for
discussion. The audit report should be endorsed by the Gram Sabha.
 45

Operations and
Maintenance Phase

This section is about how do we operate

and maintain the system.

What are the key operating functions?

How do we manage our finances?
How do we manage our assets?
 46

How do we operate and maintain the system?

What are the key operating functions?
The key operating functions for each part of the water supply system are shown in the
table below:

Key operating functions

Part of the system
(what is to be done)

• O&M of intake/headworks
• Monitorging source availability during dry season
Spring and intake/headworks • Monitoring source pollution
• Implementing water source plan
• Planning for new source to meet future demand
• Conducting routine O&M
• Facility management
Pumps • Asset maintenance
• Flow and pressure monitoring
• Monitoring energy consumption

• Conducting routine O&M

• Facility management
• Compliance monitoring for flow, pressure and quality
Water treatment plants
• Asset maintenance
• Adjusting treatment process for changing quality of
raw water
• Monitoring chemical usage

• Valve inspection
• Compliance monitoring for flow, pressure and quality
Storage and distribution pipeline
• Leak detection and repair
• Storage tank inspection
• Repairs, rehabilitation, expansion of networks

• Installing new connections

• Installing bulk and household meters
• Meter reading
Customer services • Billing and collection
• Customer complaints redressal and monitoring customer
satisfaction
• Debt management

• Conducting a sanitary survey for risk assessment

Water safety • Implementing the water safety plan
• Monitoring water quality

• Monitoring handpumps and community standposts to prevent

wastage
Connections
• Maintaining clean aprons and drains
• Monitoring household connections to promote equity

• Depositing collections
Operator’s administration • Reporting to the VWSC

Normally these tasks should be delegated to an operator. In the absence of an operator, the
VWSC will carry out these tasks.
 47

In addition, the VWSC also has administrative tasks to carry out.

Procurement including professional support as needed
Contract supervision
Organizing periodical water quality tests
New connections
Disconnections
Extensions
Debt collection
Payment of contractors, operator and handpump caretakers
Cash bookkeeping
Maintaining stores register
Reporting to the GP
Securing finance for replacement of assets as per maintenance schedule

How do we manage our finances?

Accounting

To help manage finances, the following key steps should be taken:

The VWSC should open a bank account operated by three signatories: the VWSC President,
Secretary and Treasurer
Income from community collections, user fee charges, household connections and
Government grants (Centre/State Government grants, Finance Commission grants, etc.)
need to be deposited in the bank account
All user fees and connection fees need to be deposited in the bank account within 24 hours
of collection
The VWSC Treasurer should maintain a cash book and record all transactions
A ledger of all customers should be maintained along with household contributions,
connection fees, monthly user fee charges paid and any arrears
VWSC accounts should be subjected to regular social and statutory audit. Social audit
shall be undertaken by the Gram Sabha. A certification of annual balance sheet by a
professional chartered accountant is required

Expenditure

Income
 48

Annual budget - expenditure

The VWSC needs to prepare an annual budget for O&M. This requires consideration of the
following expenditure items:

Type of cost Cost component

• Minimum demand charge

Electricity • Consumption charge
• Tax

• Spring intake/headworks
• Pumps
• Water treatment plants
Minor repairs • Storage and distribution pipelines
• Customer services
• Water safety
• Connections

• Operator (manager)
• Handpump caretakers
• Pump operators
Salaries and wages • Bill collectors
• Valvemen
• Contract labour
• Others

• Spares
Consumables • Chemicals
• Admin (stationary, transport, telephone, etc.)
• Tools

Water quality • Lab tests

Training • For operator

• For VWSC members

IEC • Awareness generating activities

The VWSC needs to estimate O&M costs for the next financial year. This can be done on the
basis of the previous year’s budget with some allowance for inflation. There may also be some
additional O&M costs that need to be considered due to new infrastructure or other source and
system improvements. The proposed budget shall be reviewed by the GP and Gram Sabha for
discussion and approval. The primary goal of the VWSC should be to reduce O&M costs to the
minimum.

The VWSC also needs to ensure timely payment against expenditure items including electricity
bills, salaries and wages, any works and services and other procurements such as chemicals
and spares.

Bills should be checked and approved by the VWSC President, Secretary and Teasurer, the
cheque signed by the authorized signatories and issued by the Treasurer. The transaction
should be recorded by the Treasurer.
 49

Annual budget – income and user fees

It is critical for GPs/VWSCs to understand the financing needs for sustainable drinking water
supply, and what funds are available to them. The table below summarizes the key needs and
available funds.

Key Needs Available Funds

New schemes NRDWP: coverage component

Source sustainability (rooftop rainwater harvesting, NRDWP: sustainability component

groundwater recharge, rehabilitation of traditional NREGS
structures) Watershed Development

Operation and Maintenance (including minor repairs) NRDWP: O&M component

13th Finance Commission
User fees

Potable water in water quality affected areas NRDWP: water quality component
(treatment technologies, new sources - to address
arsenic, fluorides, iron, nitrates, salinity, etc.)

Water quality monitoring and surveillance NRDWP: support component

Training and IEC NRDWP: support component

Many sources and schemes fail because the community does not plan in advance to replace
parts such as a pump or a storage tank (which eventually fail due to age), or because the
community does not have sufficient funds to expand the source or system to meet increasing
demand from a growing population. In order to meet these needs, it is recommended that the
GP/VWSC establish a corpus fund which can include available funds from NRDWP - O&M,
13th Finance Commision, user fees and discretionary funds such as Backward Regions Grant
Fund (BRGF). In order to plan how best to use the corpus fund, the GP/VWSC should prepare
a Service Improvement Plan as described in Section 3.

Income from consumers will come from:

Monthly domestic user fees

Non-domestic user fees
New connection fees

In addition to user fee charges, there are also grants for O&M from the Centre/State Government
(NRDWP, Finance Commission). For piped water supply, user fee charges may initially aim to
cover fifty percent of O&M costs including minor repairs. The remaining fifty percent is covered
by Centre/State grants (NRDWP, Finance Commission). Major works for replacement of system
parts can be covered under various grants (e.g., Finance Commission, Backward Regions
Grant Fund, etc).

Commercial user charges will normally be more than household user charges. Households
using community standposts would also pay less than households with their own connection.
Use of handpumps is usually free of charge.
 50

Subsidies may be provided to BPL, SC and ST households to help them pay user fee charges
and/or connection fees.

User fees should be collected by the operator or bill collector each month. The collection should
be duly reported and the money deposited in the VWSC Bank Account.

The VWSC should have a strategy for dealing with non-payment, which can include:

Written warnings
Publishing the defaulter’s name at the GP office
A fine
Disconnection with a reconnection charge

How do we manage our assets?

Asset management involves two steps:

Establishing a ledger which records all water supply system parts, including the age
Preparing a schedule for replacement of the system parts before they fail

Some typical asset replacement timeframes are given in the table below:

Item Scheduled Replacement

Electrical motors – submersible Once in [10] years

Electrical motors installed above ground Once in [15] years

Pumps – Centrifugal or Vertical Turbine Once in [15] years

Chlorination equipment Once in [10] years

Instruments Once in [3] years

Electrical equipment Once in [10] years

Pipe lines Once in [30] years or as and when required

Valves Once in [15] years or as and when required

Bulk meters Once in [7] years

Customer meters Once in [5] years

Laboratory equipment Once in [5] years

Computers Once in [5] years

Painting of buildings Once in [5] years

 51

Monitoring Phase

This section is about how do we monitor our

progress and performance.

What is a social audit?

How do we report our progress and performance?
 52

How do we monitor our progress and performance.

It is important to monitor progress and performance including the milestones set out in the
annual action plan. This is done through social audit as well as annual reporting.

What is a social audit?

A social audit is carried out by GP/VWSC by following the steps listed below:

Place the main issues for discussion and decisions in the Gram Sabha, including selection
of sources and systems, community contributions, user fee charges and connection fees
and subsidies/concessions provided to ST, SC and BPL households
Facilitate and ensure active participation of key stakeholders, especially women, SCs,
STs and poor households in the Gram Sabha meetings
Ensure inclusion of SCs, STs and poor households in planning water supply
Display key information on sign boards in key public places about the proposed
activities, budget, milestones and time schedule, contractor details and progress and
performance reports
Maintain a file with all key documents regarding the Village Water Security Plan and share
it with any one from the village who wants to know details
Prepare a citizen’s charter for the management of drinking water security with details on:
standards of service delivery, user fee charges for different categories of user, connection
costs, standard time needed for addressing different type of complaints, names and contact
details of VWSC members and the operator:

Establish a consumer service centre at the GP/VWSC office to ensure rapid

action on any complaints
Get the financial accounts audited annually and share the details in Gram Sabha
meetings and seek approval for closing the account books every year
 53

How do we report our progress and performance?

GPs/VWSCs must send annual progress reports to their Block Panchayat as to whether they
are on schedule with respect to milestones identified in their annual action plan and expenditures
are within the budget estimates. They should also report their performance.

Where an activity is behind schedule or over budget, an explanation would be required. GPs/
VWSCs could request specific assistance if problems had been encountered.

Measuring performance: some key indicators

What percentage of households in the GP use (i) a handpump,

Access and usage (ii) a community standpost (iii) household connections? Are
connections metered?

How much safe water is provided per person per day? Has the
Quantity and quality water been tested and found to be clean and safe to drink?

Reliability How many hours per day is water provided? How many months/
days in a year is there a stoppage in water supply?

Does the provider have a customer service counter or contact

Responsiveness of service providers number? How quickly does the provider respond to user
complaints?

User’s satisfaction Are users getting the services they need, want and can afford?

A sample reporting template is provided on the next page.

 54

GP/VWSC ANNUAL REPORTING TEMPLATE - with reference to the annual action plan
milestones and budget.

Type of service Are proposed Is work within budget Comments

improvement activities completed estimate: Yes/No. and
on schedule: If no, extent of references to
Yes/No. overrun and associated
If no, explanation of whether this can be papers
difficulty faced made up or whether
and steps being an application for
taken to catch up on additional financial
schedule or support has
complete been made
implementation

Operation and
maintenance capability

Contract management
capability

Household
connections

Pipe network (coverage)

Pipe network (leakage)

Storage

Source (upgrade)

Source (augment)

Water quality

Customer service
including meters

Accounts and
bookkeeping

Quality of customer
database and billing
and collection
arrangements
 55

Abbreviations

ASHA Accredited Social Health Associate

BPL Below Poverty Line
BRC Block Resource Centre
DWSM Drinking Water and Sanitation Mission
GP Gram Panchayat
GS Gram Sabha
IEC Information, Education and Communication
NRDWP National Rural Drinking Water Program
NRHM National Rural Health Mission
PHC Public Health Centre
PHED Public Health Engineering Department
SC Schedule Caste
SIRD State Institute of Rural Development
ST Schedule Tribe
SWSSO State water and Sanitation Support Organization
VWSC Village Water and Sanitation Committees
ZP Zila Parishad
 Design and illustrations by: Mudra Communications Pvt. Ltd.

Water and Sanitation Program Ministry of Rural Development

Printed at: PS Press Services Pvt. Ltd.

The World Bank Department of Drinking Water and Sanitation

55 Lodi Estate, 9th Floor, Paryavaran Bhawan
New Delhi 110 003, India CGO Complex, Lodhi Road,
Date: September 2010

Phone: (91-11) 24690488, 24690489 New Delhi 110 003, India

Fax: (91-11) 24628250
Phone: (91-11) 24362705
E-mail: wspsa@worldbank.org
Fax: (91-11) 24361062
Web site: www.wsp.org
E-mail: jstm@nic.in
Web site: www.ddws.nic.in/