conference report...conference report state consultation on putting citizens at the centre:...

CONFERENCE REPORT

State Consultation on

Putting Citizens at the Centre:

Sustaining Improved Urban Sanitation Services in Bihar

21 December 2019

Venue- Hotel The Park, Muzaffarpur, Bihar

EUROPEAN UNION

PIX 1

PIX 3

PIX 2

Participatory Research In Asia

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Executive Summary

On December 21, 2019, the Society for Participatory Research In Asia (PRIA) organized a

day-long State Consultation on “Putting Citizens at the Centre: Sustaining Improved Urban

Sanitation Services in Bihar” at Hotel Park, Muzaffarpur, Bihar.

The consultation arose as part of the European Union supported Engaged Citizens,

Responsive Cities (ECRC) project, which was developed in 2016 to transform sanitation and

foster hygienic practices in the cities of Muzaffarpur, Jhansi, and Ajmer. The project is

premised on the theory that if the capacities of the urban poor civil societies are enhanced;

municipalities, residents, and markets are sensitized; and the media and local academic

institutions can work in tandem, then sanitation services in the city can be improved

exponentially. These organizations must work together with the civil society of the urban

poor in planning, implementation, and monitoring, in order to achieve sustainable change in

sanitation. This can positively impact every citizen in the city, and includes the formation of

Settlement Improvement Forums (SICs), which comprise of community leaders from local

women and youth groups, as well as the Citizen Forum. The latter comprises of diverse

members from academic institutions, Resident Welfare Societies (RWAs), civil society

forums, and media organizations. The role of PRIA has been to facilitate and encourage the

formation and work of these groups, so as to foster community organization concerning the

issue of sanitation.

The objective of the consultation was to explore solutions for the prevailing issues faced by

the urban sanitation sector of Bihar, by utilizing innovative methods centred on citizen

engagement and multi-stakeholder partnerships. The conversation during the event focused

on the discussion of the ongoing initiatives and existing issues related to urban sanitation in

Bihar. Multiple instances of positive changes were shared, and further strategies for

transforming sanitation through citizen engagement and behavioural change were discussed.

Participants also raised the question of additional possibilities of multi-stakeholder

partnerships for sustaining urban sanitation in the state. Significant attention was also given

to the issue of sustainable sanitation, and how the installation of infrastructure alone—such as

toilets—is not sufficient to increase awareness regarding the inherent dignity that sanitation

brings to a community. Therefore, any solution for improving sanitation must involve

community participation and the mobilization of elected representatives on principle, in order

for the community to have a voice in the development of their settlements. SIC Forum and

Citizen Forum, Muzaffarpur presented how they were organised as active citizen groups and

working towards improvement of sanitation services in informal settlements and wards in the

city.

The consultation emphasised the process and importance of facilitating community

participation in sanitation, and the challenges inherent therein. Community leaders who were

members of the SICs highlighted that their achievements were necessary and specific

interventions, made all the more important by their contextual knowledge of how public

infrastructure is used in their settlements. Democratic inclusion, community participation,


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and corporation are essential for achieving the desired level of sanitation services, and for

bringing about a model of good governance. This sensitization will also contribute towards

changing the perception that informal settlements are generally responsible for unsanitary

conditions in cities. Additional progress can only be sustained in an inclusive and

participatory system of governance. Furthermore, in order to supplement these efforts, the

Citizen Forum in Muzaffarpur also inaugurated a monthly newsletter, which will continue to

discuss how citizen’s collectives can join hands to provide solutions to the pressing problems

in the cities.

The consultation was attended by Mayor, Gaya Municipal Corporation, Municipal

Councillors and Officials of Muzaffarpur Municipal Corporation; SIC Forum and Citizen

Forum Members of Muzaffarpur, experts on sanitation and municipal governance, civil

society organisations, media and academia.

Background to the Conference

Urban areas in Bihar are characterised by sparsely distributed towns and cities. With 11.3%

urban population, urban centres of Bihar accommodate 3.1% of urban population of India.

Bihar was ranked at 33rd out of 35 states/ UTs in urbanization (percentage of urban

population of total population) in 2011 Census. The state had 143 statutory towns and 56

census towns in 20111. Presently there are 143 urban local bodies in Bihar including 12

Municipal Corporations, 46 Municipal Councils and 85 Nagar Panchayats. 10.53 percent of

the state’s urban population lives in informal settlements or slums in 88 cities reported

informal settlements. Swachh Bharat Mission (Urban) is operational in all 143 cities,

whereas, 26 cities of Bihar are covered under Atal Mission for Rejuvenation and Urban

Transformation (AMRUT), 4 under SMART City programme and 10 under Namami Gange.

Besides, Chief Minister’s Saat Nishchay programme covering drainage, water supply and

household toilets is operational in all 143 cities.

In Swachhta Survekshan 20192, Bihar was ranked 24th among total 28 states covered. As per

NSSO Swachta status surveys conducted alongside 72nd Round of NSSO in 2015, 50% of

wards were found having system of street cleaning in Bihar. 43.6 % of the wards in urban

Bihar are having sewer network which is lower than national figure of 56.4%3. State-wise

status of implementation of solid waste management component under SBM (Urban) up to

September 2019 shows that as compared to national average of 57%, Bihar is processing 51%

of the total waste being generated at the rate of 2272 MT/ day. Under SBM (Urban) 87.9% of

wards have been covered under 100% door-to-door collection but only 25% wards have

achieved 100% source segregation as compared to national average of 68 percent. Though

Muzaffarpur Municipal Corporation is far ahead from the state in terms of solid waste

management and all 49 wards of the city are covered under 100% door-to-door collection and

at source segregation. The city is also known to have first solid waste processing unit in the

1 Census of India 2011, Govt of India 2 https://swachhsurvekshan2019.org/Rankings/Cities 3 National Sample Survey Office NSSO (2016), ‘Swachhta Status Report 2016’

https://swachhsurvekshan2019.org/Rankings/Cities


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state. Construction of 385,507 individual household latrines and 13,152 public/community

toilet seats has been completed in urban Bihar till September 20194.

Despite of several efforts, some of the issues which Bihar is facing on the front of urban

sanitation include:

Lack of segregation at source

Processing of solid waste generated is low

Lack of decentralised community oriented processing of waste

Shifting from on-site systems to offsite systems of liquid waste management is

sluggish

In cities depending on on-site systems, Faecal Sludge and Septage Management

(FSSM) services are trying to get ground

Public and community toilets need better maintenance

The issues are multidimensional and may be pertaining to various stages of development or

service delivery like policy, planning, implementation and operations/maintenance.

Furthermore, underlying reasons may be attributed to technical, financial and institutional

aspects at many levels. However, effective participation of citizens and collaborative effort

by all stakeholders are two common areas which possess potential to affectively contribute to

address many of the above issues. Citizen’s role in effective urban sanitation services has

been reiterated by recently announced Swachh Survekshan 2020. This has a provision of

validation of service level progress through citizen feedback. It provides for validation of

minimum 50% wards (samples) wherein progress in service levels has been claimed5.

About ‘Engaged Citizen, Responsive City’ (ECRC) Program in Muzaffarpur (Bihar):

Started in 2016, with support from European Union (EU), ECRC Programme has

endeavoured to transform the sanitation situation in the city of Muzaffarpur along with Jhansi

and Ajmer. The overall objective of the programme is to promote diversity and strengthen the

capacity of civil society and municipal authorities in addressing the sanitation issue of the

urban poor in these three cities. In Muzaffarpur during past three years through programmatic

intervention 105 Settlement Improvement Committees (SICs) have been formed having 920

members with leadership from youth (54 percent) and women (57 percent) of informal

settlements. These SICs are further federated at the city level into SIC Forum, which is

providing leadership to informal settlement dwellers towards various development needs and

their implementation. Citizen Forum in Muzaffarpur is active from end of the year 2018. It

has members from different walks of the city like Resident Welfare Associations (RWAs),

educational institutions, Civil Society Organisations (CSOs), senior citizen groups, market

associations, etc. The SIC and Citizen Forum are working in close coordination and actively

engaging with Muzaffarpur Municipal Corporation and other Institutions for the effective

implementation of programmes like SBM, Single Use Plastic Ban etc.

4 State-wise Status of Implementation of Various Components under SBM upto September 2019, accessible at

http://swachhbharaturban.gov.in/dashboard/writereaddata/Statewise_status_of_implementation.pdf 5 Press Information Bureau, Government of India (2019), ‘Swachh Survekshan League 2020’

http://swachhbharaturban.gov.in/dashboard/writereaddata/Statewise_status_of_implementation.pdf


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Objectives of the consultation

The consultation aims to explore solutions for prevailing issues in urban sanitation sector of

Bihar through innovative means centred on citizen engagement and multi-stakeholder

partnerships. Below are the objectives of the consultation:

To discuss the ongoing initiatives in the area of urban sanitation in Bihar

To induce discussion on existing issues related to urban sanitation in the state

To share good examples and instances of change from cities of Bihar

To evolve strategic ideas for transforming urban sanitation in the state through

effective citizen engagement and behavioural change

To appraise ULB’s on Participatory Planning and Monitoring for Inclusive Sanitation

Services in the state

To explore possibilities of multi- stakeholder partnerships for sustaining urban

sanitation in the state

Conference Proceedings

Panel One

Dr Kaustuv K Bandhyopadhyay introduced the first panel, Effective Behaviour Change

through Community Organisations and Community Champions, which focused on how the

Citizen Forum was formed, and how it facilitates community participation. He briefly

described how PRIA supported sanitation initiatives in Muzaffarpur, and explained the

importance of inclusive and democratic development practices. In his opening remarks, he

also touched upon how important it is for communities to be empowered so as to be equal

stakeholders in their development.

Dr Anshuman Karol moderated the panel, and reiterated the inclusive vision of progress that

was fostered by the SICs and the Citizen Forum. He also remarked that informal settlements


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were perceived was flawed, and often acted against them; the image that these settlements

were underdeveloped and unsanitary was often blamed on the communities living in these

settlements. There were little comprehensive efforts that attempted to understand the

challenges that these communities faced, which were only exacerbated by their illegal and

unmapped status. Therefore, it is important to work on the legal recognition and framing of

these settlements. He also discussed reducing the amount of solid waste that was produced,

by presenting the mobilization and utilization of recycled plastic waste for sale as an

important solution.

Mr. Vikas Kumar Singh started the session by discussing how the implementation of the

ECRC project in Muzaffarpur had been both challenging and rewarding. While it was

important for the community members to connect with the issue of sanitation, it was realized

early in the project that in order to gain the trust of the community, project workers had to

work towards the issue of sanitation slowly. Therefore, the direction of the project was

guided by the communities themselves. Once a collective was formed, the settlements were

divided into several smaller groups, so that these groups could bring concerns regarding

sanitation to the attention of the Ward Parshad. This allowed the community to gradually

learn how they could raise their voices, influence the development of the infrastructure that

they used, and bring attention to the issues that they cared about. He also discussed how the

Citizen Forum brought development to the forefront by encouraging community and

individual citizen efforts, and encouraging a sense of responsibility regarding drains, waste

collection and disposal, and hygienic practices. This involved connecting people to the issues

of sanitation, and how these issues affected all citizens, and the entire city.

Ms. Seema Chandravanshi discussed how the SICs sensitized citizens regarding various

aspects of sanitation, including the proper usage of garbage disposal services, the importance

of toilets, the best ways of maintain sanitation, and the importance of doing so. She also

explained how challenging it had been for the settlement communities to work with PRIA

during the initial stages of the project, due to a lack of trust, but after the establishment of the

SICs, over 105 slums received the benefits of their outreach work. She highlighted various

instances where the contextual knowledge of the SIC members increased the efficiency of


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their interventions concerning sanitation. For instance, the lived experience of the SIC

members helped them realize how weather conditions and heavy usage made certain

infrastructures more susceptible to degradation. Furthermore, engaging with members of the

community regarding the problems associated with using open pools as toilets helped to

educate them on the correct usage of toilets. She emphasized how important it was for this

educational aspect of sanitation to come from members of the community themselves.

Mr. Dinesh Bandella spoke at length about how his organization, the Centre for Science and

Environment, worked in collaboration with the Municipal Corporation on a solid waste

management project since 2016 in the city of Muzaffarpur. He mentioned that this was a

unique initiative, since it was headed by the Municipal Corporation, with private

organizations providing technical and logistic support. This is hugely advantageous, since, it

empowers the Municipal Corporation to continue this project even in the absence of other

private organisations. It tackled the issue of unsegregated trash disposal, and grew to include

construction, plastic, and biomedical waste, in addition to household waste. Muzaffarpur can

now boast of having the highest rate of waste segregation in the state of Bihar—65%, as well

as 100% door-to-door waste collection.

Mr. Mrityunjay discussed the importance of solid waste management, and how his

foundation, the Aga Khan Foundation, worked on providing technical assistance to the

Municipal Corporation of Muzaffarpur regarding regulating waste collection, how waste

production can be reduced at the household level, and how composting can be introduced as a

solution. He pointed out that since composting faces the barrier of needing space to work,

marketing waste like plastics and glass for recycling is a feasible alternative.

Session Two

Dr. Anshuman Karol introduced the panel by establishing that community participation in

sanitation and development projects is necessary, in order to facilitate efficient sanitation

services at the optimal level. This is because when projects are implemented with the

consent, participation, and united efforts of an entire community, then the changes achieved

are more sustainable. The corporation and democratic inclusion of community members also

brings about a model of good governance for the entire city. Trust is, therefore, the main

challenge to overcome when it comes to community participation. The ECRC project

involved important aspects of sensitization—the sensitization of civil society organizations

and the media to the real struggles faced by informal communities, and the sensitization of

the communities to the importance and dignity of sanitation. This sensitization took place

within the Citizen Forum, which gradually became an inclusive space for the members of the

SICs as well.

Various Municipal Corporation members and SIC members from the city of Muzaffarpur,

including Ms. Veena Kumari, Ms. Heera Kumari, Mr. KP Pappu, and Ms. Rupa Kumari

offered their thanks to the Citizen Forum and PRIA. Mr KP Pappu emphasized the

importance of working in tandem with the Municipal Corporation, stating that while there

had been good work that was accomplished in this regard, there needed to be even greater


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communication between all the stakeholders involved in city development. The members of

the SICs focused on the importance of reforming the wards, stating, “Only by reforming the

wards can we hope for this progress to spread to the rest of the city. The necessary

preliminary step towards complete and sustained development is to involve communities.”

Ms. Surbhi Shikha is a Ward Councillor from the city of Muzaffarpur, and spoke about the

necessity of increasing community participation in slum areas regarding sanitation, hygienic

practices, and using the toilet. She reiterated that community members also needed to be

participants in increasing awareness surrounding the importance of sanitation.

Mr. Randhir Lal spoke about the importance of having a decentralized waste disposal and

segregation system. This is due to the difficulty of treating solid waste, since its disposal

leads to the pollution of various areas, because of the lack of treatment centres and

infrastructure for the disposal of this waste. Decentralization of waste segregation is

important, therefore, as it is the first step of breaking the disposal of waste into smaller units.

He also proposed having a formalized master plan for the treatment of waste.

Professor Anil Kumar Roy spoke at length about the importance of sanitation and planning.

He discussed the dignity and safety that sanitary services add to life, as well as the

importance of having a regular water supply and waste disposal services. He discussed how

sanitation programs all over the world have been an ongoing process for decades, and how

decentralization of sanitary programs in India is important for their effective functioning. He

emphasized the importance of creating partnerships between stakeholders working on

sanitation, and increasing awareness among communities, in order to end sanitary hazards

like open defecation.


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Ms. Shashi Shikha from PRIA discussed the involvement of the elected city representatives

in the ECRC project, mentioning that their role in urban sanitation and water provision made

them indispensable. They also act as a link between the urban local governance bodies, and

the people who elected them, and can as such have a lot of mobilization power. Being

respected members of the local communities, they play an important role in changing the

behaviour and attitudes of people. They also create successful models at the level of the

wards, which can then be implemented in the entire city and state. Therefore, the involvement

of elected representatives makes city-level planning more successful. Unfortunately, their

role in planning is limited to the implementation of programs, rather than their inception. It is

important to address these planning concerns, since without their involvement, effective

participatory research cannot take place.

Summary

The ECRC state-level consultation consisted of two consecutive panel sessions, wherein the

first panel addressed the initial sanitary concerns acknowledged by the informal

communities, the formation of the SICs and the Citizen Forum. The second panel focused on

the future roles that could be played by the integrated involvement of all stakeholders,

including the elected representatives from the urban governing bodies, and other supporting

civil society organizations. The second panel also aimed to introduce strategic ideas for

changing the future of urban sanitation in a decentralized manner. This involves innovation

and engagement in the field of solid waste management in way that encourages the

participation of local communities, and facilitation by trained members of ULBs. This also

necessitates the possibility of multi- stakeholder partnerships for sustaining urban sanitation.

In order to supplement these efforts, the Citizen Forum in Muzaffarpur also inaugurated a

monthly newsletter, which will continue to discuss how citizen’s collectives can join hands to

provide solutions to the pressing problems in the state.


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State consultation on Putting Citizens at the Centre: Sustaining Improved Urban Sanitation Services in Bihar

21 December 2019, Hotel Park, Muzaffarpur, Bihar

10.30-11.30 Registration with Tea/Coffee

11.30-11.40 Welcome and Introduction to the Conference

Ms Shashi Shikha, Sr. Programme Officer, PRIA, New Delhi

11.40- 01.30 Panel discussion 1

Effective Behaviour Change through Community Organisations and

Community Champions

Moderator: Dr Kaustuv K Bandyopadhyay, Director, PRIA

Discussants

- Dr Anshuman Karol, Sr. Programme Manager, PRIA, New Delhi

- Sh Vikas Kumar Singh, Sr. Programme Officer, PRIA, Muzaffarpur

- Ms Seema Chandravanshi, Vice President, SIC Forum, Muzaffarpur

- Mr. Dinesh Bandella, Program Manager, CSE, New Delhi

- Mr. Mrityunjay, Sr. Program Officer, Aga Khan Foundation, Patna

- Dr D. K. Das, President, Citizen Forum, Muzaffarpur

Open Discussion

Comments from the Chair

01.30-02.30 Lunch

02.30-04.00 Panel Discussion 2

Capacitating Urban Local Bodies – Appreciating Participatory Planning and

Monitoring for Inclusive Sanitation Service

Chair: Ms. Heera Kumari, Deputy Municipal Commissioner, Muzaffarpur Municipal

Corporation

Moderator: Dr Anshuman Karol, Sr. Programme Manager, PRIA, New Delhi

Discussants

- Ms Surbhi Shikha, Ward Councillor, Ward 31, Muzaffarpur

- Ms. Veena Kumari, Hon’ble Mayor, Bihar Sharif Municipal Corporation

- Mr. K P Pappu, Ward Councillor, Ward 5, Muzaffarpur

- Ms. Rupa Kumari, Ward Coucillor, Muzaffarpur

- Mr. Randhir Lal, Deputy Commissioner, Muzaffarpur Municipal Corporation

- Sh Ajit Kumar Mishra, Assistant Director, Regional Centre for Urban &

Environmental Studies (RCUES), Lucknow

- Ms Shashi Shikha, Sr. Programme Officer, PRIA, New Delhi

Open Discussion

Comments from the Chair

04:00- 04:15 Vote of Thanks and Closing

Sh Vikash Kumar Singh, Sr. Programme Officer, PRIA, Muzaffarpur


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PARTICIPANTS LIST

S.

No

Initials Name Designation Dept/ Organisation

1 Mr. Ajay Kumar Patel President SIC Forum, Muzaffarpur

2 Dr Ajeet Gaav Citizen Forum Member

3 Sh Amresh kr.vipul Citizen forum member

4 Mr. Amresh Kumar Aamgola

5 Mr. Anil Kumar SIC Forum member

6 Mr. Anil Kumar Animator PRIA

7 Dr Anil Kumar Roy Associate Professor CEPT University, Ahmedabad

8 Ms. Anju Kumari Citizen Forum member

9 Dr Anshuman Karol Sr. Programme Manager PRIA

10 Ms. Anupama Sharma SAAI Muzaffarpur

11 Mr. Asgar Hussain Citizen Forum member

12 Mr. Asgar Muzaffar NIDAN

13 Ms. Babita Thakur Citizen Forum member

14 Mr. C.S. Joshi Administrative Manager PRIA

15 Mr. Dinesh Raj Bandela CSE, New Delhi

16 Mr. Deeptanshu Sawant Citizen forum member

17 Mr. Gaurav Raj Animator PRIA

18 Mr. Gopal Mohan Citizen Forum member

19 Ms. Hira Kumari D.M.C, Muzaffarpur

20 Mr. Israr Hussain Citizen Forum member

21 Mr. Jitendra Pandey Citizen Forum member

22 Mr. Jitendra Rai SIC Forum member

23 Dr K. K. Das Citizen Forum member

24 Mr. K. P. Pathak Ward 21 (Parishad)


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25 Dr Kaustuv K

Bandyopadhyay

Director PRIA

26 Mr. Kundan Kumar Ward 4 (MAA Foundation)

27 Mr. Kundan Kumar DOP

28 Ms. Madhu Kumari SIC Forum member

29 Ms. Manju Gupta SIC Forum member

30 Mr. Mithilesh CSM

31 Mr. Mritunjai AKDN

32 Ms. Navida Councillor, Ward 49

33 Ms. Nayanika Guha Assistant Program Officer

Communications

PRIA

34 Ms. Noorjahabibi SIC Forum member

35 Mr. Om Prakash Parshad Pratinidhi

36 Ms. Pooja Kumari Animator PRIA

37 Mr. Praveen Kumar Jha Sing Sadan

38 Mr. Praveen PV Manager - Finance &

Accounts

PRIA

39 Ms. Preeti Rani SIC Forum member

40 Mr. Punit Kumar Dept. Of Post

41 Ms. Rajasvi Gandhi Program Officer PRIA

42 Mr. Rajdev Pasuran SIC Forum member

43 Mr. Rajeev Kumar Animator PRIA

44 Mr. Ram Jatan Das Technical Specialist -

WASH

World Vision

45 Sh Rana karmkar Citizen Forum member

46 Mr. Randhir Lal DMC

47 Mr. Ranjan Kumar Citizen Forum member

48 Mr. Ranjan Kumar Singh NIDAN

49 Mr. Ranjeet Kumar Amar Teerthsthal (Seva

Ashram)


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50 Ms. Ranju Sinha Ward Parishad

51 Mr. Ravi Prakash Animator PRIA

52 Mr. Ravi Shankar Citizen Forum member

53 Ms. Rekha Kumari SIC Forum member

54 Ms. Rita Parashar Citizen Forum member

55 Mr. Rupam Kumar Ward 31

56 Mr. Sanjay Kumar World Vision AP Muzaffarpur

57 Mr. Sanjay Kumar Sinha Adv. DBA, Muzaffarpur

58 Mr. Santosh Kumar Councillor Ward 28, Muzaffarpur

59 Mr. Santosh Patel Citizen Forum member

60 Mr. Santosh Saheb

61 Ms. Sarita Bharti Animator PRIA

62 Mr. Satendra kumar Citizen Forum member

63 Mr. Satish Kumar Sethi Govt. Teacher

64 Mr. Satyanshu Animator PRIA

65 Ms. Seema Chandravanshi Sachiv Basti Vikas Sanchalan Samiti

66 Mr. Shashi Bhushan Pandit President AIKMM

67 Ms. Shashi Shikha Sr Programme Officer PRIA

68 Mr. Shekhar Kumar Saraffa Sangh

69 Mr. Sheru Ahmad Steering Committee (Member)

70 Ms. Shital Gupta Citizen Forum member

71 Mr. Sonu Kumar IT- Officer PRIA

72 Mr. Subir Das Project Coordinator WASH Institute

73 Ms. Sudama Convenor Ganga Swacchta Manch

74 Mr. Sujit Kumar Sourav Officer- Knowledge,

Management, Learning

PRIA

75 Ms. Surbhi Shikha Councillor Ward-30


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76 Mr. Suresh Das Parshad Pratinidhi

77 Ms. Sweta Devi Ward 49

78 Mr. Thirupathi Rao World Vision India

79 Mr. Tripurari Prasad Singh PRIA

80 Col V. P. Gupta Director PRIA

81 Ms. Veena Kumari Hon’ble Mayor Bihar Sharif Municipal

Corporation

82 Mr. Vijay Kumar PRIA

83 Mr. Vikash Agrawal Saraffa Sangh

84 Mr. Vikash Kumar SIC Forum member

85 Mr. Vikash Kumar Singh Sr Programme Officer PRIA, Muzaffarpur

86 Mr. Vishnudeo kumar Citizen Forum member

87 Mr. Vishwas Animator PRIA

88 Mr. Vivek Kumar Pandey Amar Teerthsthal (Seva

Ashram)

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