draft city sanitation plan for varanasi city sanitation ... ex summary_vnn.pdf · draft city...

Draft City Sanitation Plan for Varanasi

CEPT, Ahmedabad 1

CITY SANITATION PLAN FOR

VARANASI

August 2011 Draft City Sanitation Plan- Main Document

Varanasi Municipal Corporation Technical Assistance: GIZ ASEM

Prepared by:

Consortium for DEWATS Dissemination (CDD Society) Bangalore

CEPT Research & Development Consultancy (CRDC), Ahmedabad

Alchemy Urban Systems (P) Ltd. (Alchemy), Bangalore

ALCHEMY


CEPT, Ahmedabad 2

1.1 Introduction

The Government of India (GoI) had identified 100% sanitation as a goal during the 11th Five Year

Plan. The Ministry of Urban Development (MoUD) officially launched a country-wide National

Urban Sanitation Policy (NUSP) on November 12, 2008 with an objective to call upon individual

states to draft their own strategies based on the NUSP, while taking into account of their own specific

requirements. These strategies are a part of the City Sanitation Plan. The NUSP defines the city

sanitation plan as- “A comprehensive document which details out the short, medium and long term

plans for the issues related to governance, technical, financial, capacity building, awareness and pro-

poor interventions to ensure 100% access to safe sanitation.”

The City Sanitation Plan for Varanasi has been prepared with support from GIZ-ASEM. It has been

designed to address the special nature of the city which has undergone massive interventions, the likes

of Ganga Action Plan without much effect. It has been prepared after detailed stakeholders

consultation, governmental, nongovernmental and the various other city and area level organizations.

The CSP is directive in nature, suggesting the various possible interventions and principles to achieve

city sanitation in a comprehensive way. Various technological, management and institutional options

have been examined, which will facilitate the urban local body to adopt specific strategies and

projects best suited to their situation.

1.2 Key Issue and Recommendations

The following section identifies the various key sanitation issues of Varanasi. These issues are backed

by the rationale of the same and are followed by recommendations that can effective address these

issues.


CEPT, Ahmedabad 3

1.2.1 Key Issue-1

Public toilets in the city are inadequate and under-maintained. The urban poor also lack access

to toilets. The cumulative result is open defecation being practiced rampantly in the city

affecting the health and environment.

1.2.1.1 Rationale for Key Issue- 1

In Varanasi, 15% of the households do not have access to toilets and resorts to open defecation (ward

no. 3, 5, 6, 19, 26,27,30,33, and 36). Open defecation is being practiced in the slum as well as non

slum areas of the city.

The user charges for the community toilets allow access to 5 members as against the average HH size

of 7.2. Primary surveys indicate that the people find the user charge of Rs.30 per month per 5 users

expensive. There is a severe shortage of toilets for the urban poor. In the existing condition there is

one toilet seat for 158 people in an average in the CDS, as against the national norms of one seat per

50 users.

The toilets severely lack in maintenance making people reluctant to use them at the given user charge.

Open defecation hotspots have been identified along the Ghats and tourist areas, railway line and the

peripheral areas.

The attached map indicates the hotspots of open defecation in the city (Refer annexure I, segment

2.2.2.1)


CEPT, Ahmedabad 4

Map 1- Open defecation hotspots in Varanasi

The exiting public toilets have been mapped in the city and the following map indicates the location

Figure 1- Open defecation hotspots in Varanasi


CEPT, Ahmedabad 5

and the un-served pockets on the city the number of public toilets is inadequate considering the high

tourist influx and the unavailability of public toilets in the dense commercial areas, especially in the

core city. (Refer annexure I, segment 2.2.2.3)

Figure 2- Location of Existing toilets in the core city area

1.2.1.2 Recommendations for Key issue- 1

It is recommended that the existing community and public toilet complexes should be repaired/

rehabilitated at an immediate phase through a strict monitoring protocol enforced by the

municipal corporation.

It is recommended that the municipal corporation enforces the existing private operators to collect

user charges for the community toilets on a HH basis as against the current practice of charging

on member basis.

Preliminary studies indicate a requirement of 240 public toilets seats and 250 community toilet

seats to ensure 100% access to toilets in the city. The possible locations and design prototypes

have been indicated in the Sectoral strategies (refer chapter 2)

It is suggested that a DPR should be prepared for the identification, both spatially and

quantitatively the number of toilets seats (both community and public) required in the city. The

DPR should also consider the following issues

Access and the number of seats required and the provision for toilets in special areas

like Ghats (Refer annexure I, segment 2.4.1.3)

Location (mapping of the existing and proposed toilet complexes)

Gender sensitivity

Financial mechanism


CEPT, Ahmedabad 6

Once approved it is suggested that the design construction, operations and maintenance of the

new public and community toilets as per the DPR should be tendered and implemented.

It is recommended that the VNN with support from the state should develop a design specification

and operation manual for maintenance of a minimum desirable quality of the amenities created

including punitive and incentive mechanisms. Refer annexure VI, segment 7.3.1 for the basis of

developing such an O&M manual.

The VNN should evaluate the possibilities of cross subsidization of community toilets through

public toilets. (Refer annexure I, segment 2.4.2.1 & annexure VI, segment 7.3.1.2)

A tripartite monitoring system consisting of the users, private party and the ULB for the promised

levels of maintenance should be developed on a medium term. Tools like citizens report card are

found to be useful in this context. (Refer annexure I, segment 2.4.2.5)

It is suggested that the big shops and commercial establishment should provide for public toilets

in the ratio of 1 seat for 100 users. The actual number of toilet seats may be assessed from their

market surveys. This can be enforced by the corporation through the bye laws and the clearance

procedure.

VNN should enforce the schools to have 100% access to well maintained toilets through stirt

monitoring and punitive measures

VNN should invite specialized design options for the public toilets located within 500m of the

Ghats.

The VNN should conduct a feasibility study on the technology options for the public toilets. A

detailed comparison between the technical options, ease of maintenance, local know and

adaptability and the cost benefit analysis should be used to identify the technology suited for

public toilets in the city.

1.2.2 Key Issue-2

No coverage to sewerage system in peripheral areas and limited sewer connectivity in

covered areas1.

1.2.2.1 Rationale for Key Issue-2

The coverage of the current wastewater network services according to the SLB is 77.87%. Though it

is expected that the coverage will be significantly increased after commissioning of the JICA and

JnNURM schemes, analysis of the proposed JICA and JnNURM schemes indicated that a majority of

the areas in the north (ward number 30), western (ward number 3, 19) and southern (ward 28, part of

13, 77 and 38) peripheral areas will lack coverage to sewer networks. The attached map indicates

these areas.

Though the coverage is high, the connectivity as stated under the SLB remain as low as 27.67%. The

household survey the connectivity in the core area of the city is more than 80% whereas in the

northern periphery is as low as 28%. However the connectivity to sewer networks in slum areas is

generally much lower (Refer table 7, Sectoral Strategies). The low coverage of sewer network and

low household connectivity to the sewer system has impeded the high dependence on septic tanks in

1 Due to non accessibility of Sewerage Master Plan document prepared by JICA in 2004, the recommendation provided in

this document needs to be cross checked with JICA master plan report.


CEPT, Ahmedabad 7

Figure 3- Coverage of Sewage System in Varanasi


CEPT, Ahmedabad 8

the city. However there is a lack of formalized septage management in the city. The septage is

currently removed with shovels and spades manually and is disposed in low lying areas (Source: HH

Survey, Interview with Sweepers and Observations). Primary surveys indicate that the septic tanks are

overflowing in the open spaces and storm water drains in the city.


It is recommended to conduct a feasibility study on the future network coverage of the current

uncovered areas (stated above) in terms of (a) connection to the existing (and planned) centralized

sewerage systems. (b) Up gradation of the existing septic tanks, (c) Provision of Decentralized on-

site and off-site systems

A prefeasibility study should be taken up for ascertaining the number of septic tank connections

in the city. The VNN should institute incentive measures for the connection of the households and

the septic tanks to the centralized sewer system. Linking this to the property tax is suggested to

ensure 100% connectivity.

It is recommended to conduct a detailed study considering the results of the survey as well as

waste water analysis to evaluate the reasons for the low influent BOD at the treatment plant.

A municipal bye-law shall be mandated to ensure existing and future households to be connected

to the existing/proposed sewer networks

Incentive and punitive mechanisms are to be enforced to ensure household connection. This

should be reinforced through awareness strategies.

It is recommended that the VNN should empanel certified plumbers who have the required

qualifications for the connection to the branch/trunk. The connection shall be undertaken by these

certified plumbers such as to ensure high quality control. This system should also ensure the

connection of both grey and black water streams into the network

It is recommended that the VNN formalizes the septage management sector where the septage is

being collected and transported to the nearest sewer network (discharge points) or transportation

to the treatment plants ( Refer Annexure-II, segment 3.4.2.1 )

Septic tank & Septage management shall be a part of the dedicated unit for Sewerage Sector

under the Sanitation Department personnel management system & Sanitation worker’s training

program shall be implemented to conduct occupational safety and health training campaigns to

educate the sanitary workers with respect to the benefits of adopting best operating practices;

1.2.3 Key Issue-3

Increased risk for performance deficiencies due to low influent organic load into the

sewage treatment plants


The total sewage generation in Varanasi in 2010 is about 233 MLD (calculated based on 80% of water

supply). The total capacity of the treatment plants in Varanasi is only 101.8 MLD. Hence at present

only 43% of the sewage generated is being treated at the STP (Refer Annexure-II, segment 3.2.4 )

Under JNNURM and JICA a total capacity enhancement of 260 MLD of sewage treatment is

proposed. This would enhance the total treatment capacity to 361.8 MLD. However, even after the

proposed enhancements the treatment capacity will fall short of the requirements by 5.5% in 2030 and


CEPT, Ahmedabad 9

26% of the total sewage generated in 2040. It is observed that the incoming organic load into the

existing STPs is significantly lower (table 28, Status Report) compared to the design factor.

1.2.3.2 Recommendations for Key issue-3

A pre-feasibility is recommended to identify the reasons for low concentrations of organic load

taking into consideration (a) Overflow of the septic tanks directly connected to the sewer system,

(b) Only grey water connection to the system, (c) Seepage of groundwater/River water into the

sewer system

Since the influent organic load in the existing treatment plans is low, it is recommended to

consider this issue in the design and implementation of the new network and treatment system

The additional treatment capacity required by the year of 2030 has also to be studied and a long

term plan to enhance the capacity of treatment plant has to be formulated.

1.2.4 Key Issue-4

Solid waste management system does not comply with the MSW 2000 and CPHEEO

manual

1.2.5 Rationale for Key issue 4

Solid waste management is weak due to inadequate infrastructure both in terms of processing and

scientific end disposal. Even though private operator has taken over and initiated the door to door

collection of waste from households due to absence of disposal site waste is being dumped in the open

sites. Currently there are two dumping sites near Ramnager and Chirgobardhan at the eastern and

southern periphery respectively of the Varanasi Municipal Corporation. (Refer Annexure-III,

segment4.2.1.6)

The attached chart shows the percentage of compliance of the solid waste management system in

Varanasi to the MSW rules according to the SWM DPR.


CEPT, Ahmedabad 10

The secondary storage depots- Kudaghars are under maintained and waste often spills out leading to

unhygienic conditions around the area. There are 26 such waste storage houses. The DPR for SWM

has recommended removal of these Kuda-ghars from the main city locations.


Entire cycle of waste management to be enforced in the pilot areas, from segregation to end

processing and then upscaled in the entire city.

The intermediate waste storage depot should be eliminated and a vehicle to vehicle transfer

system for waste collection and conveyance to be adopted.

Adoption of Bylaws for waste management by ULB. Enforcement and monitoring of these

Bylaws by ULB

The treatment and landfill site should be commissioned as soon as possible

Institutional Reforms – M&E Systems ; Performance Appraisal Systems ; O&M ; MIS ( Refer

Annexure-III, segment 4.4.4.1 )

A feasibility study on the collection, treatment and disposal for animal excreta in the city should

be undertaken by the VNN.

The VNN should enforce the safety and occupation health safeguards for the Safai Karamchari

with A2Z. This can be done through strict monitoring and punitive measures

1.2.6 Key Issue-5

Lack of specialized waste management practices in the areas like- Ghats, river, narrow

lanes, slums, temples and kunds in the sanctioned DPR


The DPR does not detail the specialized areas for waste collection like the Ghats, river and narrow

lanes in which the regular system of waste management does not work. The physical design of the

Ghats and the activity patterns lead to technical challenges in the waste collection at Ghats. (Refer

Annexure-III, segment 4.4.4.2 ) A large and un-quantified amount of waste, consisting of the Ghat

Figure 4- MSW compliance in Varanasi

1.80 0.00

10.00

84.14

9.64 9.64

0.00 0.000.00

10.00

20.00

30.00

40.00

50.00

60.00

70.00

80.00

90.00

Storage of waste at source

Segregation of wastes

Door to door collection

Street Sweeping

Secondary storage

Trasportation Treatment Disposal

Percentage of compliance to MSW


CEPT, Ahmedabad 11

sweepings and the pooja wastes is being dumped into the river. In the narrow lanes (2m and less) of

the core city door to door waste collection is complicated. The DPR although identifies the slums as

special area of concern does not specify the waste collection and management strategies for the same.


A 100m strip along the Ghats to be declared as no plastic zone, this shall reduce the waste

generated. ( Refer Annexure-III, segment 4.4.2.5 )

Ghats to be cleaned in the early morning hours as well in the afternoon when the number of

tourists are less( Refer Annexure-III, segment 4.4.2.5 )

Formation of the Ghat police- from the local stakeholders like the boatmen, Mahants, Ghats

samities to maintain the Ghats and monitor the cleanliness of the same.

Organization and mobilization of the Boatmen association for cleaning of the river every day,

with custom designed boats. ( Refer Annexure-III, segment 4.4.4.2 )

The Ghat sweepings may be collected through the boats which can be then carried for final

disposal.

1.2.7 Key Issue-6

Flooding of low lying areas due to poor storm water management in the city


In Varanasi, there are many low lying areas in the city which get water logged during the monsoons.

Many major road intersections also get water logged. The areas prone to frequent water logging are

Chaukaghat Water Tank, Gurabagh, Jal Sansthan area, Vikas Pradhikaran Colony, Shivpur,

Nakkigthat area, Mahmoorganj, Ravindrapuri colony, Central Jail Compound area, Dingia Mohall

area, Shivpurwa, Nawab Ganj, Bada Lalpur area, G.T. Road area, Nirala Nagar, Karaudi area,

Chuppepur colony, Slaughter House area, Jaiprakash Nagar, Bazerdiha area, Khushall Nagar,

Kamalagarha, Manduadih area, Brijenclave colony area, Paigamberpur, Salarpur etc The attached

map shows such areas in the city (Refer Annexure-IV, segment 5.2.1.5)


CEPT, Ahmedabad 12

The waste thrown along the natural drainage nalas of Assi and Varuna lead to a reduced capacity of

Figure 5- Low lying areas in Varanasi


CEPT, Ahmedabad 13

storm water carrying. The DPR SWM mentions waste to the extents of 10 tons per day being dumped

along the nalas. (Refer Annexure-III, segment 5.2.1.2). Preliminary surveys indicate that the storm

water drains are choked with solid waste and effluents from septic tanks which pose health risk,

especially during the rainy season. The natural drains are also overlooked in city planning and design

leading to over concretization which again leads to clogging and impacts the natural drainage pattern

of the city.


The storm water drains should be covered to stop the garbage from getting inside the drains. (

Refer Annexure-V, segment 5.2.4.1)

A detailed feasibility study and assessment of the lakes and the kunds interlinking with storm

water drains to enhance the capacity of storm drainage and ground water recharge needs to be

studied. This shall help in recharging the lakes and also, distribute the surplus rain water, reducing

the chances of floods. ( Refer Annexure-V, segment 5.2.4.2)

Rain water harvesting structures should be mandated for all new construction in the peripheral

areas of the city through municipal bye laws. The general development control regulations for the

city should make it mandatory to include rain water harvesting. ( Refer Annexure-V, segment

5.2.4.3 )

It is recommended that pilot studies for Nala revitalization focusing on area beautification,

cleanliness drives and urban design interventions taken up on an immediate term by the VNN. (

Refer Annexure-V, segment 5.2.4.7)

1.2.8 Key Issue-7

It is challenging to induce sanitation related behavioral change in people of Varanasi

owing to the religious and cultural habits and the setting.


Varanasi is strongly rooted in its cultural traditions, wherein people believe that dying in the Ghats,

helps in the attainment of nirvana. People believe in cleaning themselves before taking a dip in the

holy Ganges. In absence of sanitation infrastructure they resort to open defecation along the Ghats.

This can be noted in the Map 1, wherein the major Open defecation hotspots are located along the

ghats. The flowers, diyas and offerings used in the poojas, are being thrown into the river, which

decomposes and deteriorates the quality of water. The religious sentiments lead to any kind of

demolition, construction activity or even policy intervention difficult in the Ghats and the areas

around the temples.


A draft IEC strategy for various target groups has been given in Annexure-VI, segment 7.2.4.10,

it is recommended that the implementation should be taken up on an immediate basis.

A group of city level sanitation volunteers should be identified from the various stakeholder

segments in the city, who shall be responsible for sensitizing activities along with the VNN. (

Refer Annexure-VI, segment 7.2.4.10 ). The Ghats should be adopted by the different groups of

sanitation volunteers such as to initiate the sanitation programs along the Ghats with the required

awareness strategies. ( Refer Annexure-VI, segment 7.2.4.3 )


CEPT, Ahmedabad 14

Pilot proposals in the most visited areas of the city that is, the Ghats, to improve the overall

sanitation and also improve the economic conditions of the area are suggested.

1.2.9 Key Issue-8

The institutional arrangement of the sanitation planning and management in the city is

fragmented


There are multiples institutions involved at various hierarchal levels for sanitation in the city. The

table below lists the institutions and their overlapping responsibilities. The highlighted cells indicate

the functional overlaps. (Refer Annexure-VII, segment 8.2.2).

Table 1- Institutional overlaps in the Sanitation sector in Varanasi

Sector Description VMC JK UPJN VDA DUDA GPU UPPCB

DE

VE

LO

P

ME

NT

PL

AN

Area Development Plan √

WA

TE

R

SU

PP

LY

Plan, Design & Construction √

HH Connection √

O/M √

User Charges √

SA

NIT

AT

ION

HH Connection √

Design Approval √

HH Discharge Approval √

Community Toilet √ √

Public Toilet √

SE

WE

RA

GE


HH Connection √

Operation & Maintenance √

Sewage Treatment Plant √ √

Disposal √ √ √

ST

RO

M

WA

TE

R

DR

AIN

AG

E


Operation & Maintenance √

SO

LID

WA

ST

E

MA

NA

GE

ME

NT

Collection √

Storage √

Transportation √

Sorting & Processing √

Disposal √


CEPT, Ahmedabad 15

Along with the institutional overlaps of responsibilities and functions the overall staff strength of the

various institutions involved with sanitation is also not adequate. It was observed that out of the total

designate Class I officers, a total of 46% seats lie vacant. (Refer Annexure-VII, segment 8.2.1.2)


Since the integration of the Jalkal with the Nagar Nigam has already been initiated it is

recommended to develop a roadmap to make it more effective in lines of the 74th CAA. It should

consist of the same.

o Reforms

o Accrual accounting

o E governance

o Citizens charter by both the VNN and JK

o Accountability to the citizens and the elected representatives

Long term capacity building has also been recommended and the target groups have been

suggested. ( Refer Annexure-VII, segment 8.2.5 )

1.2.10 Key Issue-9

The exiting financial management system is inadequate to ensure efficient service

delivery


At present the accounts of Varanasi Municipal Corporation are maintained on Single Entry basis. The

Municipal Corporation is yet to migrate towards double entry accounting. In fact it is case of very

rudimentary form of single accounting wherein all revenue and capital receipts and outlays have been

clubbed together. In such a scenario knowing the exact expenditure for operations and maintenance

and for new projects is very difficult. Also there seems to be no classification of different heads of

expenditure as per their characteristic or function. This over simplistic accounting systems makes it

difficult to know the source of the income as well as the expenditure pattern of the same.

The revenue account analysis indicates that the ULB is highly dependent on the State to finance its

activities. Its share of own revenues is 25% of the total revenues. The share of own revenues has

grown little from 25% in 2006-07 to 27% in2008-09.


It is essential at present for the Varanasi Municipal Corporation to migrate from single entry

accounting system to double entry accounting system. Training and handholding of the ULBs

may be required for such transformation of accounting system.

Efforts to increase the revenue generation by regulating the tax regime and efficient assessment

and collection of taxes need to be taken up with immediate effect.

At present, the VMC is heavily dependent on the State level grants. The functions like water

supply, sewerage and solid waste especially need to be made self sufficient.

Adopt accounting and budgetary standards from as per the directive of C&AG

Institute efficient data management system ensuring appropriate financial administration and

reporting mechanism.

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