2008年-世界发展银行全球_Enabling_Environment_Assessment_for_Scaling_Up_Sanitation_Programs___Himachal_Pradesh_India_70页_1mb

Summary of Enabling Environment Assessment for Scaling Up Sanitation Programs: Himachal Pradesh, India

Core Content

This report is part of the Global Scaling Up Sanitation Project by the Water and Sanitation Program (WSP), funded by the Bill and Melinda Gates Foundation. It focuses on the enabling environment for scaling up sanitation programs in the Indian states of Himachal Pradesh and Madhya Pradesh, with a particular emphasis on the Total Sanitation Campaign (TSC) and Sanitation Marketing (SM). The goal is to improve sanitation coverage at a scale sufficient to meet the 2015 Millennium Development Goal (MDG) targets.

The baseline enabling environment assessment was conducted in May and June 2007, during the start-up phase of the project, and a follow-up assessment is planned for May or June 2009. The assessment aimed to evaluate the conditions necessary for scaling up, sustaining, and replicating the TSSM approaches in these states.

Main Findings

1. Policy, Strategy, and Direction

• The national-level political support for TSSM is growing.
• The TSC budget has almost doubled since 2005, reflecting increased recognition of its impact.
• The State Sanitation Strategy (2005) included progressive elements like performance-based grants for gram panchayats, but this has not been adopted by districts.
• The national TSC guidelines require conversion of dry latrines to pour-flush latrines, which is problematic in cold climates like northern Himachal Pradesh.
• The NGP (Nirmal Gram Puraskar) program is a strong incentive for achieving sanitation outcomes, but its criteria may be too stringent for some local governments.

2. Institutional Arrangements

• The nodal officer for TSC in Himachal Pradesh oversees 12 major rural development programs, limiting the attention given to the TSC.
• There is a lack of dedicated sanitation units at both state and district levels, which hinders effective program management and monitoring.
• The TSC administration component is underutilized, affecting the sustainability of district-level activities.
• The State Sanitation Review Committee was established in May 2007, which may improve cross-sectoral collaboration, but roles and responsibilities remain unclear.

3. Program Methodology

• Both TSC and NGP promote a total sanitation approach, focusing on eliminating open defecation.
• Community-Led Total Sanitation (CLTS) is being tested in Himachal Pradesh, but local resistance exists due to its demand-driven nature.
• Hybrid approaches that combine local development techniques with CLTS tools are more acceptable to local culture.
• Sanitation marketing is underdeveloped, with a supply-driven and subsidy-based model that limits sustainability and effectiveness.

4. Implementation Capacity

• There is a lack of professional expertise in social intermediation, sanitation improvement, and hygiene promotion.
• Most promotional efforts are led by government officials with limited training in social marketing and behavior change.
• The staff-intensive approach used in early phases is not scalable to meet broader sanitation targets.

5. Availability of Products and Tools

• Although a substantial budget is allocated for alternate delivery mechanisms and revolving funds, few districts have taken action to improve local sanitation supply chains.
• The WSP has developed technical manuals and supported district technology parks, but these efforts have not yet led to sustainable supply of sanitation goods and services.

6. Financing

• The TSC provides predictable and ample financing over a five-year horizon, enabling strategic planning and large-scale implementation.
• NGP awards and state clean village competitions offer additional funding to successful communities.
• However, the current financing framework does not incentivize sustained development of sanitation services once an NGP award is achieved.
• Environmental sanitation criteria may be too difficult for some local governments to meet.

7. Cost-Effective Implementation

• The TSC is increasingly measured by the number of gram panchayats achieving ODF (open defecation-free) and NGP status.
• The current cost per improved sanitation facility is Rs 820 (20.50 USD), and NGP awards cost Rs 30 lakh (75,000 USD).
• APL (above poverty line) households are underrepresented in sanitation marketing, with only 13% served compared to 30% of BPL (below poverty line) households.
• Cost-effectiveness data are essential for benchmarking and developing scalable strategies.

8. Monitoring and Evaluation

• The TSC online monitoring system tracks physical progress (number of toilets) and financial expenditure, but lacks comprehensive indicators for behavior change and hygiene promotion.
• District-level monitoring (DLM) surveys 500 households in each district, showing 99% of BPL households use latrines, but only 34% of all households have sanitation facilities.
• Collective outcomes are more effective for monitoring progress than individual household data, as they highlight broader community needs.

Key Recommendations

• Align state sanitation goals with national objectives to ensure universal sanitation by 2012.
• Develop strategic action plans for gram panchayats, using the successful Mandi District as a model.
• Train a cadre of sanitation and hygiene specialists to improve implementation capacity.
• Establish a state-financed sanitation unit to manage TSC and NGP activities and support broader state objectives.
• Focus sanitation marketing on APL households by offering a range of latrine options that are affordable and desirable.
• Conduct further research on the sustainability of NGP outcomes and the effective use of financial rewards.
• Develop a more phased incentive framework:
  • Provide 10% TSC finance for environmental sanitation after achieving ODF.
  • Offer performance grants to village governments achieving post-NGP outcomes.
  • Finance recurrent costs in communities that sustain sanitation outcomes.
• Use cost-effectiveness data to build consensus on the best approaches for large-scale implementation and to benchmark district performance.

Conclusion

The enabling environment in Himachal Pradesh for sanitation programs is strong but not fully optimized. While the TSC provides a solid policy and financial framework, challenges remain in institutional capacity, implementation methods, and sanitation marketing. The TSSM project has the potential to leverage existing resources, improve local engagement, and develop more sustainable and inclusive sanitation strategies. However, continuous monitoring, capacity building, and policy alignment are essential for the long-term success of the sanitation scaling-up initiative.