Towards Nirmal Maharashtra

Towards Nirmal Maharashtra 

Water Supply and Sanitation Department 

Government of Maharashtra

Water and Sanitation Support Organization (WSSO) 

Water Supply and Sanitation Department, GoM 

1 st Floor, South Wing, CIDCO Bhavan 

CBD Belapur, Navi Mumbai 400 614 

Maharashtra, India 

Tel. +91 22 

Email: directorwsso@gmail.com 

Cover Photos: 

© UNICEF/India/PrashanthVishwanathan/2012 

March 2013 

[This document is 

prepared by WSSO 

Maharashtra and UNICEF 

Mumbai. The document 

is informed by the 

National Guidelines on 

Sanitation and Hygiene 

Advocacy and 

Communication Strategy 

Framework 2012 – 2017 

by Ministry of Drinking 

Water and Sanitation 

(MDWS), GoI under the 

Nirmal Bharat Abhiyan]

Towards Nirmal Maharashtra 

Water Supply and Sanitation Department 

Government of Maharashtra

Contents 

Foreword………………………………………………………………………………………………………………………… Page i 

Abbreviation…………………………………………………………………………………………………………………… Page iii 

Chapter 1: Background……………………………………………………………………………………………. Page 01 - 07 

Overview of the State 

Sanitation situation of the State 

Findings of Formative Studies of KAP since 2008 

Chapter 2: NBA, SHACS AND ODEP………………………………………………………………………….. Page 08 - 17 

Status of the NBA in the State with reference from baseline 

IEC an important component of NBA 

Why SHACS Framework 

About National Framework on SHACS 

Why State Sanitation and Hygiene Advocacy and Communication Strategy 

Goals and objectives of State SHACS 

Challenges: Regional Disparities and Sustainability 

Chapter 3: Communication Approaches……………………………………………………………………. Page 18 - 37 

Four critical sanitation and hygiene behaviours 

Social norms and socio ecological model 

Activities done so far on IEC in the state in last 3 years 

Short, Medium and Long term targets addressing regional disparity, sustainability and gender mainstreaming 

Three phases of implementation 

Proposed activities at state level linking with targets and objectives with time line roles and responsibilities 

Capacity building plan 

Chapter 4: Institutional structures…………………………………………………………………………… Page 38 - 43 

State/district/block/GP level Institutional structure 

Reference of GRs 

Existing Monitoring, Evaluation and feedback mechanism 

IEC Outlay and estimated allocation figures for next five years as per the template 

Chapter 5: Convergence……………………………………………………………………………………………. Page 44 - 49 

Line departments for implementation of SHACS at state level with their envisaged role 

Convergence platform at district level 

Annexures………………………………………………………………………………………………………………………. Page 50 - 56 

District Plan 

IEC Budgeting

List of Tables and Figures 

Table 1: Various usages of household toilet structures Page 02 

Table 2: Reason for not having individual household toilet by districts Page 03 

Table 3: Motivation behind construction of toilets Page 03 

Table 4: Felt need expressed by women and adolescent girls for building toilets Page 03 

Table 5: Common barriers experienced in using household toilet Page 04 

Table 6: Crucial times when respondent and family members generally wash hands Page 04 

Table 7: Materials used to wash hands Page 04 

Table 8: Handling of children's excreta and hand washing practices Page 05 

Table 9: Manner in which child excreta is disposed Page 05 

Table 10: Ways of protecting/handling drinking water sources Page 05 

Table 11: Transportation of drinking water Page 07 

Table 12: Last Three Year Information, Education & Communication (IEC) Activities Page 22 

Table 13: Details of the communication activities to be undertaken at state level Page 27 

Table 14: Details of the Advocacy Activities to be undertaken at State level Page 28 

Table 15: Suggested Activities for Behaviour Change Communication through IPC Page 30 

Table 16: Capacity building development plan Page 36 

Table 17: List of Government Resolutions Page 40 

Figure 1: Distribution of households for access, usage and open defecation Page 02 

Figure 2: Households reported treating water Page 07 

Figure 3: Number of Gram Panchayats Received Nirmal Gram Puraskar Page 09 

Figure 4: Region-wise Households and Availability of Toilets Page 10 

Figure 5: Percentage of Families without toilet among BPL and APL Families Page 10 

Figure 6: Region-wise SC and ST Households and Availability of Toilets in Percentage Page 11 

Figure 7: Percentage Families without toilet among Landless APL Page 11 

Figure 8: Percentage of Families without toilet among Women headed APL Page 12 

Figure 9: Percentage of Families without toilet among other APL Page 13 

Figure 10: Region wise Percentage of Defunct Toilets among BPL and APL Families Page 13 

Figure 11: Organogram of Water Supply and Sanitation Department, Government of Maharashtra Page 39 

Figure 12: Organogram of Drinking Water and Sanitation Mission Page 40

Foreword 

i

Abbreviations 

iii

Chapter 1 

0

OVERVIEW 

Vision: Water and Toilet at Doorstep (the vision statement of Water Supply and Sanitation Department, Government of 

Maharashtra). 

Mission: Increased access to safe drinking water and sanitation services to rural and urban communities at affordable cost in 

an environmentally sustainable manner, including emphasis on water recharging measures and making the state open 

defecation free, through enhanced quality service delivery by local self-governments, with community participation wherever 

possible. 

1.1 Background 

Maharashtra, the third largest state by area and the second most populous state in India, has witnessed a significant increase in the 

level of urbanization during last four decades which has changed the dynamics of infrastructure facilities and services. Maharashtra 

is also India’s most developed state, contributing 15 per cent of the country’s industrial output and 14.7 per cent of its Gross 

Domestic Product (GDP). The state has been classified into six revenue divisions namely Amravati, Aurangabad, Konkan, Nagpur, 

Nasik and Pune. The Nasik and Pune divisions being contiguous form the popularly known Western Maharashtra; Aurangabad comes 

under Marathwada; Nagpur and Amravati division together form the Vidharbha region and Konkan comes under the Khandesh region. 

According to the Census of India (2011), Maharashtra has nearly 23.8 million households, with 13 million households in rural areas 

and 10.8 million households in urban areas. Of this 53 per cent households have access to improved sanitation facilities (toilets). The 

corresponding figure in rural areas is 35 per cent, which is far from satisfactory. In last ten years sanitation sector in Maharashtra 

has witnessed positive growth and nearly 6.5 million new households have gained access to toilet facilities. In rural Maharashtra, in 

the last ten years 2.9 million new toilets have been constructed. While the number of households not having toilet within the 

premises has decreased at state level by 1.2 million (Census 2011), 38.2 million persons still practice open defecation. Of these 90 

per cent are in rural Maharashtra. While the percentage of households having access to improved sanitation facilities is higher (50.2 

per cent) in the state as compared to the national average (41.7 per cent), 60 per cent households from three regions (Vidharbha, 

Marathwada and Northern Maharashtra) alone continue to practice open defecation. The district wise variation shows that 

Sindhudurg district has reported highest (75.9 per cent) proportion of households having toilet facility within the premises followed 

by Nagpur (75.7 per cent), Kolhapur (74.5 per cent), Pune (73.8 per cent) and Satara (71.1 per cent) districts. On the other hand, this 

is lowest in Bid (25.1 per cent), Gadchiroli (27.0 per cent), Osmanabad (27.7 per cent), Nandurbar (28.7 per cent) and Parbhani (28.8 

per cent). In Maharashtra, the percentage of households using open space for toilet is highest in Bid (73.2 per cent) followed by 

Gadchiroli (71.9 per cent), Parbhani (70.1 per cent) and Osmanabad (68.9 per cent). 

The disparity in the Scheduled Castes (SC) and Scheduled Tribes (ST) households and Non SC and ST households having toilet within 

the premises increased during the period 2001 to 2011. While overall 46.9 per cent households do not have toilet within premises, 

55.3 percent SC households and 69.9 percent ST households do not have toilet within premises. If the state continues to 

progress at the given pace, then it is estimated that the state would not be able to meet the universal household 

sanitation target before 2032. 

1

Apart from the increasing regional disparity, state is also facing a daunting task to sustain the Nirmal Gram Panchayats (NGPs). 

There are many studies which highlight strong incidences of slip back. Maharashtra accounts for one-third of the total Gram 

Panchayats (GPs) that have been awarded NGPs in India. In 2008, TARU and UNICEF conducted a joint study to understand NGP 

sustainability in 60 GPs and it was found that only 6 GPs were maintaining open defecation free (ODF) status though 85 per cent 

households have access to toilet. Poor installation accounts for 72 per cent of the reasons for toilets not being used. 26 per cent 

households do not use toilets due to lack of water availability. 

Table 1: Various Usages of Household Toilet Structures (TARU-UNICEF Study, 2008) 

Status (all figures in percentage) 

State 

Regular Toilet 

Toilet Choked, 

Damaged or Not 

in Use 

Storage Space 

Used for 

Bathing 

Used as Cattleshed 

Konkan 63 28 05 03 01 

Marathwada 54 31 08 06 01 

Northern Maharashtra 91 07 01 00 00 

Vidarbha 56 40 02 00 02 

Western Maharashtra 98 02 01 00 00 

Total 87 10 02 01 0.03 

A joint concurrent monitoring of UNICEF and Communication and Capacity Development Unit (CCDU) Maharashtra with the Key 

Resource Centres (KRCs) in 2010 on the NGP aspirants villages also gave a similar picture. Out of the 9,836 surveyed households 

covered from 406 gram panchayats from 33 rural districts, 75 per cent were found to have access to toilet of which 79 per cent 

reported using the facilities. Only 44 per cent of the households are disposing child excreta in toilet and 8 per cent of the surveyed 

GPs are found to be ODF as per the NGP guideline. 

Figure 1: Distribution of households for access, usage and open defecation (all figures in percentage) 

(Source: UNICEF-CCDU, Maharashtra Assessment 2010) 

Though 30 per cent of the GPs of Maharashtra have received NGP, yet majority of the bigger villages are still not ODF. It is seen that 

the population growth rate in last two decades (1981-91 and 1991-2001) was very high, and reflects the alarming rate of population 

increase in these potential growth centres. However, the services of water supply, sanitation, education, health, etc. have not grown 

with the same pace. So far, out of total growth centres of 327 GPs, only 75 (23 per cent) GPs have received Nirmal Gram Award for 

100 per cent ODF status. 

2 

Households Visited 

Households with Toilet Facility 

Households using Toilet Facility 

Households with Toilet Not Using it 

Households without Toilet Facility 

Households Practicing Open Defecation 

21 

25 

40 

0 20 40 60 80 100 

75 

79 

100

1.2 Knowledge, Attitudes and Practices around sanitation and hygiene in rural Maharashtra 

Different past studies in Maharashtra suggests that one of the main reason for construction of toilets is the safety, dignity and 

privacy for women. 

Table 2: Reason for not having individual household toilet by districts (all figures in percentage)* 

(UNICEF-GfK Mode Study, 2011) 

Reasons for not having toilets Chandrapur Latur Nandurbar 

High price 68 78 69 

No space in house 14 18.3 12 

Lots of open space in village 28 16 14 

Not aware of toilet use 03 04 05 

Misconeceptions (Toilet near kitchen, etc.) 03 01 04 

Lack of water 08 15 06 

* Total exceeds 100 per cent due to multiple responses 

The high price incurred in the construction of individual toilets was cited as one of the major reasons by maximum of the respondents 

across all three districts of Chandrapur, Latur and Nandurbar. Availability of open spaces in the village and lack of space in the house 

emerged as next important reasons for not having toilets. 

Table 3: Motivation behind construction of toilets (all figures in percentage)* 


Motivation behind construction of toilets Chandrapur Latur Nandurbar 

Safety and security of women and adolescent girls 45 66 49 

Need for privacy/ dignity 50 52 55 

Awareness about health benefits of toilet use 22 41 30 

Motivated by panchayat members 31 38 44 

Motivated by NGO/ CBO/ local club 01 01 02 

Motivated by policital leaders 02 02 01 

No open space for defecation 02 0.3 01 

Money recieved by panchayat after being declared ODF 03 0.3 01 


For nearly half the respondents across the three districts, one of the prime motivating factors has been the need for privacy/ dignity, 

safety and security for women and adolescent girls. 

Table 4: Felt need expressed by women and adolescent girls for building toilets 

(Source: Formative Research on WASH, Innovation and UNICEF Mumbai, 2012) 

Emotional and Behavioural 

Factors 

Embarrassment 

Concerns of Women and Adolescent Girls 

Women and girls shared that when they go for open defecation, it becomes very embarrassing if 

men pass by the same road 

Risk and safety Going outside alone for defecation in the night is very difficult and unsafe 

Discomfort 

When suffering with problems such as diarrhoea or during menstruation going for open 

defecation creates more problems 

3

Emotional and Behavioural 

Factors 

Adverse health impact 

4 

Concerns of Women and Adolescent Girls 

Some women shared that they avoid going for defecation during the daytime, as there is no 

toilet. As a consequence they complained of suffering from stomach ache and constipation 

Table 5: Common barriers experienced in using household toilets 


Dimensions Details 

Cognitive factors Open defecation is an age-old practice. “Our parents and our ancestors also did not use a toilet” 

Toilet near the cooking place is like having a dirt and foul smell near cooking place 

Going for defecation in the open ground is more comforting. One can enjoy greenery, open air while 

defecating open 

There is a claustrophobic feeling and fear in using toilets 

Behavioral factors Open defecation is more convenient than using a toilet 

Economic factors Going for open defecation saves water. We have to use one mug if we follow open defecation 

practices, but for using a toilet, we need bucketfull of water 

We cannot invest/ prioritize building toilets. Government should provide financial support for building 

toilets 

Technical factors Septic tank toilets are “real good” toilets as compared to soak pit toilets 

Soak pit toilets are getting filled soon 

Structural factors Drinking water is not available for a week, how can we afford to use water in the toilets 

No assurance for livelihood, no road connectivity, unavailability of health services, rampant poverty – 

at the backdrop of such challenges, people are not ready to prioritize building toilets 

Table 6: Crucial times when respondent and family members generally wash hands (all figures in percentage)* 


Crucial times Chandrapur Latur Nandurbar 

After waking up 66 38 33 

Before praying 40 32 19 

Before handling food 72 57 52 

Before feeding 70 57 49 

Before breastfeeding 47 44 36 

Before eating 94 91 88 

After eating 95 92 86 

After defecation 91 84 85 


Table 7: Materials used to wash hands (all figures in percentage)* 


Materials Chandrapur Latur Nandurbar 

Soap 87 89 87 

Detergent 05 06 05 

Ash 06 10 08

Materials Chandrapur Latur Nandurbar 

Soil/ mud 03 03 02 

Only water 25 23 20 


Soap is the most widely used detergent for hand washing. However, there was also significant number of respondents using only 

water for hand washing. 

Table 8: Handling of children's excreta and hand washing practices 


Knowledge Gaps Identified Practice 

Community members were 

theoretically aware that 

children’s excreta carries germs 

and dirt 

Soap is not regularly used in the household Don’t always wash hands with soap 

Children are considered replica of the god. 

Mothers are supposed to never complain in 

cleaning child’s excreta 

Children’s excreta is generally thrown in the 

garbage dump 

Washing hands after cleaning excreta is not a 

priority 

Parents allow children to go for open 

defecation 

Table 9: Manner in which child excreta is disposed (all figures in percentage)* 


Manner of disposing child excreta Chandrapur Latur Nandurbar 

Child use toilet 15 25 20 

Flushed into toilet 4 12 7 

Buried in ground/ pit 12 31 20 

Flushed into drain 3 4 3 

Indiscriminate/ dumped along with wastes 22 24 24 

Child practices open defecation 19 4 5 

HH does not have a child 33 14 30 


Respondents across the three districts have stated various practices in this regard. Hence knowledge level differs quite a bit. 

Table 10: Ways of protecting/handling drinking water sources 


Ways Primary Responsibility Constraints 

Putting bleaching powder in 

common water tanks 

Repairing water pipelines, borewells 

Preventing water pipeline 

breakage, blockage 

Distribution of water 

purification medicine to every 

household 

Jalsurakshak (panchayat employee responsible 

for water distribution) – needs to be monitored 

by the panchayat 

Gram Panchayat members Budgetary constraints 

Gram Panchayat members Budgetary constraints 

Inconsistency in following the practice. Less/ 

more mixing of bleaching powder in the 

drinking water 

ASHA workers Difficulty in ensuring consistent usage 

5

Table 11: Transportation of drinking water (percentage of households) 

(Source: UNICEF-IMRB Study 2008) 

Aurangabad Chandrapur Latur Nandurbar Sangli Aggregate 

Base: All households 598 1200 1196 1200 600 4794 

In Covered Vessels 5.1 18.8 1.6 4.4 4.4 6.4 

In Uncovered Vessels 94.5 81.0 98.2 94.7 75.3 86.4 

Do Not Transport 0.2 0.2 0.0 0.9 20.3 7.1 

Majority of the respondents, across all districts, found to be carrying water in uncovered vessels. 

Figure 2: Households reported treating water (all figures in percentage) 

(Source: UNICEF-IMRB Study, 2008) 

80 

70 

60 

50 

40 

30 

20 

10 

0 

46 

72 

16 16 

Aurangabad Chandrapur Latur Nandurbar Sangli Aggregate 

From the above findings it is quite evident that the sanitation programme should not be seen solely as a hardware driven programme 

and often necessarily awareness does not translates into knowledge and knowledge into action. This is a complex issue. Only access 

to the sanitation facility and awareness campaigns cannot ensure open defecation free villages unless this is linked with increasing 

aspiration and value for investment. Hence there is a need for a long term communication strategy which would support the rural 

sanitation programme of Maharashtra to make villages open defecation free. 

10 

31 

7

8 

Chapter 2

NIRMAL BHARAT ABHIYAN IMPLEMENTATION IN THE STATE 

2.1 Status of NBA Implementation in the State 

Total Sanitation Campaign (TSC) was launched in 2000 only in the rural areas of four districts of Maharashtra. Subsequently by 

2004, it was extended to cover all the districts in the state. Between the year 2000 and 2012, around 71 lakh individual household 

toilets were constructed in the rural areas as per the TSC online data, an achievement of 73.8 per cent against the TSC target for 

the state. According to the TSC data, by June 2012, in four districts, i.e., Gadchiroli, Kohlapur, Ratnagiri and Sindhudurg 100 per 

cent of the targeted household were covered with the sanitation facilities. However, the census 2011 data revealed that only 34.8 

per cent of the rural households have access to improved toilets. This slow progress can be attributed to the strategy used by TSC 

which was more hardware driven. The TSC is now being rechristened as Nirmal Bharat Abhiyan (NBA) by the Ministry of Rural 

Development, Government of India. Under the NBA, the subsidy for construction of individual toilets has been raised from INR 2,200 

(allocated earlier under TSC) to INR 10,000. Another major departure which the new scheme has made from the TSC is that every 

rural household besides large farmers, which does not have a toilet, would be eligible for availing of the benefits of the scheme, 

unlike in the case of TSC which was meant only for the BPL households. In order to mobilize financial resources for implementing the 

scheme, it is envisioned that towards the construction of each individual household toilet, a total of INR 4,500 would be made 

available from Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS). At present Maharashtra has 34.13 per 

cent (9,523) Nirmal Gram Panchayats and 11 Nirmal blocks. 

Figure 3: Number of Gram Panchayats Received Nirmal Gram Puraskar (NGP) 

Total GPs 

Non-NGP GPs 

NGP GPs 

9,523 

18,384 

27,907 

Though Maharashtra is a leading state there is still a long way to go before the state can achieve 100 per cent elimination of open 

defecation and establish safe and healthy hygiene practices in the community. In early 2013, the state carried out rigorous exercises 

of baseline survey to generate database for its Project Implementation Plan 2012-17 (PIP) under Nirmal Bharat Abhiyan (NBA). The 

findings of the baseline, available for the last six months, have only made the challenge more visible. Out of the total 125.24 lakh 

rural households in the state, only 60.32 lakh (48 per cent) have access to toilet facility and 64.92 lakh (52 per cent) households do 

not have toilet facility. Further, studies pertaining to the use of toilet facility clearly indicate that there is considerable gap (nearly 20 

– 30 per cent) between the households having toilet and households using this facility. Even the census data highlights this fact 

9

where there are 31 lakh missing toilet reported in the state. The slip back of Nirmal Gram Puraskar award winning Gram Panchayats 

is yet another hurdle in the way of achieving total sanitation. 

2.2 Disparity and Social Equity 

Apart from the afore-mentioned issues, there also exist issues related to regional and social disparities among households in terms of 

access to the toilet facilities. As per the recent baseline nearly 52 per cent rural households do not have toilet facility. There are two 

revenue divisions Konkan and Pune where two third of the rural households have the toilet facilities, whereas, in Aurangabad and 

Amravati it is just the other way round. The Census 2011 also states that 60 per cent of the open defecation load of the state 

comes from Marathwada and Vidharba (Aurangabad, Nagpur and Amravati) regions. 

Figure 4: Region-wise Households and Availability of Toilets (all figures in percentage) 

Figure 5: Percentage of Families without toilet among BPL and APL Families 

At state level there is no significant difference between access to toilets between BPL and APL. However, in Aurangabad and 

Konkan division there is visible disparity. 

10 

52 

51 

66 

53 

45 

46 

68 

34 32 

42 

62 

63 

40 

62 

60 

71 

29 

Kokan Pune Nasik Aurangabad Amravati Nagpur State 

% of Household having access to toilets % of Household having no access to toilets 

73 

65 

60 

60 

60 

32 

36 

32 34 

31 

State Nagpur Amravati Aurangabad Nasik Pune Konkan 

71 

38 

Total HHs APL HHs BPL HHs 

62 

55 

45 

48 

52 

41

Figure 6: Region-wise SC and ST Households and Availability of Toilets in Percentage 

60 42 

36 42 

34 32 

(Source: State base-line survey 2012-13) 

In terms of social disparities in the backward communities, 68 per cent ST families (APL+BPL) do not have toilets against the state 

average of 52 per cent which is 15 percentage points difference. If one is to analyse disaggregated data for region and district level 

the disparity further increases. There are districts like Nandurbar and Dhule where the percentage of SC families having no toilet is 

77 per cent and 87 per cent respectively. There are six districts of Maharashtra where more than 80 per cent ST households do not 

have toilet facility. 

Figure 7: Percentage Families without toilet among Landless APL 

73 

59 

60 

77 

75 

69 

71 62 


51 

% of Total Household having no access to toilets % of SC Household having no access to toilets 

% of ST Household having no access to toilets2 

38 37 

46 

49 

63 

64 

50 

78 

22 

62 

44 

45 

68 

58 

52 

32 31 

24 


73 

Other APL HHs All APL HHs 

60 

(Source: State base-line survey 2012-13) 

11

Within the APL families also disparity is quite striking. There are 10.4 percentage point difference in terms of landless APL and all 

APL families in terms of access to the toilet facility. In Amravati and Pune division this disparity is much more visible. This is to be 

noted that overall Pune division’s performance is very good where two-third rural community have toilet facility. 

Figure 8: Percentage of Families without toilet among Women headed APL 

12 

State 

Nagpur 

Amravati 

Aurangabad 

Nasik 

Pune 

Kokan 

31 

31 

32 

37 

0 10 20 30 40 50 60 70 80 

Women Headed APL Families AllAPL Families 

In all the divisions, there is 2-4 percentage points difference between women and non-women headed families except Konkan as the 

decision making power is largely vested with male members in the family. 

46 

48 

49 

51 

60 

63 

63 

68 

73 

76

Figure 9: Percentage of Families without toilet among other APL 

It is clear from the above chart that the large farmers of the APL families have more access to the toilet facility compared to the 

other category of APL families. However, this is also to be noted that one third of the richer class of rural Maharashtra is defecating 

in open and in Nasik, Amravati and Aurangabad districts this practice is about 50 per cent. 

Figure 10: Region wise Percentage of Defunct Toilets among BPL and APL Families 

15 

51 

38 37 

46 

49 

63 

64 

73 

50 

60 

22 

32 31 

24 


5 

8 

6 

3 

3 

28 

20 

Other APL HHs All APL HHs 

23 

17 

17 


% of Total BPL HH with Defunct Toilet % of APL HH with Defunct Toilet2 % of Total HH with Defunct Toilet3 

17 

20 

16 

18 

33 

15 

23 

21 

10 

14 

(Source: State base line survey 2012-13) 

13

Defunct toilet is a concern for the state as 13.51 per cent (8,15,028) of the total toilets are reported defunct as per the recently 

conducted baseline survey. The percentage of defunct toilet among BPL is 20.83 per cent whereas among APL it is 10.31 per cent. 

There is a significant 10 percentage point difference between BPL and APL households. While BPL families have been receiving 

subsidy for construction of toilets since the beginning of TSC, a lesson learnt is that subsidy will not always motivate community to 

construct and maintain toilets. Region wise data shows that Nagpur and Nasik regions are having highest percentage of defunct 

toilets i.e. 22.95 and 22.83 per cent respectively. Even if the percentage of defunct toilets is further reduced, then also at present 

38 per cent rural households have functional toilets in their premises which is at par with the Census 2011 findings. 

In short, achieving the objectives defined through Project Implementation Plan (PIP) under Nirmal Bharat Abhiyan for the state 

requires a well thought out strategy on different components of the programme including Information, Education and Communication 

(IEC) to address equity and gender. 

2.3 IEC an important component of NBA 

Information, Education and Communication (IEC) is an important component of the Nirmal Bharat Abhiyan which firmly believes that 

demand driven approach is a way to achieve sustainable sanitation. The IEC component has been designed in such a way that it can 

generate demand and aspiration for improved sanitation facilities at the household level addressing equity. The continuing weightage 

to IEC components since TSC time (15 per cent of the total budgetary allocation) clearly indicates its importance. Creating 

awareness, strong advocacy with the major stakeholders and social and behavioural change communication (SBCC) are the three 

major components of the programme. Interpersonal communication and door to door visits are recognized as the most significant 

tools for achieving the programme goals and 60 per cent of the total IEC budget has been allocated for these activities only. To 

strengthen communication machinery at village level different triggering methods using participatory social mobilization provision for 

engaging community and village motivators have also been made. For effective dissemination of IEC material, funds will be provided 

under IEC component to district, blocks and GPs for execution of work which can be done by engaging local NGO and village level 

motivators (Swachhata Doot). 

2.4 Why SHACS Framework? 

Research studies carried out during recent past in the country clearly indicate that the effects of poor sanitation seep in to every 

aspect of life and it also perpetuates an intergenerational cycle of poverty and deprivation. In this backdrop meeting the country’s 

sanitation and hygiene challenges requires an urgent focus on triggering the demand to build the toilets, ensuring their quality, use 

and maintenance. In order to make this happen there is need for sustainable resources and time investment to inculcate a lasting 

change in behaviour and adoption of key hygiene practices at the community and household level. Changing the social norms and 

misconceptions among community is always a challenge and requires evidence based long term strategic approach. Sanitation and 

Hygiene Advocacy and Communication Strategy Framework 2012-17 (SHACS) has emerged out of this approach which focuses on 

the behaviour change pertaining to improved and sustained sanitation practices. 

About National Framework on SHACS 

National Sanitation and Hygiene Advocacy and Communication Strategy Framework 2012-17 (NSHACS) is framework developed 

jointly by Government of India, Ministry of Drinking Water and Sanitation and UNICEF, New Delhi to bring out appropriate strategies 

for behaviour change communication under IEC component to make villages open defecation free by build and use of toilets, hand 

washing with soap in critical periods, handling and storage of drinking water and safe disposal of child excreta. SHACS is more 

objective and integrated approach in which critical sanitation and hygiene behavioural issues are identified and approaches are 

suggested to bring about positive change which is also sustainable. It also throws light on selection of activities under IEC and 

specific guidelines in terms of budgetary allocations. Inter-personal communication is the core of this approach leading to social and 

behavioural change. One of the major features of SHACS is that it has incorporated monitoring and evaluation framework as part of 

14

strategy along with measurable indicators and means of verification. NSHACS 2012-17 has been developed and states are advised 

to formulate state specific Sanitation and Hygiene Advocacy and Communication Strategy Framework 2012-17 (SHACS) to give 

proper direction to the district activities based on yearly district communication plan under the IEC component of state-led Nirmal 

Bharat Abhiyan. 

2.5 Open Defecation Elimination Programme (ODEP) and SHACS 

The biggest challenge under NBA programme is open defecation elimination (ODE) as even after efforts of more than decade old 

sanitation programme 55 per cent of the state rural population still practices open defecation. Open defecation on such a scale with 

multiple diversities needs awareness generation and advocacy among all stakeholders including politicians, administrators, 

implementers and frontline workers to prioritise open defecation elimination programme (ODEP) at policy and execution level. At 

community level planning and implementing communication activities leading to social behaviour change for creation of demand for 

construction and use of toilet is also required. Since elimination of open defecation is visualized through NBA, will require systematic 

and result oriented approach towards communication component. The communication plan should be well equipped with the menus 

for different levels considering their roles and responsibilities. Sanitation and Hygiene Advocacy and Communication Strategy 

Framework 2012-17 (SHACS) developed by GOI and UNICEF brings out the required strategy to strengthen communication activities 

and to establish link between the programme and the community for which it is made. SHACS provides an integrated approach to IEC 

component as it talks about all the aspects including identification of resources, capacity building plans at different levels, activity 

listing, fund management and monitoring and evaluation plan. In other words the world’s largest sanitation programme (i.e. NBA) is 

started and the major stakeholder i.e. rural community is also identified with its needs, now it need an instrument to establish the 

link between these two and that instrument is Sanitation and Hygiene Advocacy and Communication Strategy Framework 2012-17 

(SHACS). 

15

2.6 Goal of SHACS (2013-2017) 

1. The overall goal of the SHACS is to attain a positive social and behaviour change among the rural community of Maharashtra 

with respect to knowledge on 

Build and use of toilets 

The safe disposal of Child Excreta 

Hand washing with soap after defecation, before food and after handling child faeces and other personal hygiene practices. 

Safe storage and handling of drinking water 

2. To impart and ensure knowledge on improved sanitation and hygiene behaviours to the individuals translates into practices like 

Building of toilets 

Always use a toilet 

Dispose child excreta safely 

Wash hands with soap on critical times 

3. To change social norms making open defecation unacceptable among all 

2.7 Objectives 

52 per cent (64.92 lakh HH) rural population who do not have toilets will have a positive attitude towards building and use of 

toilets with focus on Marathwada and Vidharbha by the end of 2017. 

Increased knowledge of at least 70 per cent elected representatives (at all levels) and opinion leaders on importance of 

elimination of open defecation and its sustenance by the end of 2015 and all by the end of 2017. 

Increased knowledge of parents and caregivers on safe disposal of child excreta in all the GPs selected for village saturation 

approach as per the state PIP by the end of 2017 in a phased manner. 

Increased knowledge of rural HH on the benefits of hand washing with soap and importance of better water handling practices 

at household level in all the GPs selected for village saturation approach as per the state PIP by the end of 2017 in a phased 

manner. 

Increased knowledge of 30 per cent of rural slip back HH and all the PRIs of 9521 NGP GPs on continuing use of toilet by the 

end of 2014. 

100 per cent HH of the achieved saturated GPs always use a toilet and dispose child excreta safely by completion of every AIP. 

At least 90 per cent of the HH in achieved saturated GPs wash hand with soap on critical times and engaged in safe water 

handling practices by completion of every AIP. For the year 2013-14 it will be achieved among 3,695 GPs and 6.14 lakh 

families. 

17

18 

Chapter 3

NIRMAL BHARAT ABHIYAN IMPLEMENTATION IN THE STATE 

3.1 Communication Approaches 

Majority of the Indian rural masses are not aware about general sanitation and hygiene practices. Governments of India as well as 

Government of Maharashtra have implemented a number of sanitation and hygiene programs to promote sanitation and hygiene 

practices on both levels, i.e. individual as well as gram panchayat level. While implementation of these programmes helped increase 

awareness level of rural masses, somehow the expected behaviour change has not taken place. 

Considering the constraints, the National Sanitation and Hygiene Advocacy and Communication Strategy Framework (NHACS) 

focused on four selected critical Sanitation and Hygiene behaviours- 

1. Building and use of toilets 

2. The safe disposal of child faeces 

3. Hand washing with soap after defecation, before food and after handling child faeces 

4. Safe storage and handling of drinking water 

The Government of Maharashtra has decided to focus on the afore-mentioned four critical sanitation and hygiene behaviours as 

derived by the NHACS. Therefore the communication strategy for the state of Maharashtra is bound to be guided by these four 

considerations. While, the state has also decided to follow the National Sanitation and Hygiene Advocacy and Communication 

Strategy Framework, some changes according to state specific context have been done during implementation. 

3.2 Social Norms 

Every society has its own social norms towards the issue related to their 

lifestyles and day to day activities, especially in villages. Masses from 

rural Maharashtra have set norms of sanitation and hygiene practices and 

that are widely accepted by society. 

Evidence shows that the most effective approach leading to behaviour 

change is a combination of efforts at all levels – individual, interpersonal 

network, community and societal. For effective communication, different 

levels are reached with different communication approaches. 

The great challenge is to change the mind-sets of rural masses that are 

following the set norms of sanitation and hygiene practices traditionally. 

Hence the communication strategy of changing behaviour regarding four 

critical hygiene practices should be focused considering the following 

social norms. 

“Social norms are the rules people in 

a society are expected to abide by. 

They are ‘agreed upon’ rules by which 

a culture guides or shapes the 

behaviour of its members in a given 

situation. Sanctions of different types 

and degrees (stigma, social exclusion, 

fines, etc.) are usually expected for 

those who do not adhere to the 

norms. Norms can suggest what 

behaviour/ practice should be followed 

or which behaviour/practice should 

NOT be followed, thus providing easy 

guidance in a number of situations 

(queuing, stealing, bringing a gift 

when invited, etc.)” 

19

Box 1: Social norms generally followed by rural community in Maharashtra 

Villagers normally decide the space or location for open defecation in the village. 

As space is available for open defecation, they don’t feel the need and importance of toilets. 

Male rural population or opinion leaders (generally men) don’t feel to construct a toilet for women for the sake of their 

dignity as they feel, there is a separate space available for defecation for women in village itself. 

The rural community feels that the child faeces are harmless, which is otherwise. 

It is assumed that simply washing hands with water is enough to clean the hands during critical times. 

Fetching, storing and handling of water is generally the responsibility of women (primarily at household level). 

Water fetched from natural reservoirs like well, bore well, lake, river etc. is safe for drinking. 

The Communication Strategy focuses on 

The immediate need for individuals adults and children, men and women to change existing traditional perceptions about the 

importance of sanitation and hygiene practices and accept better sanitation and hygiene practices 

The long term need for the whole of rural society to agree that it is not socially acceptable to practice open defecation, handle 

child faeces, ignore hand washing with soap or store and handle drinking water inappropriately. 

It is only a change in individual practice coupled with a change in the social norm that will bring about a positive change for everyone. 

Changing an Individual’s Behaviour 

To achieve a positive change in human behaviour it is important to recognize that individual behaviour is complex. Human behaviour is 

determined by close social networks and also the socio-cultural and physical environment that each person lives in. Bringing about 

changes in an individual’s behaviour requires a look at the person’s environment at different levels, from the household and 

community to the institutions responsible for support and the policy framework. Each of these levels influences how an individual 

behaves. 

20 

STRUCTURAL ENVIRONMENT 

Infrastructure, economic barriers 

PUBLIC POLICY 

National, state, local laws 

INSTITUTIONAL 

Staff capacities, resources, mandate 

SOCIO-CULTURAL 

Community norms and social networks 

INTERPERSONAL 

Family & friends 

INDIVIDUAL 

Knowledge, attitudes, 

skills, practices 

Focus on change at 

different levels 

Multiple dimensions 

influence individual 

behaviour as 

depicted in the 

figure. 

Interpersonal factors, 

socio- cultural and 

policy environments 

all influence 

sanitation and 

hygiene behaviours

3.3 IEC Activities and the efforts taken for its strengthening during last three years 

Department of Water Supply and Sanitation, Government of Maharashtra, through its organization Water Sanitation Support 

Organization (WSSO) together with UNICEF is continuously making efforts to strengthen its communication activities for the better 

participation of rural community in the area of water and sanitation. Maharashtra has pioneered many initiatives and set the road 

map for successful implementation of campaigns. Following are the few major initiatives towards strengthening its IEC efforts in the 

area of water and sanitation and list of major activities conducted during last three years. 

State level workshop in collaboration with UNICEF Mumbai on 1 December 2011 

WSSO organised state level workshop at Aurangabad on 1st December 2011 with the following specific objectives: 

Strengthening the IEC efforts being taken up across the state, orienting IEC specialists on various elements of communication 

strategies 

Elements for preparation of output based district IEC action plan, 

Sharing best practices and to review overall performance of IEC activities in the state. 

Group discussions were conducted on the various issues related to IEC and the reports presented by groups helped in: 

Understanding loopholes in the existing IEC strategies and capacity building system, ways and means to develop strategy with 

participatory approach 

Strengthening IEC efforts and possibilities of convergence to reach the masses with appropriate messages. 

The entire workshop was led by Principal Secretary and Director WSSO, UNICEF State Programme Officer and many more key 

persons were among the facilitators. All the IEC experts from districts attended this workshop. This state level workshop helped in 

shaping IEC efforts across the state to lead towards behaviour change among community for better sanitation and hygiene practices. 

Communication skill building on Water, Sanitation & Hygiene (WASH) 

A workshop on inter personnel communication, training effectiveness and media communication skill on water, sanitation and 

hygiene was organised by Abhivyakti Media for Development during 28-29 June 2011 at KT Hill Resort Virar in collaboration with 

UNICEF. The objective of the workshop was to enhance and strengthen knowledge, skills and perspective of district level TSC 

Consultants , district level IEC Specialists, representatives of the Key Resource Centres (KRCs) and Jalmitra about effective use of 

IEC material with community and realize their role as 'trainers' to transfer this knowledge within functionaries. Two day workshop 

developed a training module for enhancing the communication skills of district level water and sanitation functionaries and created a 

pool of 100 master trainers on communication related to Water, Sanitation and Hygiene in the State and Training Module including all 

required training tools. Apart from these outcomes workshop helped in developing a perspective towards communication activities 

and its importance. It also motivated on selecting and experimenting the different means and tools for effective communication. 

Innovative IEC Materials and tools 

UNICEF in partnership with Government of Maharashtra is working intensively to ensure better access to improved sanitation and 

water facilities for the rural population of Maharashtra to lead a better quality of life and reduce morbidity and health expenditure. It 

is obvious that a planned Behavioural Change Communication supported with social marketing of WASH hardware elements is the 

need of the hour. It should be a process driven approach with proper balance of both hardware and software elements blended with a 

strong peer pressure and learning. 

Every year a large portion of resources (INR 8-10 Crores) under NBA and National Rural Drinking Water Programme (NRDWP) is 

allocated under IEC component. As per the recent circular from GoI, 60 per cent of the allocated IEC fund needs to be utilized by the 

gram panchayats. However, the large portion of IEC fund either used in printing of same old materials, meeting, workshops and travel 

21

without understanding the changing need in the society. Still, there is huge potential to use this resource in a constructive way 

supported by proper evidence and field research so that objectives under NBA and NRDWP can be achieved. 

In this background, UNICEF Mumbai engaged Innovation, a Lucknow based media and communication agency to support in developing 

innovative IEC materials and tools on sanitation, personal hygiene and water supported by desk and field research. The overall 

objective of the services was to undertake a rapid need assessment followed by desk review of existing IEC materials on WASH and 

field research in Chandrapur and Latur to develop field tested creative IEC materials to overcome the above stated barriers and train 

60 IEC consultants from DWSM at state and district level. The deliverables were 

A rapid need assessment and desk research of existing WASH IEC materials developed by different districts at state level 

Conducted a field research to understand the barriers in WASH communications at different levels in Chandrapur and Latur 

Thirty different appropriate behavioural change communication materials developed on water, sanitation and personal hygiene 

with a focus on tribal and excluded population, frontline workers of health and anganwadis, students, committees like Village 

Water Sanitation Committees (VWSCs), School Management Committees (SMCs), Self Help Groups (SHGs), Community Based 

Organizations (CBOs) and adolescent girls groups and field test in Latur, Sholapur and Chandrapur 

Undertook training of 60 IEC experts at state and district level on usage on the IEC materials 

Table 12: Last Three Year Information, Education & Communication (IEC) Activities 

Celebration of 

Days 

“Swachatta 

Mitra Elocution 

competition 

2011-12,& 

2012-13 

“Sujal –Nirmal“ 

Monthly 

Magazine 

Swatchta Dindi 

22 

In Maharashtra the following days have been celebrated on a regular basis as a part of communication strategy 

through advertisements, rallies, competitions and public meetings: World Women’s Day, World Water Day, World 

Health Day, Maharashtra Day World Water Day, Hand Washing Day, World Toilet Day, Anniversaries of Spiritual 

& Social Leaders etc. 

“Swachatta Mitra” - elocution competition has started since 2011-12 with an objective of involving youth in 

the campaign. 

The elocution competition is the biggest competition in the country. 

More than 15,000 students participated in the last year’s competition. 

The competition is organized at block, district and state level. 

State level competition is arranged on the occasion of Youth Day and the winners at state level have now 

been engaged as ‘Resource Persons’ in WASH programme. 

WSSO has started monthly magazine of 32 pages called “Sujal – Nirmal.” 

First issue was published on 29 June 2012. 

Sujal – Nirmal Magazine mainly highlights WASH activities, guidelines, events and GRs 

It is wildly circulated across the state with more than 5000 copies circulated on a monthly basis 

This is a mega spiritual event of the state called ‘Palkhi Sohla’. There are two march simultaneously 

between Dehu, Alandi district in Pune to Pandharpur district Solapur (the most popular and oldest Spiritual 

Places influencing entire Maharashtrian community centuries together) 

Department has visualised importance and opportunity to interact with masses through this spiritual event 

and started Swachta Dindi. Since last seven years the department has continuously organizing this event. 

In both the Dindis 16 IEC mobile vans are deployed to disseminate sanitation massages. 

20 kalapathks and more than 200 folk artists participate in both the dindis. 

The Swatchta dindi has gained immense popularity and has been extensively covered by leading print 

media and TV channels. 

Hon’ble Minister addresses many public meetings and press conferences on the dindi marg 

300 hoardings of sanitation massages were displayed in pandhrpur as well as road side of the dindi.

Swachatta 

Utsav 

Hand washing 

campaign 

Nirmal Swrajya 

Mohim- 

Campaign 

Mahacharcha 

TV Talk Show 

Kirtankar 

Parishad 

During the Yatra period messages about the sanitation was scroll on Marathi Channels . 

On 29/06/2012 a closing ceremony is arranged in presences of Hon. Chief Minister, Hon. Minister of rural 

development, Hon. Minister of water supply & sanitation. 

Swachatta utsav organized during the 2 October to 4 November 2011, On the basis of Sant Gadgebaba 

Campaign from Maharashtra suggested by GoI. 

At State Level Swachta utsav inaugurated by Hon Chief Minister, Hon. Minister of rural development, 

Hon. Minister of water supply & sanitation .At District level Chair Person, Zilla Parishd inaugurated the 

said campaign 

On these occasion advisements were published in 10 major newspapers of the state 

At district places Swachatta utsav is inaugurated in presence of ZPs president & officers. 

Arranged awareness campaign was carried out during Swachta Utsav 

State celebrates Hand washing day on 15 October every year 

Special thrust on Promotion of proper hand washing practices among school children is given through this 

campaign. Various advertisements are published in major news paper 

Demonstration of hand washing at public places is one of the major features of the campaign. 

The Nirmal Swarajya Mohim carried out in the state during 2010-11 & 2011-12 during the birth 

anniversaries of “Chtripathi shvaji Maharaj & Dr. Babasaheb Amebdkar 

Objectives of the campaign were increase the coverage of sanitation in low performance villages. 

During the Mohim different days are celebrated, Advertisements are published telecasting of episodes on 

WASH issues on TV Channels, TV Spots also telecasted. 

During the Campaign at village level meson training programme, melavas, programmes of the kalapathk 

were organized. 

This campaign proved to be useful as major number of IHHL (more than 50%) is constructed during the 

period. 

The Unique initiative of the state to rech masses across the state through electronic media is a popular 

talk show on Sahyadri, Doordarshan, “Mahacharcha”. Dedicated TV talk on WASH issues, state policies & 

best practices. The participation of subject experts, Government Authorities, Public Representatives & 

Opinion leaders made this show more useful. 

Till the Date 5 Episodes are telecasted. This Program is popular in rural area 

Kiratankars are spiritual speakers and having a respect among the community. In all the villages in state 

community organises a week devoted towards spiritual activity called Saptah and these Kirtankars orients 

the community through it with this background Government decided to involve Kirtankars in the campaign 

to appeal community for better hygiene practices. 

The first interaction with these Kirtankars made through Kirtankars Parishd orgnized on WASH issue in 

2011 at Alandi (Pune). The response was encouraging as 700 Kirtankars participated in the Parishad. 

23

3.4 Short, Medium and Long term targets addressing regional disparity, sustainability and 

gender mainstreaming 

# Targets Regional disparity Sustainability Gender Mainstreaming 

1 Short 

term 

2 Medium 

term 

3 Long 

term 

24 

Identification of low 

performing Regions, 

Districts , Block 

Launching special 

communication drives for 

low performing areas 

Identification of additional 

resources & strengthening 

of Existing resources to 

support campaign 

Effective and regular 

system of Monitoring of 

IEC activities 

Special initiative for 

involvement of PRIs 

Effective implementation 

of campaign to 

brought below average 

regions with state average 

Assessment of earlier IEC 

efforts made through short 

term targets to improve 

upon upcoming strategies 

Develop social norms not 

to except open defecation 

Bring behaviour change 

among rural community 

regarding hygiene 

Identification of slip 

back NGP Awarded GPs 

Development of trained 

technical human 

resource 

Development of 

knowledge bank on 

viable technological 

options 

Special initiative for 

motivating community 

towards repairing all 

defunct toilets 

Develop culture of 

social marketing for 

economics of sanitation 

Promote events leading 

Cross learning among 

GPs at various 

stages of NBA 

Imparting ownership 

feel among rural 

community towards 

available sanitation 

facilities 

Development of model 

villages to inspire & 

guide 

Identification of low performing Regions, 

Districts, Block in gender prospective i.e. 

low % of toilets in women headed families, 

less participation in various IEC activities 

etc. 

Development & dissemination gender 

specific materials & tools 

Under take regular internal monitoring & 

evaluation of progress made & obstacles 

encountered in integrating gender 

perspective 

Awareness raising workshops for the 

concerned personnel of state, District level. 

On gender sensitive legislation , norms 

related to sanitation & importance of 

participation of both men & women 

Formation of core of women with 

involvement of AHSA, AWW, ANM, SHG 

group sustainability issue. 

Mechanisms / networks for knowledge 

sharing & exchange, good practice of 

women participation in ODF process. 

Design special campaign with involvement 

of Female PRI members , GP”s 

members for low performing districts 

Integrate gender mainstreaming pro poor 

issues into planning , implementation of 

sanitation activities 

“ Toilet is symbol of dignity & privacy of 

women” set as basic social norm 

Efficiency, effectiveness, equity & 

affordability are the main gains of adopting 

a gender approach in sanitation &

# Targets Regional disparity Sustainability Gender Mainstreaming 

practices 

Create competitive spirit 

among villagers to be at 

par with other developed 

regions 

Motivate to achieve & 

maintain 100% ODF 

status 

Promote community 

monitoring culture for 

sustainable sanitation 

Promote culture PPP to 

generate resource 

support 

empowering women to participate 

unequivocally 

Adequate representation of men & women 

in planning, operation, maintainers as well 

as management 

Positive & direct impact on rural women’s 

quality of life & productivity through time 

& energy savings, improve health, cleaner 

environment. 

Enhance self–esteem and status of 

women. 

The building blocks 

The strategy envisages reaching the goal of changing people’s knowledge, attitudes and practices through different communication 

activities in a phased manner. Every phase is designed to achieve a specific set of communication objectives, each of which will act 

as a building block for the next. 

3.5 The Three Phases of the Sanitation and Hygiene Advocacy and Communication Strategy 

Framework 

Phase 1 

Raising Awareness 

Increase the number of 

individuals who 

describe open 

defecation as a problem 


individuals with correct 

knowledge about 

sanitation and hygiene 

practices 

Phase 2 

Advocacy 

Engage key 

stakeholders who 

understand the 

importance of 

sanitation and can 

describe government 

initiatives for total 

sanitation 

Build alliances/ 

partnerships to support 


programmes 

Phase 3 

Social & Behavioural Change 

Communication 


individuals with a positive 

attitude towards - (a) 

Building and Using Toilet; 

(b) Safe disposal of child 

faeces; (c) Handwashign 

with soap at critical 

times*; & Safe storage 

and and handling of 

drinking water 

Increase number of 

individuals who - (a) Build 

toilets; (b) Always use a 

toilet; (c) Dispose of child 

faeces safely; & (d) Wash 

their hands with soap at 

critical times 

*after defecation, before handling food and after handling child’s faeces 

25

The Strategy is divided into three distinct phases 

Phase 1: Raising Awareness 

Phase 2: Advocacy 

Phase 3: Social and Behavioural Change Communication. 

Phase one and two of the strategy present significant overlap as the focus is on raising understanding and visibility of sanitation and 

hygiene behaviours and creating an enabling environment for change. Phase Three, social and behaviour change communication 

empowers individuals and family members to take decisions based on information and improved understanding; and motivates the 

community to play a proactive role in supporting change and influencing perceptions, beliefs and attitudes to change sanitation 

practices and existing social norms. 

The three phases are not fully sequential, as there will be a degree of overlap in activities carried out through the implementation. 

Through these three overlapping phases, the strategy will reach out to children, women and men, influencers and decision makers 

across the country, at strategically appropriate times, to create a momentum of supportive public will and a social movement for 

positive change. 

Advocacy and Communication Activities 

The communication activities identified for the different phases are designed to raise awareness levels on the importance of adopting 

sanitation and hygiene behaviours, influence attitudes at the household and community level and promote adoption of hygiene 

practices. The first and the second phase of the strategy will be carried out simultaneously followed by the third phase. 

State level activities 

Phase 1: Raising Awareness 

The focus will be on enhancing knowledge of audiences on understanding open defecation as a problem and provide correct 

knowledge on sanitation and hygiene practices. As the objective of this phase is to raise awareness and increase knowledge the 

emphasis will be on increasing the visibility of the issues and keeping it firmly in the national spotlight. 

26 

Three phases of the Sanitation and Hygiene Advocacy and Communication Strategy Framework 

Phase 1: Raising Awareness- Designed to raise visibility of the importance of good sanitation and hygiene behaviours and to 

build public support, creating an enabling environment for change. 

Phase 2: Advocacy- To arm influencers and decision makers with the information they need, and to encourage them to speak up 

and to take action for positive change. 

Phase 3: Social and Behaviour Change Communication- To empower individuals and families to make decisions based on correct 

information and improved understanding and to motivate communities to help create positive social norms.

Audience: 

General public- Statewide 

Main messages: 

Correct knowledge of Sanitation: 

Address the State on the dangers of open defecation and need for correct hygiene practices 

Understand and acknowledge the need for building, using, and maintaining a toilet. 

Correct knowledge of Hygiene practices: 

Understanding why safe disposal of child faeces is important/ risks related to not disposing child faeces safely and ways 

to dispose child excreta safely 

Know the critical times of hand-washing with soap-after defecation, before food and after handling child faeces 

describe the benefits of hand-washing with soap/risks of not washing hands with soap at critical times 

Know how to safely store and handle drinking water/risks related to drinking contaminated water 

Communication activities: 

Mass media campaign 

Mobile media campaign 

Engaging social media 

Promotion through Brand Ambassador 

Table 13: Details of the communication activities to be undertaken at state level 

Category Strength/Purpose Activities/material 

Mass media Reach to the masses at a time. 

Overcome barriers of literacy and language. 

Good Coverage and Penetration 

Good for public service announcements. 

Outdoor media Reinforcement to other media. 

Reminder Media. 

Mobile Media 

Campaign 

Useful to build awareness and create a 

national movement demanding adequate 

sanitation and hygiene standards for India 

to stop open defecation. 

Production, schedule and Broadcast of - 

Television Production 

Radio/Audio Production 

Newspapers/magazines 

Press Releases/Advertisement 

Highly circulated printed material 

Web Based publicity 

Films/Short Films/Documentaries 

Cable publicity 

Wall Writings/Paintings 

Posters 

Hoardings on various strategic locations 

Banners 

Audio/video announcements, displays 

Exhibitions 

State Level Competitions 

Recorded Message of State level/national Level 

celebrities with appeal. 

SMS to mobile user on sanitation and hygiene 

promotion 

27

28 


Social media Web Based Media 

Free Access 

Wide Spread. 

Print Media Can be documented. 

Stored hard copies as well as soft copies. 

Can be referred as and when required. 

Celebrity 

spokesperson 

Well known to people 

Good Image 

Popular status 

Messages can be sent through social 

networking sites like face book. 

Videos or visual documentation upload on you 

tube. 

Booklets 

Brochure. 

Leaflets/Pamphlets 

Manuals etc. 

Messages given by celebrities are easily 

acceptable by people. 

Messages delivered by celebrities can be given 

through any medium or live 

Phase 2: Advocacy 

The purpose of the advocacy phase of the strategy is to mobilize government, media, civil society, implementing agencies and other 

stakeholders to strengthen sanitation programming and policies. Advocacy will create a platform to bring about effective 

implementation of the programmes of the government. The focus of the communication will be to inform through evidence-based 

advocacy to increase knowledge and influence key decision makers. The objective is to galvanize support to translate commitments 

into concrete actions. 

Audience: 

Elected Representatives, Policy makers, Line departments, programme managers, media, opinion leaders, youth, academia, private sector 

Main messages: 

Understanding the importance of sanitation and information on government initiatives for total sanitation 

NBA programme; the different components of NBA 

Importance of communication within the NBA, the challenges of implementation 

and solutions . 

Key stakeholders’ roles and responsibilities in implementation 

Sharing relevant sector and programme information to build alliances/partnerships to bring in support for sanitation and hygiene programmes 

Advocacy activities 

One to one meetings 

Sensitization workshop 

Field/exposure visits 

Seminars/ conferences 

Public private partnerships 

Table 14: Details of the Advocacy Activities to be undertaken at State level 


Evidence-based 

advocacy 

package 

The package can be use to orient policy 

makers, elected representatives (PRI, MLAs, 

MPs) in order to gain their support to the 

Fact Sheets 

Human Interest Stories 

Best Practices/case studies in sector.


Media kit for 

journalists 

programme in Sanitation and hygiene 

programmes in state/their constituencies. 

To encourage media for building positive 

partnership in state, region and district level. 

State fact Compiled data shows overall scenario of the 

sheets 

state in the field of sanitation and hygiene. 

Useful for showcasing state scenario to state 

and central government counterparts. 

Guiding document for further implementation 

of the programme. 

Field visits To increase awareness level on sanitation 

issues among elected representatives, media, 

celebrities etc. to increase civil society 

contribution 

programme 

and participation in the 

Process 

documentation 

Seminars and 

conferences 

Strengthening 

institutional 

capacity 

Private sector 

partnerships 

To create data bank of meaningful 

documentation of the various innovative 

activities undertaken in the sanitation sector. 

The data can be shared among various 

stakeholders for better results. 

A Good platform for sharing the experiences 

and learn good things from others to improve 

performance. 

To strengthen and update the knowledge and 

skill levels. 

Build partnership with corporate and share 

responsibility to promote sanitation and 

hygiene in their jurisdiction 

Power Point Presentation. (PPTs). 

Published Reports and Studies. 

Published Newsletters 

Fact Sheets 

Human Interest Stories 

Best Practices/case studies 

Photo essays. 

Photo documentation on sanitation and hygiene 

CDs containing photos 

CDs of Short Films 

Compiled summary of baseline data. 

Power Point Presentations. 

Reports. 

Field exposure to such villages/GPs where 

remarkable work under sanitation and hygiene 

undertaken. 

Interaction with key persons of such GPs to 

understand the entire process of the initiative and 

results in such GPs. 

Best Practices 

Case Studies. 

Lessons Learned 

Innovative Activities 

From the Field 

Field news. 

State level conferences of Collectors/CEOs 

Organization of seminars to share the views and 

thoughts among state govt., line department and 

partners in the sector. 

Strengthen the capacity of – 

key opinion leaders 

Policy makers 

NGOs 

Nodal Institutes 

Develop messages 

Disseminate messages to the field 

Design and undertake campaign in their areas. 

29

District, block, village/GP level activities 

Phase 3: Social and behaviour change communication 

High level of awareness and understanding among the broader public and an enabling environment to support change are important in 

this phase. Communication approach using suitable media mix especially IPC tools will be used for changing attitude and hygiene 

practices of key stakeholders. IPC tools can be proved best to change sustainable attitudinal and behavioural change towards the 

four critical WASH behaviours. 

Audience segmentation is an integral part of any best communication strategy. Audience segmentation allows for better designed, 

more focused and more effective messages. Primary and Secondary audiences would be identified carefully. Type of Audiences are- 

Primary Audiences House Holds (families), Men, Women and Children 

Secondary Audiences Peers, school going children, teachers, PRIs, SHGs, community leaders, volunteers, religious 

leaders, frontline workers like AWW, ASHA, Swachchhata Doots 

IPC allows having direct communication through discussion, meeting etc., one to one or group communication and having a great 

scope of interaction and feedback. Folk media can play complimentary role to register messages and help the change in behaviour of 

stakeholders. It also helps to enhance the understanding of the risks and benefits that such behaviour can bring if adopted. The 

secondary audience plays a key role in influencing the primary audiences to adopt the positive behaviours ensuring that it does not 

seem to be behaviours prescribed from outsiders. Advocacy with opinion leaders and influential sources on district, block and GP 

level will play an important role. 

Table 15: Suggested Activities for Behaviour Change Communication through IPC 


Interpersonal 

communication 

(IPC) 

Community 

Mobilization 

30 

An interactive medium 

One to One and small group interaction is 

possible. 

Scope for immediate feedback on ideas, 

messages and practices. 

Local Resources, network can be utilized 

while doing IPC 

Most effective in rural settings, where 

communities form closely intertwined units. 

Opinion leaders and other influential sources 

can influence for Behavioral change locally. 

Trained Frontline workers can play an 

important role in local mobilization. 

Community can directly participate in local 

level sanitation and hygiene activities. 

Community mobilization is essential for 

desired practices to become the norm in the 

community. 

Training to Frontline workers to improve 

 

Interpersonal skills. 

Training on IPC tools. 

Strengthen interpersonal communication skills 

 

among community volunteers 

Organize community volunteer-led home visits and 

small group educational meetings 

To ensure participation in Sanitation and Hygiene 

programme at local level- 

Strengthen social network at local level (CBS, 

Volunteers, SHGs, Youth Groups etc.) 

Train on Use of IPC tools –within groups 

Train local leaders to facilitate public educational 

talk and have dialogue on sanitation and hygiene. 

Conduct Group Meetings at GP/Block level. 

Knowledge sharing meetings on district/block/GP 

level. 

Transit Walk 

Rallies on sanitation messages. 

PRA 

Local events to reinforce the sanitation and hygiene


behaviour. 

Home visits. 

Entertainment 

education 

Outdoor media 

and traditional 

media 

Social marketing 

activities 

Useful for reinforcement messages 

Complementary to other communication 

efforts 

Learning through entertainment make 

messages easy to understand. 

Reminder media 

Can be used as reinforcement to IPC and 

community mobilization activities. 

Display messages through display media are 

always seen 

To promote the adoption of specific 

practices and products aimed at improving 

the sanitation and hygiene situation 

Gaining an understanding of customer 

behaviours and drivers of consumer demand 

Street plays/ Dramas/cultural shows 

Radio Dramas, 

Songs 

School Plays 

Games and local competitions 

Story telling 

Hoardings 

Wall Paintings/Wall Writings 

Banners 

Folk troupe performances 

Local Exhibitions 

Mobile van activities 

Promote Rural Sanitary Marts 

Empanelment/Listing of competent Service Providers 

Capacity building of service providers. 

Make planning to get necessary products/services in 

reasonable rates. 

Audience: 

Primary: Households/ family, i.e. men, women and children 

Secondary: peers, school going children, teachers, PRIs, SHGs, community leaders, volunteers, religious leaders, frontline 

workers like AWW, ASHA, Swachchhata Doots 

Main Messages: 

Correct knowledge of sanitation and government programmes: 

o Understand the benefits of using toilets regularly and acknowledge need for toilet 

o Describe the different sanitary options available and awareness of the cost 

o Awareness about government sanitation programme 

o Understand the processes involved in building a toilet 

Correct knowledge of hygiene practices: 

o Caregivers know why safe disposal of child faeces is important/ risks related to not disposing child faeces safely 

and ways to dispose child excreta safely- dispose in a toilet; bury at a safe distance from home. 

o Know the critical times of hand washing with soap- after defecation; before preparing food; before eating; after having 

contact with faeces; after cleaning a child’s bottom Describe the benefits of hand washing with soap/risks of not 

washing hands with soap at critical times 

o Understand the benefits of safely storing and handling drinking water safe storage and handling of drinking water so as 

to not contaminate it- keeping the stored drinking water covered and using a long handled ladle for drawing out water 

Communication Activities: 

Interpersonal communication 

Community mobilization 

Multi-media campaigns including-mid media and traditional media 

Entertainment education 

Social marketing 

31

3.6 State Level Proposed Activities 

Approaches Purpose Stakeholders/Activities Responsibility Time Line 

Advocacy To influence public and policy 

with information and to raise 

the issue of sanitation higher in 

the policy agenda and in the 

minds of the people. 

Interpersonal 

communication 

(IPC) 

Community 

mobilization 

32 

To raise awareness on the 

importance of sanitation among 

the rural community and support 

the increased interest and 

willingness to uptake sanitation 

and hygiene practices. 

To initiate dialogue among 

community members to deal 

with critical issues of sanitation 

and hygiene and also provide a 

platform for the community to 

Awareness/Orientation/S 

ensitization for decision 

makers like- 

MPs and MLAs. 

Chairman and members 

of ZP 

Secretaries of Line 

Departments like- RDD, 

Public Health, women 

and Child Development, 

Education etc. 

ZP officials- CEOs, 

Addl. CEOs, Dy. CEOs 

Minister/Secretary/P 

D & HRD section. 

PD/Director WSSO 

and HRD Section. 

Secretary/PD and 

HRD Section. 

Director WSSO & 

HRD Section. 

Various types of Director WSSO & 

opinion leaders 

HRD Section. 

Media Advocacy Minister/Secretary/P 

D & IEC section 

Field and exposure 

visits. 

Seminar and 

conferences. 

IPC Tools development 

on sanitation and 

hygiene practices 

Training on toolkit to 

be given. 

Dissemination of 

Communication 

Material and Tool kit to 

Districts. 

Guidelines of IPC 

activities to be shared 

with district teams. 

School Sanitation 

Through IPC Tools 

Guidelines to be issued to 

districts to conduct 

following activities at 

district, Block and GP level. 

Conduct PRAs 


HRD Section. 


HRD Section 

IEC–WSSO 

Oct 2013 

Oct 2013 

Oct 2013 

Club up with HRD 

trainings 

Club up with HRD 

trainings 

June 2013 

Oct 2013 

Oct 2013 

May 2013 

IEC –WSSO April 2013 

IEC–WSSO 

May 2013 

IEC -WSSO May 2013 

DWSM/BRC July – Nov 2013 

June – Sept 2013


participate in decisions that Thematic/Topical PRAs 

June – Sept. 2013 

affect their daily lives. Transit Walk DWSM/BRC 

June – Sept 2013 

Mass Media To raise mass awareness, 

promote the four critical 

behaviours and programme 

information. Simultaneously also 

provide support to interpersonal 

and community mobilization 

efforts by reinforcing and raising 

the credibility of the message 

carried by non-professionals. 

Rallis June – Sept 2013 

Local 

Competitions/Games. 

June – Mar 2013 

Local events. Etc. June – Mar 2013 

Production, schedule and 

Broadcast of 

Newspapers/magazines 

IEC –WSSO 

June – Oct 2013 

(as per need) 

Radio/Audio Production IEC –WSSO/DWSM April – June 2013 

Radio Broadcast IEC –WSSO/DWSM June – Dec 2013 

Television Production IEC –WSSO April – June 2013 

TV Telecast IEC –WSSO June – Dec 2013 

Highly circulated IEC –WSSO/DWSM May 2013 

 

printed material 

Web Based publicity IEC –WSSO Regular Activity 

Films/Short 

Films/Documentaries 

IEC –WSSO Jan – Feb 2014 

Cable publicity DWSM June – Sept 2013 

Outdoor Media Planning/development 

Oct 2013 – Feb 

and display of 

DWSM/BRC 

2014 

Wall Writings/Paintings 

Posters IEC –WSSO/DWSM Oct 2013 – Feb 

2014 

Hoardings on various IEC –WSSO/DWSM Oct 2013 – Feb 

strategic locations 

2014 

Banners DWSM Oct 2013 – Feb 

2014 

IEC –WSSO/DWSM Throughout the 

year (2013-14) 

Audio/video 

announcements, 

displays 

Exhibitions DWSM/BRC Oct 2013 – Feb 

2014 

IEC Mobile Van 

(multiple activities) 

IEC Mobile Van 

(multiple activities) 

Folk Media Training, schedule and 

performances of- 

Trainings (ToT) to troupes 

on Key messages on water 

and sanitation and parallel 

IEC-WSSO June – July 2013 

DWSM/BRC Sept 2013- Feb 

2014 

IEC-WSSO 

May 2013 

33


activities to be conducted 

on field during campaign 

(Master Trainers) 

Entertainment 

education 

34 

To disseminate messages which 

are educational in substance, 

entertaining in structure and 

popular in the community, in 

order to promote sanitation and 

hygiene messages by building on 

and coordinating with the above 

efforts. 

Trainings To promote sanitation and 

Hygiene promotion on various 

level 

District level 

orientation to troupes 

Folk troupes/dramas 

(including tribal areas) 

DWSM June 2013 

Trained Folk Troupes Oct 2013 - Feb 

2014 

Street plays Trained Folk Troupes Oct 2013 - Feb 

2014 

Song/drama based 

performances 

Monitoring 

Performances 

Film /CDs production 

on water and 

sanitation in schools 

Competitions on 


in schools/colleges- 

State level 

elocution/debate/drawi 

ng, essays etc. 

Identification of 

stakeholders for 

Communication 

strategy 

Trainings on 

implementation of 

communication 

strategy (IEC 

consultants) 

Conduct trainings on 


communication 

strategy (other 

identified) 

Development of 

monitoring Formats to 

Trained Folk Troupes Oct 2013 - Feb 

2014 

DWSM/ IEC-WSSO Sept 2013 – Feb 

2014 (parallel 

tasks) 

IEC WSSO/UNICEF June – July 2013 

(to be taken from 

UNICEF, copy and 

disseminate to the 

districts) 

IEC 

WSSO/DWSM/BRC 

HRD Section –WSSO 

HRD/IEC –WSSO 

HRD/IEC –WSSO 

HRD /IEC/M & E 

(WSSO) and UNICEF 

Dec 2013 – Jan 

2014 

April 2013 

April 2013 

May 2013 

May 2013


capture IEC activities. 

Training for districts on 

monitoring of IEC 

activities undertaken 

HRD and M & E 

(WSSO/Divisional) 

May 2013 

3.7 Capacity Building Plan 

Construction of toilets is still being seen as a government responsibility, rather than a priority that individual households should take 

responsibility for using and maintaining a toilet. The challenge is to motivate people to see toilet as fundamental social need, status 

and well-being. The challenge is now before us to make people aware and build an improved toilet as well as start using the facility. 

The focus of the Sanitation and Hygiene Advocacy and Communication Strategy Framework, therefore, is to change an individual’s 

behaviour with proper knowledge and build positive attitude. 

The three phases of the Advocacy and Communication Strategy Capacity building activities should be carried out at: 

i. State 

ii. District 

iii. Block 

iv. Village/GP level 

WSSO has institutional structures and resources at state, division, district, and Block level for effective implementation of water and 

sanitation program which includes District Water and Sanitation Mission at district level and Block Resource Centre at block level. 

There are 495 consultants working in the 33 Districts in DWSM, 309 working as BRC at Block level and 721 working as Cluster 

Coordinator at block and cluster level. To enhance the capacity of these missionary along with other stakeholders this 

communication strategy intends to provide support to achieve the objectives of SHACS. 

Rural Sanitation Mart 

The effective and reliable supply of goods and services from manufacturers, retailers and skilled artisan, masons are vital in the rural 

water and sanitation sector. These goods and services reaches up to households through a chain of suppliers. WSSO will support Key 

Resource Centres to build supply chain of raw material providers, retailers and skilled masons. To enhance the capacity of 

skilled/unskilled labours/ artisans, SHG members, special drive of trainings of mason designed and linked with supply chain 

mechanism established at block level. 

Special drive has been taken for increasing demand for toilets among rural households because it has created an awareness of the 

cost effectiveness of a one-time capital investment. For achieving the SHACS goals and objectives state capacity development plan 

incorporates different mechanisms to facilitate and strengthen interpersonal communication skills among community volunteers. 

Primary and Secondary stakeholders 

For the purpose of this communication strategy, the primary target audiences are: 

Officials of WSSO at the state level 

Different line department officials like WCD, RDD, Health, Education etc. 

Elected representatives 

DWSM, BRCs 

35

The secondary target audiences include: 

NGOs, community-based organizations ,SHGs 

School children, Teachers 

ANMs, ASHA ,AWW 

Frontline workers, 

Village Motivators 

Opinion leaders at grassroots, eminent personalities 

Table 16: Capacity building development plan 

STATE 

LEVEL 

DISTRICT 

LEVEL 

BLOCK 

LEVEL 

36 

Training Output Stakeholders 

Training of the District IEC 

consultants 

Training On Implementation of 

Communication Strategy 

District IEC Consultants orient about tools and 

trained about using of Communication tools in 

the community 

Communication strategy implementation 

mechanism and role of line department will be 

clear 

District level IEC Consultants 

of DWSM 

Dy. CEO, IEC Consultants, 

Line department officials 

Training on Procurement Procurement plan will be prepared by Districts DWSM F&P Consultants 

Training On preparation of District 

Communication Plan 

District level TOT on use of 

Communication Materials 

Training On preparation of Block 

level Communication Plan 

Training on community led village 

saturation approach 

Training of PRIs and block level 

functionaries 

Training on Monitoring and 

Evaluation 

Training of village motivators „on 

community led village saturation 

approach 

Training of PRIs and village 

secretaries 

District Communication plan will be prepared District level IEC Consultants 

Master trainers trained and have skills for 

using these tools in community 

Block level Communication plan will be 

prepared 

Gained knowledge on community saturation 

techniques 

PRIs and block level functionaries trained and 

have skills 

Monitoring System established 

Triggering techniques 

Number of frontline workers trained in 

critical WASH issues and IPC skills, 

technical details of toilets. 

Communication plan of GP 

Sarpanch and Gramsevak trained on the 

NBA programme 

Training of teachers Teachers trained on critical WASH issues, 

communication skills and use of 

facilitation Materials 

School sanitation component will be 

strengthened 

BRC, Village Motivators 

BDO, BRCs, Village 

Motivators 

BRC, BDO 

PRI members of Block and 

GP level 

BRC 

Village Motivators, ASHA, 

AWW 

Sarpanch, Gramsevak, 

Opinion leaders of village 

School Teachers, CBOs

Steps Taken 

Following are steps listed will help state to develop state-specific strategies and action plans for rolling out of the strategy. The time 

frame for the rollout of the strategy would be developed by the state in consultation with other development Partners and 

departments linked with the district AIP and PIP. 

State level Workshop 

for developent of 

Communication 

Strategy 

TOT of district 

consultants. 

Preparation of District 

Comunication Plan. 

State Level 

District level Workshop 

on the communication 

plan 

Identify resource teams 

for implementation at 

district level 

Training on 

communication and 

community led trigerring 

processes for the 

identified district 

resource groups 

Select and train block 

level 

resources/mobilizeson of 

the communication plan 

and use of 

communication 

materials andcommunity 

led trigerring processes. 

Preparation of District 

communication plan 

Monitoring and 

Evaluation 

District Level 

Selection of 

VillageMotivators 

Training of 

VillageMotivators 

Preparation of detailed 

communication plan for 

GPs. 

Block Level 

37

38 

Chapter 4

INSTITUTIONAL STRUCTURES 

4.1 State level set-up 

Water Supply and Sanitation Department has very defined institutional structure from State to Gram Panchayat level. WSSD has a 

Minister who has independent charge of the department. The department also has a Minister (State). The Principal Secretary heads 

the department and Deputy Secretary WSSD is in-charge of Water and Sanitation Support Organization (WSSO). Additional Director 

is having specific charge of Water Supply section. The Director is an administrative head and directly responsible for facilitating the 

state level team (WSSO). In addition many technical positions are also supported by UNICEF Mumbai. Further, there are seven 

departments/ sections viz. Water Quality, IEC, HRD, Research and Development, sanitation, Finance and Administration. These 

sections are directly responsible to complete the component specific tasks but complementing each other. 

Hon'ble Minister, WSSD 

Hon'ble Minister 

(State), WSSD 

Principal Secretary, 

WSSD 

Deputy Secretary, 

WSSD/ WSSO 

Figure 11: Organogram of Water Supply and Sanitation Department, Government of Maharashtra 

Additional 

Director 

Director 

WSSO 

Water 

Supply 

Water 

Quality 

4.2 District, Block and GP level set up 

WSSO has to cover large number of GPs in the state following saturation approach. To reach this large number of GPs, the District 

Water and Sanitation Mission (DWSM) has been established. CEO Zilla Parishad is the head of DWSM and Deputy CEO (VP mostly) or 

whoever is handling the charge of Nirmal Bharat Abhiyan is directly responsible for facilitating district team. The DWSM has five 

sections IEC, HRD, Water Quality, M&E and Finance. Further the team is extended to Block level. BDO heads the Block Resource 

Center (BRC) and Cluster Resource Center (CRC). Gram Panchayats comes under block and at GP level, Village Water Supply and 

Sanitation Committee is functional and ‘Swachchhata Doots’ and ‘Nirmal Doots’ soon would be in place to gear up the water and 

sanitation activities at village level. Jal Surakshaks are already in place to look after the entire water quality component. 

IEC 

HRD 

R&D 

Sanitation 

Finance 

Admin 

39

Table 17: List of Government Resolutions 

# Name of GR Brief information Date of GR 

1 

2 

3 

40 

CEO Zilla Parishad Dy. CEO NBA 

Figure 12: Organogram of Drinking Water and Sanitation Mission 

कें द्र पुरस्कृ त निर्मल भारत 

अनभयािाांतर्मत अनभप्रेरक म्हणूि 

निवडण्याबाबत (Motivation incentive under 

centrally sponsored Nirmal Bharat Abhiyan) 

र्ट सांसाधाि कें द्रे (पाणी व स्वच्छता) 

या कररता कां त्राटी पद्धतीिे कर्मचा- 

याांची नियुक्ती, पुिनिमयुक्ती करण्याबाबत.. 

(Recruitment, re-recruitment of contractual 

employees of Block resource Centers (water 

& sanitation) 

स्वच्छतानर्त्र वक्तृ त्व करांडक स्पधाम 

(Swachhata Mitra Elocution Competition) 

IEC 

HRD 

Water 

Quality 

M&E 

Finance 

BDO 

BRC 

CRC 

GP 

To engage local level people (e.g. Bharat Nirmal 

Swayansevak, ASHA, Anganwadi workers, health 

workers, teachers, GP members etc as 'Nirmal Doot, to 

motivate villagers to construct and use toilet. The 

provision of Rs. 75/- /per toilet made for motivators. 

Appointment, re-appointment of the staff at BRC level 

on contact basis by giving advertisement in newspapers 

as well as on website. The instructions for recruitment 

are given regarding to the educational qualification, 

experience, honorarium and incentives as well as other 

rules and regulations. The detail about selection 

procedure is given. 

Announcement of arrangement of elocution competition 

for junior and senior college level students in the entire 

state. The GR having the whole [process of competition 

including the issues/topics for elocution, various levels 

of competition, instructions on IEC activities to be 

undertaken to showcase the competition in various 

media, rules and regulations for competition. 

VWSC 

Jal 

Surakshak 

Swachta/ 

Nirmal Doot 

24/01/2013 

12/12/2012 

11/12/2012


4 

5 

6 

7 

8 

जिल्हा पाणी पुरवठा व स्वच्छता 

नर्शि (DWSM) आजण जिल्हा सांपूणम 

स्वच्छता कक्ष (TSC) याांचे 

ववनलिीकरण. सांनियांत्रण, सल्लार्ाराांचे 

र्ािधि व सेवाशती, तसेच र्ट 

सांसाधि कें द्राांचे बळकटीकरण 

(Merging of DWSM and TSC in Districts and 

co-ordination, honorarium, and service 

conditions of contractual consultants and 

others) 

र्हात्र्ा र्ाांधी राष्ट्रीय ग्रार्ीण रोिर्ार 

हर्ी योििा व निर्मल भारत अनभयाि 

कायमक्रर् एकवत्रतपणे राबववण्याबाबत 

(NBA and MGNREGS convergence) 

कें द्र शासिाच्या र्ार्मदशमक सूचिाांिुसार 

राज्यात पाणी व स्वच्छता सहाय्य 

सांस्थेची स्थापिा, सांरचिा, कायमकक्षा व 

सांनियांत्रणाची कायमपध्दती ववहहत 

करण्याबाबत (Establishment of WSSO, its 

structure, monitoring system etc.) 

राज्यात सांपूणम स्वच्छता 

अनभयािाांतर्मत हद.२ आॅ क्टोबर २०११ 

ते हद. ४ िोव्हेंबर २०११ या कालावधीत 

स्वच्छता उत्सव राबववण्याबाबत. 

(Celebratrion of 'Swachhata Utsav' in the 

state) 

कें द्र पुरस् कृ त रा‍ रीय ग्रार्ीण पेयिल 

कायमक्रर्ाच् या अांर्लबिावणीसाठ 

A GR having information about merging of DWSM and 

TSC cell in district. The instructions are given about the 

coordination expected on district level. Guidelines are 

given on honorarium, service conditions are other terms 

and conditions. 

The GRs about convergence of TSC and MGNREGS is 

issued. As per GoI's instructions. MGNREGS provide 

labour charges to the skilled and unskilled labours for 

the constructions of Individual, Anganwadi, school and 

community toilets under NBA. The other terms and 

conditions are also given in this GR. 

The GR is issued about to merging of TSC and DWSM 

cell and establishment of Water and Sanitation Support 

Organization. The instructions are given about the Title 

of organization (WSSO), its headquarter, Organizational 

structure and its jurisdiction, approved posts and 

honorarium, opening of bank accounts, distribution of 

funds, delegation of financial authorities, role and 

responsibilities of WSSO, role and responsibilities of 

officers, under WSSO, Appointment of Director of 

WSSO etc. 

The GR is issued about to organize 'Swachhata Utsav" 

(cleanliness campaign0 in the state during 2nd October 

to 4th November 2011 in all GPs of the state. The 

instructions are given about the implementation of this 

campaign. This includes inauguration, swachhata 

training programme, organization of Gramsabha, Wash 

Hand campaign, village health and nutrition day, 

Mesons’' Training, Survey on availability of toilets in 

premises govt. institutions, Nirmal SHGs, honour ODF 

villages, Nirmal school and colleges, HH/community 

toilets, organization of IEC activities during campaign. 

The GR is issued about the establishment of DWSM cell 

at District level. The posts to be filled in DWSM. The 

GR shows the instructions about how to take written 

1/11/2012 

27/08/2012 

12/3/2012 

26/09/2011 

17/09/2011 

41


9 

10 

42 

जिल् हा पाणी पुरवठा व स् वच् छता 

नर्शि (DWSM) स् थापि करण् याबाबत 

(Establishment of DWSM Cell) 

राज् यात सांपूणम स् वच् छता अनभयािास 

र्ती देण् यासाठ निर्मल स् वराज् य 

र्ोहहर् राबववणे बाबत 

(Emplement the Nirmal Swarajya Mohim to 

Push up the sped of TSC in the stafe) 

वपण्याचे पाणी , स्वच्छता व पाणी 

र्ुणवत्ता याबाबत याबाबत एकजत्र्क 

र्ाहहती, नशक्षण व सांवाद(IEC) कायमक्रर् 

अांर्लबिावणी करणे 

(Implementation of IEC for drinking water, 

sanitation and water quality) 

examination of candidates, interviews procedures, 

marking system, consideration of higher qualification 

and experience and displaying merit list after selection 

procedure. 

The GR is issued to gear up Total Sanitation Campaign 

during February 19, 2011 to April 14, 2011 through 

organizing Nirmal Swarajya Mohim in the state. The GR 

shows the objectives of the campaign, Instructions 

about the implementation of campaign, organizing 

various IEC activities like district level camps, 

celebrations of days like IWD, International Water Day, 

International Health day during campaign as well as 

construction of toilets, felicitation of ODF GPs, etc 

activities to be undertaken. The campaign to be 

undertaken involving various social elements including 

PRIs. 

The GR is based on to conduct joint IEC campaign of 

NRDWP and TSC with holistic/integrated approach in 

the state. The campaign should be focused around 

various water and sanitation aspects. Holistic IEC 

Action pan to be prepared considering target groups, 

The instructions also given about the approval of plan, 

Implementing machinery, outcome and indicators, 

monitoring activities and budget provision from both 

programmes. 

Note: All GRS are available on website -https://www.maharashtra.gov.in/Site/Common/governmentResolutions.aspx 

21/02/2011 

29/09/2010 

4.3 Existing Monitoring, Evaluation and Feedback Mechanism 

Monitoring and Evaluation has a key role in any development programme. Monitoring and Evaluation of any activity is helpful to 

improve the implementation and revise the strategy based on results/ outcomes/ evaluation. There are certain formats developed by 

NBA headquarters to capture IEC activities undertaken by the districts. Total 17 activities listed in the format by NBA headquarters 

itself. The formats having number of various types of IEC activities (Mass media activities, IPC, outdoor and mid media activities, 

workshops, folk troupes etc.) listed. 

WSSO has online monitoring system and monitoring formats of all components are being captured on it. IEC cell existed in DWSM 

and two IEC consultants are engaged in implementation of IEC activities on district as well as block and GP level. There is a provision 

of filling of physical and financial achievements in the formats. The activities undertaken are filled up in the given formats by IEC 

consultants. Each district has to fill a format capturing IEC activities at district level. One cumulative format, showing the status of 

IEC activities of all districts is being filled up.

Since, the online monitoring system has been activated last year. The district teams were not used to operate it online, the 

monitoring was not much strong. Though, quantitative aspects are being covered through these formats, qualitative aspects have 

not been captured. WSSO would try to focus to strengthen the monitoring of IEC activities and revise formats to capture the 

qualitative aspects. The key information would be displayed on WSSO website. 

4.4 Fund Management 

State Project Outlay : 2012- 2017 

Funds earmarked for IEC activities 

(Detailed break-up of activities with percentage of allocation per activity) 

Medium 

Interpersonal communication and community mobilization (including all 

IPC print material and incentive and training for Front Line Workers 

recruited for WASH) 

Total Central share Status share 

682.45 545.86 136.49 

Percentage of IEC 

budget 

- Up to 60% 

Amount in Crores 

409.45 

Print ceiling- 10%) - (Print ceiling- 10%) 40.9 

Outdoor media – (wall painting, hoarding) folk media Up to 15% 102.34 

Mass Media Up to 15% 102.34 

- Monitoring and evaluation of IEC activities - 5% 34.17 

- Evidence building (research/KAP studies) for strategy re-planning - 5% 34.17 

43

44 

Chapter 5

CONVERGENCE 

5.1 Introduction 

Nirmal Bharat Abhiyan (NBA) is an ambitious flagship programme in India which is related to improvement of sanitation and hygiene 

of the rural community. The emphasis is given on the construction of toilets and its use, solid - liquid management and other hygiene 

practices. There is a strong need to change behaviour towards sanitation and hygiene practices of the people including men, women, 

children and family per se. 

Changing behaviour, however, is not an easy task to be handled solely by the nodal department, i.e. Water Supply and Sanitation 

Department as there are many cross cutting issues. Therefore the four key departments viz. Women and Child Development 

Department, Rural Development Department, Education Department and Department of Public Health are the key cross sectoral 

departments that can proactively contribute towards reaching the goals and objectives of SHACS. Convergence with these key line 

departments will help build strong partnership. 

Health 

WCD 

WSSO 

(NBA) 

Education 

Besides government departments, WSSO would work closely with KRCs and NGOs working in water and sanitation sector in the 

state. The expected areas of convergence with these line departments can be studied as follows: 

RDD 

45

5.2 Expected State level Convergence with Line Departments in Brief 

Department Objective Key Person Role Activities Expected Output 

Rural 

Development 

Department 

Department 

of Primary 

Education 

46 

(as programme is 

to be implemented 

in rural areas) To 

motivate 

machinery of PRIs 

to support NBA 

To ensure support 

of elected 

members to 

motivate them to 

undertake NBA in 

their respective 

constituencies 

To ensure 

effective 

implementation at 

district, block and 

GP level 

To ensure proper 

guidance to 


machinery to 

achieve the goals 

of NBA 




motivate 



To ensure 

effective 

Minister of RDD Instructions to 

be given to 

secretary level 

Policy level 

decisions to be 

taken 

whenever 

required 

Minister of RDD Orientation to be 

given to elected 

members of Zilla 

Panchayat (ZP), 

Panchayat Samiti 

(PS) and block level 

Secretary RDD 

and 

Secretary 

MGNREGS 

Deputy 

Secretary 

Minister (School 

and Sports 

Education) 

Minister (Higher 

and Technical 

Education) 

Secretary School 

Education 

Instructions to be 

given to district 

level machinery 

To understand and 

involve regular 

activities of NBA 

Instructions to 

be given to 


Policy level 


taken 

whenever 

required 



Arrange meeting 

of WSSD 

Minister with 

RDD minister 

Announcement 

of convergence 

(NRLM, 

MGNREGS) 

Orientation 

about NBA by 

conducting 

meeting with 

power point 

presentation 

Organize meeting 

in coordination 

with WSSD 

Secretary 

Presentation on 

NBA and role of 

both 

departments 

Regular 

Meetings 

Letters to be 

issued from 

state level 

Support and 

guide districts 


of WSSD 

Minister with 

Education 

Minister 

Announcement 




Instructions issued to 

RDD machinery 

regarding support to 

NBA in the form of 

letter/ GR 

Elected 

representatives of 

ZP, PS and GP will 

actively be involved in 

NBA 

Clear understanding 

to be developed 

among both 

machineries about the 


NBA at all levels 

RDD and WSSD 

machineries have 

good coordination in 

implementation. 

Active involvement of 

PS 


education machinery 

about the support to 


letter/ GR. 

Involvement of 

primary, secondary, 

high school and 

college students 


to be developed


Health 

Department 



GP level 


guidance to 


machinery to 


of NBA. 




motivate 




of Health 

Machinery to 





To ensure 

effective 



GP level 


guidance to 


machinery to 


Secretary & 

Higher and 

Technical 

Education 

Director SSA, 

Dy. Secretary 

(primary and 

secondary 

schools/ higher 

and technical 

education) 

Minister of 

Public Health 

Minister of 

Public Health 

Additional Chief 

Secretary (ACS) 

Health 

Director Health 

& 

Director NRHM 

level machinery - ZP 

Schools/ schools 

and colleges 





be given to 


Policy level 


taken 

whenever 

required 

Orientation to be 

given to Director, 

Additional Director 

and Deputy Director 







with WSSD 

Secretary 



both 

departments 

Regular 

Meetings 

Letters to be 

issued from 

state level 

Support and 

guidance to the 

districts 


of WSSD 

Minister with 

Health Minister. 

Announcement 


(NRHM) 

Orientation 

about NBA by 

conducting 

meeting with 

power point 

presentation. 



with WSSD 

Secretary 



both 

departments 

Regular 

Meetings 

Letters to be 

issued from 

state level 

among both 




Education and WSSD 





PS 


Health Machinery 



letter/ GR 

Director, Additional 

Director and Deputy 

Director will be 

actively involved in 

NBA 



among both 




Health and WSSD 




(Director Health 

47


Women and 

Child 

Development 

48 

of NBA Support and 


Engage local 

level machineries 




motivate 




of elected 

members to 





To ensure 

effective 



GP level. 


guidance to 


machinery to 


of NBA 

Minister of 

Women and Child 

Development 


be given to 


Policy level 


taken 

whenever 

required 

Minister WCD Orientation to be 

given to 

Directorate of WCD 

Principal 

Secretary WCD 

Commissioner 

WCD 








of WSSD 

Minister with 

WCD Minister 

Announcement 


(ICDS) 

Orientation 

about NBA by 

conducting 

meeting with 

power point 

presentation 



with WSSD 

Secretary 



both 

departments 

Regular 

Meetings 

Letters to be 

issued from 

state level 

Support and 


would instruct DHO 

to engage both 

machineries viz. 

Health and NRHM 

MOs/ ANMs/ MPWs 

and ASHA as ‘Nirmal 

Doot’, Engage School 

Health 

Officer) 

Medical 


WCD machinery 



letter/ GR 


officials from WCD 

Directorate 



among both 




WCD and WSSD 





Anganwadi workers 

in construction of 

Anganwadi toilets.

5.3 Convergence at distict level – roles 

Line 

Departments 

Construction and use of 

toilets 

RDD CEOs, Dy. CEOs 

(Panchayat) 

Four Critical Behaviours 

The safe disposal of 

child faeces 

Hand washing with 

soap after 

defecation, before 

food and after 

handling child faeces 

Safe storage and 

handling of drinking 

water 

------ ------ CEOs, Dy. CEOs 

(Panchayat) 

Education CEOs, Education Officers ------ CEOs, Education 

Officers 

Health CEOs , DHOs and ADHOs CEOs , DHOs and 

ADHOs 

WCD CEOs, District Women and 

Child Development Officer, 

Dy. CEO ICDS 

CEOs, District Women 

and Child Development 

Officer, Dy. CEO ICDS, 

Supervisors 

CEOs , DHOs and 

ADHOs 



Officer, Dy. CEO ICDS 

CEOs, Education Officers 

CEOs , DHOs and ADHOs 



Officer, Dy. CEO ICDS 

49

50 

Annexure

DISTRICT COMMUNICATION PLAN TEMPLATE 

1 Name of the State 

2 Names and contact details of the department implementing NBA 

3 Name and contact details of the Dealing Officer at State level 

4 Management/ Institutional Arrangements at State leve l 

5 Define 

Linkages between different district units 

Human resource structure 

Role and responsibilities of unit 

Policy making of the state, strengthening of the mechanisms 

6 Name of the District 

7 Name and contact details of the Dealing Officer at District level 

8 What are the management arrangements at District level 

9 Define 

Linkages between different district units 

Water supply, health department, education, child development department 

Human resource structure 

Roles and responsibilities of unit 

10 Institutional Arrangement at Block level 

11 Institutional Arrangement at GP/Village level 

12 Who all are involved and what are their roles and responsibilities 

13 Who is the Village Motivator? 

14 Who will be assigned for the development and execution of monitoring and evaluation plans 

15 What has happened so far: Does a communication action plan in exist 

51

16 Gap analysis for existing communication plan 

Barriers/Challenges 

Learning’s - Positive and negative 

1. Communication Plan - Steps to Implementation 

Given in the table below are the steps that need to be undertaken before the communication activities can be implemented at the 

village level. Indicate who would be responsible to carry out these steps in your district and by when they will be completed. 

52 

Steps 

District level 

Workshop on the 

Communication plan 

Identify resource 

teams available 

for implementing 

communication 

activities at district level 

In-depth training on 

communication 

for the identified 

district resource 

group 

Select and train block 

level resource mobilizers 

on the communication 

plan and use of 

communication 

materials 

Duplication/ 

Dissemination of 

communication 

materials 

Responsible 

person/ 

department 

Time 

frame 

Objective of the step Output Output indication 

- Develop Communication 

plan 

- Understanding of key 

communication approaches 

- Identification of 

key messages (contextual 

to the identified audience) 

To have in place a district 

resource group to manage/ 

support communication 

activities 

To acquaint the group on 

the significance and 

content of the 

communication plan 

Increase knowledge on 

WASH issues, build skills 

in communication, build 

familiarity and skills with 

use of facilitation material 

Identification of materials 

available/ what needs to 

be developed/ no. of copies 

required/ identify recipients 

of the communication 

tools 

- Communication 

plan 

- Key messages 

identified 

- Key resource team 

identified and 

engaged 

- Roles and 

responsibilities 

identified and 

communicated 

Number of resource 

people trained 

Number of block 

level 

Mobilizers trained 

- Number of material 

developed 

- Number of 

recipients identified 

Action plan 

ready to roll out 

Team engaged 

- Number of 

Resource people 

skilled on 

communication 

- Individual plans 

developed and 

adopted 

Number of skilled 

mobilizers 

Number of 

communication 

materials quantified 

with 

dissemination 

plan

Select and train Village 

Motivators 

Prioritize villages and 

prepare detailed 

communication plan for 

GPs 

Put in place monitoring 

plan/mechanism 

Identify funding 

modalities 

2. Fund Management 

Funds available to the District 

Individuals who will drive 

the communication 

activities at the village 

level 

Based on the assessment 

identify the level of 

activity required 

To review progress and 

get input to feed back in 

the communication 

strategy/plan 

Identify which funds will 

be utilized for the 

communication activities - 

(IEC budget, District 

Collectors Fund, etc.) 

District Project Outlay in lakhs 

Funds earmarked for IEC activities (Detailed break-up of activities with 

percentage of allocation per activity) 

Funds already utilized ( IEC) 

Balance Funds available ( IEC) 

Number of 

motivators 

trained 

- Number of villages 

identified 

- Detailed action in 

place 

Supervisors and 

monitoring indicators 

identified 

Identified budget for 

communication 

activities 

No. of motivators 

trained/ skilled (pre 

and post 

assessment 

reports) 

Detailed action plan 

for identified 

villages ready for 

roll out 

Monitoring plan 

with roles 

responsibilities 

(reporting lines) and 

frequency 

(Fund utilization to 

be monitored by the 

relevant district 

unit 

Total Central share States share 

Guidance note: The behaviours to be promoted under the strategy are home based behaviours and require decision making at family 

level. Evidence from communication research shows that interpersonal communication and community mobilization are the most 

effective approaches to influence home based behaviours. Hence, the following percentage weightage is suggested or IEC budget 

utilizations. 

Medium Percentage of IEC budget Amount in lakh 

Interpersonal communication and community mobilization 

(including all IPC print material and incentive and training for Front 

Line Workers recruited for WASH) 

Up to 60% 

Print ceiling 10% of 60% 

Outdoor media – (wall painting, hoarding) folk media Up to 15% 

53

Medium Percentage of IEC budget Amount in lakh 

- Monitoring and evaluation of IEC activities 5% 

Evidence building (research/KAP studies) for strategy re-planning 5% 

Note: The Annual District Template including media plan must have the approval of DWSM before the start of the financial year. 

Independent impact assessment of IEC carried out may be done annually. Annual review of the activities of Swachchhata Doots or 

other Sanitation messengers engaged, if any 

3. DISTRICT COMMUNICATION PLAN TEMPLATE 

a. Communication Material Costs 

Material to be sued at village level 

54 

Communication tool User Audience 

Activity Manual Village Motivators 

Simplified NBA guidelines booklet 

Types of Toilet (Different Technology 

Options) Pocket Booklet 

Village Motivators/ Block 

level mobiliser 

Village Motivators/ Block 

level mobiliser 

Various schemes on toilets Village Motivator 

Important of village card game. Village Motivator 

Water Security and Safety at village 

level flip book. 

Important of toilet- 

Toilets as a pride- poster 

Importance of toilet for economic 

reason poster 

Importance of Toilet to Reduce Health 

Burden Poster 

Toilet for Privacy, Dignity and Security 

- Poster 

Wash Friendly School – Different 

Component of wash compliance school 

– Poster 

Facts for Life video 

- Meena radio episodes - Radio/ TV 

spots 

Village Motivator Men 

Village 

Motivator 

Key opinion 

leaders 

- Community 

members 

- Men 

Community 

members 

Community 

members 

Village Motivator Women 

Village Motivator 

AWW, Teachers Men & women 

Frontline Workers, VWSC Men & women 

Education Officer, BDOs, 

BRCs, DWSM & Student 

Village Motivator 

School children 

Community 

members 

Numbers 

required 

Unit 

Cost * 

Total Cost

. Outdoor media 

Wall painting 

Hoardings 

RSM branding (rural sanitary material) 

Communication tool Numbers Unit Cost Total Cost 

c. Folk and other media 

Activity Frequency Unit Cost Total Cost 

Folk programmes 

Once per quarter schedule to 

Video shows 

coincide with group meetings/ 

VHND/ Health melas/special day 

Nukkad Natak 

celebrations 

d. Mass media 


Radio spots As per the media plan- staggered in 

Press advertisements 

bursts over the year 

Rate to be 

calculated as per 

the media plan 

e. Interpersonal communication 


Home visits Daily 

Group meeting Fortnightly 

Any meeting organised by the village motivator Fortnightly 

f. Events 


Celebration of Sanitation week and Global hand 

washing day 

Once a year (Sanitation week can to 

extended to a month) 

0.05 2.05 

Sanitation fairs/meals 0.10 4.00 

Commendation to recognize and create championscertificates 

and awards for involvement 

- Best sanitation leader 

- Best motivator/s 

- Best VWSC 

- Best AWC 

- Best school 

Exposure visit of PRIs/VWSC to Nirmal GPs/ 

innovations within or outside state 

Once a year (5-6 events) 0.10 1.00 

Once a year 

Competitions 1-2 in a year 

55

g. Implementing Community Driven Village Saturation Approach 


District level TOT for BRCs on Implementing 

Community Driven Village Saturation Approach 

Sensetision of PRIs and block level functionaries 

apart from BRCs 

Training of Village motivators on Implementing 

Community Driven Village Saturation Approach 

Engaging and providing incentive to master 

trainers (district facilitators) and motivators 

Triggering and follow-up of wards/ villages/ GPs 

- Community meeting 

- Focused group discussion 

- Transect walk 

- Mapping 

- Demonstration 

56 

Once a year day training Annual 

refresher 12 

Once a year 1 day orientation 500 

3-4 days at block level - Biannual 

refresher 300 

DWSC - will engage on daily basis 

50mt,10days 100mot 

To be decided by the motivators 

daily basis 41 

Community Approaches for Total Sanitation (CATS) is the term used by UNICEF for community based sanitation approaches. 

CATS encapsulate various approaches to community based sanitation such as setting when working with government and partners. 

The minimum elements of this approach includes-that it is driven by collective process (as opposed to targeting individual 

households); that hand washing at critical times is a key component of the programme and; that community leadership includes 

children and caregivers 

h. Additional costs 


- Man power requirements 

- Village motivator (Incentive pattern) 

- Block resource (Incentive pattern) 

- District resource 

- Operational costs 

- Mobility 

- Office expenses 

- Others 

Monitoring support costs 

Dispatch/distribution mechanics for each tool (post printing) so 

that they are able to reach from the District level to the village 

motivator level

Water and Sanitation Support Organization (WSSO) 

Water Supply and Sanitation Department, GoM 

1 

58 

st Floor, South Wing, CIDCO Bhavan 

CBD Belapur, Navi Mumbai 400 614 

Maharashtra, India 

Tel. +91 22 

Email: directorwsso@gmail.com

Towards Nirmal Maharashtra

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