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CONFERENCE REPORT
State Consultation on
Putting Citizens at the Centre:
Sustaining Improved Urban Sanitation Services in Bihar
21 December 2019
Venue- Hotel The Park, Muzaffarpur, Bihar
EUROPEAN UNION
PIX 1
PIX 3
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Participatory Research In Asia
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Executive Summary
On December 21, 2019, the Society for Participatory Research In Asia (PRIA) organized a
day-long State Consultation on “Putting Citizens at the Centre: Sustaining Improved Urban
Sanitation Services in Bihar” at Hotel Park, Muzaffarpur, Bihar.
The consultation arose as part of the European Union supported Engaged Citizens,
Responsive Cities (ECRC) project, which was developed in 2016 to transform sanitation and
foster hygienic practices in the cities of Muzaffarpur, Jhansi, and Ajmer. The project is
premised on the theory that if the capacities of the urban poor civil societies are enhanced;
municipalities, residents, and markets are sensitized; and the media and local academic
institutions can work in tandem, then sanitation services in the city can be improved
exponentially. These organizations must work together with the civil society of the urban
poor in planning, implementation, and monitoring, in order to achieve sustainable change in
sanitation. This can positively impact every citizen in the city, and includes the formation of
Settlement Improvement Forums (SICs), which comprise of community leaders from local
women and youth groups, as well as the Citizen Forum. The latter comprises of diverse
members from academic institutions, Resident Welfare Societies (RWAs), civil society
forums, and media organizations. The role of PRIA has been to facilitate and encourage the
formation and work of these groups, so as to foster community organization concerning the
issue of sanitation.
The objective of the consultation was to explore solutions for the prevailing issues faced by
the urban sanitation sector of Bihar, by utilizing innovative methods centred on citizen
engagement and multi-stakeholder partnerships. The conversation during the event focused
on the discussion of the ongoing initiatives and existing issues related to urban sanitation in
Bihar. Multiple instances of positive changes were shared, and further strategies for
transforming sanitation through citizen engagement and behavioural change were discussed.
Participants also raised the question of additional possibilities of multi-stakeholder
partnerships for sustaining urban sanitation in the state. Significant attention was also given
to the issue of sustainable sanitation, and how the installation of infrastructure alone—such as
toilets—is not sufficient to increase awareness regarding the inherent dignity that sanitation
brings to a community. Therefore, any solution for improving sanitation must involve
community participation and the mobilization of elected representatives on principle, in order
for the community to have a voice in the development of their settlements. SIC Forum and
Citizen Forum, Muzaffarpur presented how they were organised as active citizen groups and
working towards improvement of sanitation services in informal settlements and wards in the
city.
The consultation emphasised the process and importance of facilitating community
participation in sanitation, and the challenges inherent therein. Community leaders who were
members of the SICs highlighted that their achievements were necessary and specific
interventions, made all the more important by their contextual knowledge of how public
infrastructure is used in their settlements. Democratic inclusion, community participation,
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and corporation are essential for achieving the desired level of sanitation services, and for
bringing about a model of good governance. This sensitization will also contribute towards
changing the perception that informal settlements are generally responsible for unsanitary
conditions in cities. Additional progress can only be sustained in an inclusive and
participatory system of governance. Furthermore, in order to supplement these efforts, the
Citizen Forum in Muzaffarpur also inaugurated a monthly newsletter, which will continue to
discuss how citizen’s collectives can join hands to provide solutions to the pressing problems
in the cities.
The consultation was attended by Mayor, Gaya Municipal Corporation, Municipal
Councillors and Officials of Muzaffarpur Municipal Corporation; SIC Forum and Citizen
Forum Members of Muzaffarpur, experts on sanitation and municipal governance, civil
society organisations, media and academia.
Background to the Conference
Urban areas in Bihar are characterised by sparsely distributed towns and cities. With 11.3%
urban population, urban centres of Bihar accommodate 3.1% of urban population of India.
Bihar was ranked at 33rd out of 35 states/ UTs in urbanization (percentage of urban
population of total population) in 2011 Census. The state had 143 statutory towns and 56
census towns in 20111. Presently there are 143 urban local bodies in Bihar including 12
Municipal Corporations, 46 Municipal Councils and 85 Nagar Panchayats. 10.53 percent of
the state’s urban population lives in informal settlements or slums in 88 cities reported
informal settlements. Swachh Bharat Mission (Urban) is operational in all 143 cities,
whereas, 26 cities of Bihar are covered under Atal Mission for Rejuvenation and Urban
Transformation (AMRUT), 4 under SMART City programme and 10 under Namami Gange.
Besides, Chief Minister’s Saat Nishchay programme covering drainage, water supply and
household toilets is operational in all 143 cities.
In Swachhta Survekshan 20192, Bihar was ranked 24th among total 28 states covered. As per
NSSO Swachta status surveys conducted alongside 72nd Round of NSSO in 2015, 50% of
wards were found having system of street cleaning in Bihar. 43.6 % of the wards in urban
Bihar are having sewer network which is lower than national figure of 56.4%3. State-wise
status of implementation of solid waste management component under SBM (Urban) up to
September 2019 shows that as compared to national average of 57%, Bihar is processing 51%
of the total waste being generated at the rate of 2272 MT/ day. Under SBM (Urban) 87.9% of
wards have been covered under 100% door-to-door collection but only 25% wards have
achieved 100% source segregation as compared to national average of 68 percent. Though
Muzaffarpur Municipal Corporation is far ahead from the state in terms of solid waste
management and all 49 wards of the city are covered under 100% door-to-door collection and
at source segregation. The city is also known to have first solid waste processing unit in the
1 Census of India 2011, Govt of India 2 https://swachhsurvekshan2019.org/Rankings/Cities 3 National Sample Survey Office NSSO (2016), ‘Swachhta Status Report 2016’
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state. Construction of 385,507 individual household latrines and 13,152 public/community
toilet seats has been completed in urban Bihar till September 20194.
Despite of several efforts, some of the issues which Bihar is facing on the front of urban
sanitation include:
Lack of segregation at source
Processing of solid waste generated is low
Lack of decentralised community oriented processing of waste
Shifting from on-site systems to offsite systems of liquid waste management is
sluggish
In cities depending on on-site systems, Faecal Sludge and Septage Management
(FSSM) services are trying to get ground
Public and community toilets need better maintenance
The issues are multidimensional and may be pertaining to various stages of development or
service delivery like policy, planning, implementation and operations/maintenance.
Furthermore, underlying reasons may be attributed to technical, financial and institutional
aspects at many levels. However, effective participation of citizens and collaborative effort
by all stakeholders are two common areas which possess potential to affectively contribute to
address many of the above issues. Citizen’s role in effective urban sanitation services has
been reiterated by recently announced Swachh Survekshan 2020. This has a provision of
validation of service level progress through citizen feedback. It provides for validation of
minimum 50% wards (samples) wherein progress in service levels has been claimed5.
About ‘Engaged Citizen, Responsive City’ (ECRC) Program in Muzaffarpur (Bihar):
Started in 2016, with support from European Union (EU), ECRC Programme has
endeavoured to transform the sanitation situation in the city of Muzaffarpur along with Jhansi
and Ajmer. The overall objective of the programme is to promote diversity and strengthen the
capacity of civil society and municipal authorities in addressing the sanitation issue of the
urban poor in these three cities. In Muzaffarpur during past three years through programmatic
intervention 105 Settlement Improvement Committees (SICs) have been formed having 920
members with leadership from youth (54 percent) and women (57 percent) of informal
settlements. These SICs are further federated at the city level into SIC Forum, which is
providing leadership to informal settlement dwellers towards various development needs and
their implementation. Citizen Forum in Muzaffarpur is active from end of the year 2018. It
has members from different walks of the city like Resident Welfare Associations (RWAs),
educational institutions, Civil Society Organisations (CSOs), senior citizen groups, market
associations, etc. The SIC and Citizen Forum are working in close coordination and actively
engaging with Muzaffarpur Municipal Corporation and other Institutions for the effective
implementation of programmes like SBM, Single Use Plastic Ban etc.
4 State-wise Status of Implementation of Various Components under SBM upto September 2019, accessible at
http://swachhbharaturban.gov.in/dashboard/writereaddata/Statewise_status_of_implementation.pdf 5 Press Information Bureau, Government of India (2019), ‘Swachh Survekshan League 2020’
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Objectives of the consultation
The consultation aims to explore solutions for prevailing issues in urban sanitation sector of
Bihar through innovative means centred on citizen engagement and multi-stakeholder
partnerships. Below are the objectives of the consultation:
To discuss the ongoing initiatives in the area of urban sanitation in Bihar
To induce discussion on existing issues related to urban sanitation in the state
To share good examples and instances of change from cities of Bihar
To evolve strategic ideas for transforming urban sanitation in the state through
effective citizen engagement and behavioural change
To appraise ULB’s on Participatory Planning and Monitoring for Inclusive Sanitation
Services in the state
To explore possibilities of multi- stakeholder partnerships for sustaining urban
sanitation in the state
Conference Proceedings
Panel One
Dr Kaustuv K Bandhyopadhyay introduced the first panel, Effective Behaviour Change
through Community Organisations and Community Champions, which focused on how the
Citizen Forum was formed, and how it facilitates community participation. He briefly
described how PRIA supported sanitation initiatives in Muzaffarpur, and explained the
importance of inclusive and democratic development practices. In his opening remarks, he
also touched upon how important it is for communities to be empowered so as to be equal
stakeholders in their development.
Dr Anshuman Karol moderated the panel, and reiterated the inclusive vision of progress that
was fostered by the SICs and the Citizen Forum. He also remarked that informal settlements
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were perceived was flawed, and often acted against them; the image that these settlements
were underdeveloped and unsanitary was often blamed on the communities living in these
settlements. There were little comprehensive efforts that attempted to understand the
challenges that these communities faced, which were only exacerbated by their illegal and
unmapped status. Therefore, it is important to work on the legal recognition and framing of
these settlements. He also discussed reducing the amount of solid waste that was produced,
by presenting the mobilization and utilization of recycled plastic waste for sale as an
important solution.
Mr. Vikas Kumar Singh started the session by discussing how the implementation of the
ECRC project in Muzaffarpur had been both challenging and rewarding. While it was
important for the community members to connect with the issue of sanitation, it was realized
early in the project that in order to gain the trust of the community, project workers had to
work towards the issue of sanitation slowly. Therefore, the direction of the project was
guided by the communities themselves. Once a collective was formed, the settlements were
divided into several smaller groups, so that these groups could bring concerns regarding
sanitation to the attention of the Ward Parshad. This allowed the community to gradually
learn how they could raise their voices, influence the development of the infrastructure that
they used, and bring attention to the issues that they cared about. He also discussed how the
Citizen Forum brought development to the forefront by encouraging community and
individual citizen efforts, and encouraging a sense of responsibility regarding drains, waste
collection and disposal, and hygienic practices. This involved connecting people to the issues
of sanitation, and how these issues affected all citizens, and the entire city.
Ms. Seema Chandravanshi discussed how the SICs sensitized citizens regarding various
aspects of sanitation, including the proper usage of garbage disposal services, the importance
of toilets, the best ways of maintain sanitation, and the importance of doing so. She also
explained how challenging it had been for the settlement communities to work with PRIA
during the initial stages of the project, due to a lack of trust, but after the establishment of the
SICs, over 105 slums received the benefits of their outreach work. She highlighted various
instances where the contextual knowledge of the SIC members increased the efficiency of
Participatory Research In Asia
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their interventions concerning sanitation. For instance, the lived experience of the SIC
members helped them realize how weather conditions and heavy usage made certain
infrastructures more susceptible to degradation. Furthermore, engaging with members of the
community regarding the problems associated with using open pools as toilets helped to
educate them on the correct usage of toilets. She emphasized how important it was for this
educational aspect of sanitation to come from members of the community themselves.
Mr. Dinesh Bandella spoke at length about how his organization, the Centre for Science and
Environment, worked in collaboration with the Municipal Corporation on a solid waste
management project since 2016 in the city of Muzaffarpur. He mentioned that this was a
unique initiative, since it was headed by the Municipal Corporation, with private
organizations providing technical and logistic support. This is hugely advantageous, since, it
empowers the Municipal Corporation to continue this project even in the absence of other
private organisations. It tackled the issue of unsegregated trash disposal, and grew to include
construction, plastic, and biomedical waste, in addition to household waste. Muzaffarpur can
now boast of having the highest rate of waste segregation in the state of Bihar—65%, as well
as 100% door-to-door waste collection.
Mr. Mrityunjay discussed the importance of solid waste management, and how his
foundation, the Aga Khan Foundation, worked on providing technical assistance to the
Municipal Corporation of Muzaffarpur regarding regulating waste collection, how waste
production can be reduced at the household level, and how composting can be introduced as a
solution. He pointed out that since composting faces the barrier of needing space to work,
marketing waste like plastics and glass for recycling is a feasible alternative.
Session Two
Dr. Anshuman Karol introduced the panel by establishing that community participation in
sanitation and development projects is necessary, in order to facilitate efficient sanitation
services at the optimal level. This is because when projects are implemented with the
consent, participation, and united efforts of an entire community, then the changes achieved
are more sustainable. The corporation and democratic inclusion of community members also
brings about a model of good governance for the entire city. Trust is, therefore, the main
challenge to overcome when it comes to community participation. The ECRC project
involved important aspects of sensitization—the sensitization of civil society organizations
and the media to the real struggles faced by informal communities, and the sensitization of
the communities to the importance and dignity of sanitation. This sensitization took place
within the Citizen Forum, which gradually became an inclusive space for the members of the
SICs as well.
Various Municipal Corporation members and SIC members from the city of Muzaffarpur,
including Ms. Veena Kumari, Ms. Heera Kumari, Mr. KP Pappu, and Ms. Rupa Kumari
offered their thanks to the Citizen Forum and PRIA. Mr KP Pappu emphasized the
importance of working in tandem with the Municipal Corporation, stating that while there
had been good work that was accomplished in this regard, there needed to be even greater
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communication between all the stakeholders involved in city development. The members of
the SICs focused on the importance of reforming the wards, stating, “Only by reforming the
wards can we hope for this progress to spread to the rest of the city. The necessary
preliminary step towards complete and sustained development is to involve communities.”
Ms. Surbhi Shikha is a Ward Councillor from the city of Muzaffarpur, and spoke about the
necessity of increasing community participation in slum areas regarding sanitation, hygienic
practices, and using the toilet. She reiterated that community members also needed to be
participants in increasing awareness surrounding the importance of sanitation.
Mr. Randhir Lal spoke about the importance of having a decentralized waste disposal and
segregation system. This is due to the difficulty of treating solid waste, since its disposal
leads to the pollution of various areas, because of the lack of treatment centres and
infrastructure for the disposal of this waste. Decentralization of waste segregation is
important, therefore, as it is the first step of breaking the disposal of waste into smaller units.
He also proposed having a formalized master plan for the treatment of waste.
Professor Anil Kumar Roy spoke at length about the importance of sanitation and planning.
He discussed the dignity and safety that sanitary services add to life, as well as the
importance of having a regular water supply and waste disposal services. He discussed how
sanitation programs all over the world have been an ongoing process for decades, and how
decentralization of sanitary programs in India is important for their effective functioning. He
emphasized the importance of creating partnerships between stakeholders working on
sanitation, and increasing awareness among communities, in order to end sanitary hazards
like open defecation.
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Ms. Shashi Shikha from PRIA discussed the involvement of the elected city representatives
in the ECRC project, mentioning that their role in urban sanitation and water provision made
them indispensable. They also act as a link between the urban local governance bodies, and
the people who elected them, and can as such have a lot of mobilization power. Being
respected members of the local communities, they play an important role in changing the
behaviour and attitudes of people. They also create successful models at the level of the
wards, which can then be implemented in the entire city and state. Therefore, the involvement
of elected representatives makes city-level planning more successful. Unfortunately, their
role in planning is limited to the implementation of programs, rather than their inception. It is
important to address these planning concerns, since without their involvement, effective
participatory research cannot take place.
Summary
The ECRC state-level consultation consisted of two consecutive panel sessions, wherein the
first panel addressed the initial sanitary concerns acknowledged by the informal
communities, the formation of the SICs and the Citizen Forum. The second panel focused on
the future roles that could be played by the integrated involvement of all stakeholders,
including the elected representatives from the urban governing bodies, and other supporting
civil society organizations. The second panel also aimed to introduce strategic ideas for
changing the future of urban sanitation in a decentralized manner. This involves innovation
and engagement in the field of solid waste management in way that encourages the
participation of local communities, and facilitation by trained members of ULBs. This also
necessitates the possibility of multi- stakeholder partnerships for sustaining urban sanitation.
In order to supplement these efforts, the Citizen Forum in Muzaffarpur also inaugurated a
monthly newsletter, which will continue to discuss how citizen’s collectives can join hands to
provide solutions to the pressing problems in the state.
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State consultation on Putting Citizens at the Centre: Sustaining Improved Urban Sanitation Services in Bihar
21 December 2019, Hotel Park, Muzaffarpur, Bihar
10.30-11.30 Registration with Tea/Coffee
11.30-11.40 Welcome and Introduction to the Conference
Ms Shashi Shikha, Sr. Programme Officer, PRIA, New Delhi
11.40- 01.30 Panel discussion 1
Effective Behaviour Change through Community Organisations and
Community Champions
Moderator: Dr Kaustuv K Bandyopadhyay, Director, PRIA
Discussants
- Dr Anshuman Karol, Sr. Programme Manager, PRIA, New Delhi
- Sh Vikas Kumar Singh, Sr. Programme Officer, PRIA, Muzaffarpur
- Ms Seema Chandravanshi, Vice President, SIC Forum, Muzaffarpur
- Mr. Dinesh Bandella, Program Manager, CSE, New Delhi
- Mr. Mrityunjay, Sr. Program Officer, Aga Khan Foundation, Patna
- Dr D. K. Das, President, Citizen Forum, Muzaffarpur
Open Discussion
Comments from the Chair
01.30-02.30 Lunch
02.30-04.00 Panel Discussion 2
Capacitating Urban Local Bodies – Appreciating Participatory Planning and
Monitoring for Inclusive Sanitation Service
Chair: Ms. Heera Kumari, Deputy Municipal Commissioner, Muzaffarpur Municipal
Corporation
Moderator: Dr Anshuman Karol, Sr. Programme Manager, PRIA, New Delhi
Discussants
- Ms Surbhi Shikha, Ward Councillor, Ward 31, Muzaffarpur
- Ms. Veena Kumari, Hon’ble Mayor, Bihar Sharif Municipal Corporation
- Mr. K P Pappu, Ward Councillor, Ward 5, Muzaffarpur
- Ms. Rupa Kumari, Ward Coucillor, Muzaffarpur
- Mr. Randhir Lal, Deputy Commissioner, Muzaffarpur Municipal Corporation
- Sh Ajit Kumar Mishra, Assistant Director, Regional Centre for Urban &
Environmental Studies (RCUES), Lucknow
- Ms Shashi Shikha, Sr. Programme Officer, PRIA, New Delhi
Open Discussion
Comments from the Chair
04:00- 04:15 Vote of Thanks and Closing
Sh Vikash Kumar Singh, Sr. Programme Officer, PRIA, Muzaffarpur
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PARTICIPANTS LIST
S.
No
Initials Name Designation Dept/ Organisation
1 Mr. Ajay Kumar Patel President SIC Forum, Muzaffarpur
2 Dr Ajeet Gaav Citizen Forum Member
3 Sh Amresh kr.vipul Citizen forum member
4 Mr. Amresh Kumar Aamgola
5 Mr. Anil Kumar SIC Forum member
6 Mr. Anil Kumar Animator PRIA
7 Dr Anil Kumar Roy Associate Professor CEPT University, Ahmedabad
8 Ms. Anju Kumari Citizen Forum member
9 Dr Anshuman Karol Sr. Programme Manager PRIA
10 Ms. Anupama Sharma SAAI Muzaffarpur
11 Mr. Asgar Hussain Citizen Forum member
12 Mr. Asgar Muzaffar NIDAN
13 Ms. Babita Thakur Citizen Forum member
14 Mr. C.S. Joshi Administrative Manager PRIA
15 Mr. Dinesh Raj Bandela CSE, New Delhi
16 Mr. Deeptanshu Sawant Citizen forum member
17 Mr. Gaurav Raj Animator PRIA
18 Mr. Gopal Mohan Citizen Forum member
19 Ms. Hira Kumari D.M.C, Muzaffarpur
20 Mr. Israr Hussain Citizen Forum member
21 Mr. Jitendra Pandey Citizen Forum member
22 Mr. Jitendra Rai SIC Forum member
23 Dr K. K. Das Citizen Forum member
24 Mr. K. P. Pathak Ward 21 (Parishad)
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25 Dr Kaustuv K
Bandyopadhyay
Director PRIA
26 Mr. Kundan Kumar Ward 4 (MAA Foundation)
27 Mr. Kundan Kumar DOP
28 Ms. Madhu Kumari SIC Forum member
29 Ms. Manju Gupta SIC Forum member
30 Mr. Mithilesh CSM
31 Mr. Mritunjai AKDN
32 Ms. Navida Councillor, Ward 49
33 Ms. Nayanika Guha Assistant Program Officer
Communications
PRIA
34 Ms. Noorjahabibi SIC Forum member
35 Mr. Om Prakash Parshad Pratinidhi
36 Ms. Pooja Kumari Animator PRIA
37 Mr. Praveen Kumar Jha Sing Sadan
38 Mr. Praveen PV Manager - Finance &
Accounts
PRIA
39 Ms. Preeti Rani SIC Forum member
40 Mr. Punit Kumar Dept. Of Post
41 Ms. Rajasvi Gandhi Program Officer PRIA
42 Mr. Rajdev Pasuran SIC Forum member
43 Mr. Rajeev Kumar Animator PRIA
44 Mr. Ram Jatan Das Technical Specialist -
WASH
World Vision
45 Sh Rana karmkar Citizen Forum member
46 Mr. Randhir Lal DMC
47 Mr. Ranjan Kumar Citizen Forum member
48 Mr. Ranjan Kumar Singh NIDAN
49 Mr. Ranjeet Kumar Amar Teerthsthal (Seva
Ashram)
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50 Ms. Ranju Sinha Ward Parishad
51 Mr. Ravi Prakash Animator PRIA
52 Mr. Ravi Shankar Citizen Forum member
53 Ms. Rekha Kumari SIC Forum member
54 Ms. Rita Parashar Citizen Forum member
55 Mr. Rupam Kumar Ward 31
56 Mr. Sanjay Kumar World Vision AP Muzaffarpur
57 Mr. Sanjay Kumar Sinha Adv. DBA, Muzaffarpur
58 Mr. Santosh Kumar Councillor Ward 28, Muzaffarpur
59 Mr. Santosh Patel Citizen Forum member
60 Mr. Santosh Saheb
61 Ms. Sarita Bharti Animator PRIA
62 Mr. Satendra kumar Citizen Forum member
63 Mr. Satish Kumar Sethi Govt. Teacher
64 Mr. Satyanshu Animator PRIA
65 Ms. Seema Chandravanshi Sachiv Basti Vikas Sanchalan Samiti
66 Mr. Shashi Bhushan Pandit President AIKMM
67 Ms. Shashi Shikha Sr Programme Officer PRIA
68 Mr. Shekhar Kumar Saraffa Sangh
69 Mr. Sheru Ahmad Steering Committee (Member)
70 Ms. Shital Gupta Citizen Forum member
71 Mr. Sonu Kumar IT- Officer PRIA
72 Mr. Subir Das Project Coordinator WASH Institute
73 Ms. Sudama Convenor Ganga Swacchta Manch
74 Mr. Sujit Kumar Sourav Officer- Knowledge,
Management, Learning
PRIA
75 Ms. Surbhi Shikha Councillor Ward-30
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76 Mr. Suresh Das Parshad Pratinidhi
77 Ms. Sweta Devi Ward 49
78 Mr. Thirupathi Rao World Vision India
79 Mr. Tripurari Prasad Singh PRIA
80 Col V. P. Gupta Director PRIA
81 Ms. Veena Kumari Hon’ble Mayor Bihar Sharif Municipal
Corporation
82 Mr. Vijay Kumar PRIA
83 Mr. Vikash Agrawal Saraffa Sangh
84 Mr. Vikash Kumar SIC Forum member
85 Mr. Vikash Kumar Singh Sr Programme Officer PRIA, Muzaffarpur
86 Mr. Vishnudeo kumar Citizen Forum member
87 Mr. Vishwas Animator PRIA
88 Mr. Vivek Kumar Pandey Amar Teerthsthal (Seva
Ashram)