Upload
others
View
19
Download
1
Embed Size (px)
Citation preview
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 1
CITY SANITATION PLAN FOR
VARANASI
August 2011 Draft City Sanitation Plan- Main Document
Varanasi Municipal Corporation Technical Assistance: GIZ ASEM
Prepared by:
Consortium for DEWATS Dissemination (CDD Society) Bangalore
CEPT Research & Development Consultancy (CRDC), Ahmedabad
Alchemy Urban Systems (P) Ltd. (Alchemy), Bangalore
ALCHEMY
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 2
1.1 Introduction
The Government of India (GoI) had identified 100% sanitation as a goal during the 11th Five Year
Plan. The Ministry of Urban Development (MoUD) officially launched a country-wide National
Urban Sanitation Policy (NUSP) on November 12, 2008 with an objective to call upon individual
states to draft their own strategies based on the NUSP, while taking into account of their own specific
requirements. These strategies are a part of the City Sanitation Plan. The NUSP defines the city
sanitation plan as- “A comprehensive document which details out the short, medium and long term
plans for the issues related to governance, technical, financial, capacity building, awareness and pro-
poor interventions to ensure 100% access to safe sanitation.”
The City Sanitation Plan for Varanasi has been prepared with support from GIZ-ASEM. It has been
designed to address the special nature of the city which has undergone massive interventions, the likes
of Ganga Action Plan without much effect. It has been prepared after detailed stakeholders
consultation, governmental, nongovernmental and the various other city and area level organizations.
The CSP is directive in nature, suggesting the various possible interventions and principles to achieve
city sanitation in a comprehensive way. Various technological, management and institutional options
have been examined, which will facilitate the urban local body to adopt specific strategies and
projects best suited to their situation.
1.2 Key Issue and Recommendations
The following section identifies the various key sanitation issues of Varanasi. These issues are backed
by the rationale of the same and are followed by recommendations that can effective address these
issues.
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 3
1.2.1 Key Issue-1
Public toilets in the city are inadequate and under-maintained. The urban poor also lack access
to toilets. The cumulative result is open defecation being practiced rampantly in the city
affecting the health and environment.
1.2.1.1 Rationale for Key Issue- 1
In Varanasi, 15% of the households do not have access to toilets and resorts to open defecation (ward
no. 3, 5, 6, 19, 26,27,30,33, and 36). Open defecation is being practiced in the slum as well as non
slum areas of the city.
The user charges for the community toilets allow access to 5 members as against the average HH size
of 7.2. Primary surveys indicate that the people find the user charge of Rs.30 per month per 5 users
expensive. There is a severe shortage of toilets for the urban poor. In the existing condition there is
one toilet seat for 158 people in an average in the CDS, as against the national norms of one seat per
50 users.
The toilets severely lack in maintenance making people reluctant to use them at the given user charge.
Open defecation hotspots have been identified along the Ghats and tourist areas, railway line and the
peripheral areas.
The attached map indicates the hotspots of open defecation in the city (Refer annexure I, segment
2.2.2.1)
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 4
Map 1- Open defecation hotspots in Varanasi
The exiting public toilets have been mapped in the city and the following map indicates the location
Figure 1- Open defecation hotspots in Varanasi
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 5
and the un-served pockets on the city the number of public toilets is inadequate considering the high
tourist influx and the unavailability of public toilets in the dense commercial areas, especially in the
core city. (Refer annexure I, segment 2.2.2.3)
Figure 2- Location of Existing toilets in the core city area
1.2.1.2 Recommendations for Key issue- 1
It is recommended that the existing community and public toilet complexes should be repaired/
rehabilitated at an immediate phase through a strict monitoring protocol enforced by the
municipal corporation.
It is recommended that the municipal corporation enforces the existing private operators to collect
user charges for the community toilets on a HH basis as against the current practice of charging
on member basis.
Preliminary studies indicate a requirement of 240 public toilets seats and 250 community toilet
seats to ensure 100% access to toilets in the city. The possible locations and design prototypes
have been indicated in the Sectoral strategies (refer chapter 2)
It is suggested that a DPR should be prepared for the identification, both spatially and
quantitatively the number of toilets seats (both community and public) required in the city. The
DPR should also consider the following issues
Access and the number of seats required and the provision for toilets in special areas
like Ghats (Refer annexure I, segment 2.4.1.3)
Location (mapping of the existing and proposed toilet complexes)
Gender sensitivity
Financial mechanism
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 6
Once approved it is suggested that the design construction, operations and maintenance of the
new public and community toilets as per the DPR should be tendered and implemented.
It is recommended that the VNN with support from the state should develop a design specification
and operation manual for maintenance of a minimum desirable quality of the amenities created
including punitive and incentive mechanisms. Refer annexure VI, segment 7.3.1 for the basis of
developing such an O&M manual.
The VNN should evaluate the possibilities of cross subsidization of community toilets through
public toilets. (Refer annexure I, segment 2.4.2.1 & annexure VI, segment 7.3.1.2)
A tripartite monitoring system consisting of the users, private party and the ULB for the promised
levels of maintenance should be developed on a medium term. Tools like citizens report card are
found to be useful in this context. (Refer annexure I, segment 2.4.2.5)
It is suggested that the big shops and commercial establishment should provide for public toilets
in the ratio of 1 seat for 100 users. The actual number of toilet seats may be assessed from their
market surveys. This can be enforced by the corporation through the bye laws and the clearance
procedure.
VNN should enforce the schools to have 100% access to well maintained toilets through stirt
monitoring and punitive measures
VNN should invite specialized design options for the public toilets located within 500m of the
Ghats.
The VNN should conduct a feasibility study on the technology options for the public toilets. A
detailed comparison between the technical options, ease of maintenance, local know and
adaptability and the cost benefit analysis should be used to identify the technology suited for
public toilets in the city.
1.2.2 Key Issue-2
No coverage to sewerage system in peripheral areas and limited sewer connectivity in
covered areas1.
1.2.2.1 Rationale for Key Issue-2
The coverage of the current wastewater network services according to the SLB is 77.87%. Though it
is expected that the coverage will be significantly increased after commissioning of the JICA and
JnNURM schemes, analysis of the proposed JICA and JnNURM schemes indicated that a majority of
the areas in the north (ward number 30), western (ward number 3, 19) and southern (ward 28, part of
13, 77 and 38) peripheral areas will lack coverage to sewer networks. The attached map indicates
these areas.
Though the coverage is high, the connectivity as stated under the SLB remain as low as 27.67%. The
household survey the connectivity in the core area of the city is more than 80% whereas in the
northern periphery is as low as 28%. However the connectivity to sewer networks in slum areas is
generally much lower (Refer table 7, Sectoral Strategies). The low coverage of sewer network and
low household connectivity to the sewer system has impeded the high dependence on septic tanks in
1 Due to non accessibility of Sewerage Master Plan document prepared by JICA in 2004, the recommendation provided in
this document needs to be cross checked with JICA master plan report.
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 7
Figure 3- Coverage of Sewage System in Varanasi
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 8
the city. However there is a lack of formalized septage management in the city. The septage is
currently removed with shovels and spades manually and is disposed in low lying areas (Source: HH
Survey, Interview with Sweepers and Observations). Primary surveys indicate that the septic tanks are
overflowing in the open spaces and storm water drains in the city.
1.2.2.2 Recommendations for Key issue- 2
It is recommended to conduct a feasibility study on the future network coverage of the current
uncovered areas (stated above) in terms of (a) connection to the existing (and planned) centralized
sewerage systems. (b) Up gradation of the existing septic tanks, (c) Provision of Decentralized on-
site and off-site systems
A prefeasibility study should be taken up for ascertaining the number of septic tank connections
in the city. The VNN should institute incentive measures for the connection of the households and
the septic tanks to the centralized sewer system. Linking this to the property tax is suggested to
ensure 100% connectivity.
It is recommended to conduct a detailed study considering the results of the survey as well as
waste water analysis to evaluate the reasons for the low influent BOD at the treatment plant.
A municipal bye-law shall be mandated to ensure existing and future households to be connected
to the existing/proposed sewer networks
Incentive and punitive mechanisms are to be enforced to ensure household connection. This
should be reinforced through awareness strategies.
It is recommended that the VNN should empanel certified plumbers who have the required
qualifications for the connection to the branch/trunk. The connection shall be undertaken by these
certified plumbers such as to ensure high quality control. This system should also ensure the
connection of both grey and black water streams into the network
It is recommended that the VNN formalizes the septage management sector where the septage is
being collected and transported to the nearest sewer network (discharge points) or transportation
to the treatment plants ( Refer Annexure-II, segment 3.4.2.1 )
Septic tank & Septage management shall be a part of the dedicated unit for Sewerage Sector
under the Sanitation Department personnel management system & Sanitation worker’s training
program shall be implemented to conduct occupational safety and health training campaigns to
educate the sanitary workers with respect to the benefits of adopting best operating practices;
1.2.3 Key Issue-3
Increased risk for performance deficiencies due to low influent organic load into the
sewage treatment plants
1.2.3.1 Rationale for Key Issue- 3
The total sewage generation in Varanasi in 2010 is about 233 MLD (calculated based on 80% of water
supply). The total capacity of the treatment plants in Varanasi is only 101.8 MLD. Hence at present
only 43% of the sewage generated is being treated at the STP (Refer Annexure-II, segment 3.2.4 )
Under JNNURM and JICA a total capacity enhancement of 260 MLD of sewage treatment is
proposed. This would enhance the total treatment capacity to 361.8 MLD. However, even after the
proposed enhancements the treatment capacity will fall short of the requirements by 5.5% in 2030 and
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 9
26% of the total sewage generated in 2040. It is observed that the incoming organic load into the
existing STPs is significantly lower (table 28, Status Report) compared to the design factor.
1.2.3.2 Recommendations for Key issue-3
A pre-feasibility is recommended to identify the reasons for low concentrations of organic load
taking into consideration (a) Overflow of the septic tanks directly connected to the sewer system,
(b) Only grey water connection to the system, (c) Seepage of groundwater/River water into the
sewer system
Since the influent organic load in the existing treatment plans is low, it is recommended to
consider this issue in the design and implementation of the new network and treatment system
The additional treatment capacity required by the year of 2030 has also to be studied and a long
term plan to enhance the capacity of treatment plant has to be formulated.
1.2.4 Key Issue-4
Solid waste management system does not comply with the MSW 2000 and CPHEEO
manual
1.2.5 Rationale for Key issue 4
Solid waste management is weak due to inadequate infrastructure both in terms of processing and
scientific end disposal. Even though private operator has taken over and initiated the door to door
collection of waste from households due to absence of disposal site waste is being dumped in the open
sites. Currently there are two dumping sites near Ramnager and Chirgobardhan at the eastern and
southern periphery respectively of the Varanasi Municipal Corporation. (Refer Annexure-III,
segment4.2.1.6)
The attached chart shows the percentage of compliance of the solid waste management system in
Varanasi to the MSW rules according to the SWM DPR.
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 10
The secondary storage depots- Kudaghars are under maintained and waste often spills out leading to
unhygienic conditions around the area. There are 26 such waste storage houses. The DPR for SWM
has recommended removal of these Kuda-ghars from the main city locations.
1.2.5.1 Recommendations for Key issue- 6
Entire cycle of waste management to be enforced in the pilot areas, from segregation to end
processing and then upscaled in the entire city.
The intermediate waste storage depot should be eliminated and a vehicle to vehicle transfer
system for waste collection and conveyance to be adopted.
Adoption of Bylaws for waste management by ULB. Enforcement and monitoring of these
Bylaws by ULB
The treatment and landfill site should be commissioned as soon as possible
Institutional Reforms – M&E Systems ; Performance Appraisal Systems ; O&M ; MIS ( Refer
Annexure-III, segment 4.4.4.1 )
A feasibility study on the collection, treatment and disposal for animal excreta in the city should
be undertaken by the VNN.
The VNN should enforce the safety and occupation health safeguards for the Safai Karamchari
with A2Z. This can be done through strict monitoring and punitive measures
1.2.6 Key Issue-5
Lack of specialized waste management practices in the areas like- Ghats, river, narrow
lanes, slums, temples and kunds in the sanctioned DPR
1.2.6.1 Rationale for Key Issue- 5
The DPR does not detail the specialized areas for waste collection like the Ghats, river and narrow
lanes in which the regular system of waste management does not work. The physical design of the
Ghats and the activity patterns lead to technical challenges in the waste collection at Ghats. (Refer
Annexure-III, segment 4.4.4.2 ) A large and un-quantified amount of waste, consisting of the Ghat
Figure 4- MSW compliance in Varanasi
1.80 0.00
10.00
84.14
9.64 9.64
0.00 0.000.00
10.00
20.00
30.00
40.00
50.00
60.00
70.00
80.00
90.00
Storage of waste at source
Segregation of wastes
Door to door collection
Street Sweeping
Secondary storage
Trasportation Treatment Disposal
Percentage of compliance to MSW
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 11
sweepings and the pooja wastes is being dumped into the river. In the narrow lanes (2m and less) of
the core city door to door waste collection is complicated. The DPR although identifies the slums as
special area of concern does not specify the waste collection and management strategies for the same.
1.2.6.2 Recommendations for Key issue- 5
A 100m strip along the Ghats to be declared as no plastic zone, this shall reduce the waste
generated. ( Refer Annexure-III, segment 4.4.2.5 )
Ghats to be cleaned in the early morning hours as well in the afternoon when the number of
tourists are less( Refer Annexure-III, segment 4.4.2.5 )
Formation of the Ghat police- from the local stakeholders like the boatmen, Mahants, Ghats
samities to maintain the Ghats and monitor the cleanliness of the same.
Organization and mobilization of the Boatmen association for cleaning of the river every day,
with custom designed boats. ( Refer Annexure-III, segment 4.4.4.2 )
The Ghat sweepings may be collected through the boats which can be then carried for final
disposal.
1.2.7 Key Issue-6
Flooding of low lying areas due to poor storm water management in the city
1.2.7.1 Rationale for Key Issue- 6
In Varanasi, there are many low lying areas in the city which get water logged during the monsoons.
Many major road intersections also get water logged. The areas prone to frequent water logging are
Chaukaghat Water Tank, Gurabagh, Jal Sansthan area, Vikas Pradhikaran Colony, Shivpur,
Nakkigthat area, Mahmoorganj, Ravindrapuri colony, Central Jail Compound area, Dingia Mohall
area, Shivpurwa, Nawab Ganj, Bada Lalpur area, G.T. Road area, Nirala Nagar, Karaudi area,
Chuppepur colony, Slaughter House area, Jaiprakash Nagar, Bazerdiha area, Khushall Nagar,
Kamalagarha, Manduadih area, Brijenclave colony area, Paigamberpur, Salarpur etc The attached
map shows such areas in the city (Refer Annexure-IV, segment 5.2.1.5)
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 12
The waste thrown along the natural drainage nalas of Assi and Varuna lead to a reduced capacity of
Figure 5- Low lying areas in Varanasi
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 13
storm water carrying. The DPR SWM mentions waste to the extents of 10 tons per day being dumped
along the nalas. (Refer Annexure-III, segment 5.2.1.2). Preliminary surveys indicate that the storm
water drains are choked with solid waste and effluents from septic tanks which pose health risk,
especially during the rainy season. The natural drains are also overlooked in city planning and design
leading to over concretization which again leads to clogging and impacts the natural drainage pattern
of the city.
1.2.7.2 Recommendations for Key issue- 6
The storm water drains should be covered to stop the garbage from getting inside the drains. (
Refer Annexure-V, segment 5.2.4.1)
A detailed feasibility study and assessment of the lakes and the kunds interlinking with storm
water drains to enhance the capacity of storm drainage and ground water recharge needs to be
studied. This shall help in recharging the lakes and also, distribute the surplus rain water, reducing
the chances of floods. ( Refer Annexure-V, segment 5.2.4.2)
Rain water harvesting structures should be mandated for all new construction in the peripheral
areas of the city through municipal bye laws. The general development control regulations for the
city should make it mandatory to include rain water harvesting. ( Refer Annexure-V, segment
5.2.4.3 )
It is recommended that pilot studies for Nala revitalization focusing on area beautification,
cleanliness drives and urban design interventions taken up on an immediate term by the VNN. (
Refer Annexure-V, segment 5.2.4.7)
1.2.8 Key Issue-7
It is challenging to induce sanitation related behavioral change in people of Varanasi
owing to the religious and cultural habits and the setting.
1.2.8.1 Rationale for Key Issue-7
Varanasi is strongly rooted in its cultural traditions, wherein people believe that dying in the Ghats,
helps in the attainment of nirvana. People believe in cleaning themselves before taking a dip in the
holy Ganges. In absence of sanitation infrastructure they resort to open defecation along the Ghats.
This can be noted in the Map 1, wherein the major Open defecation hotspots are located along the
ghats. The flowers, diyas and offerings used in the poojas, are being thrown into the river, which
decomposes and deteriorates the quality of water. The religious sentiments lead to any kind of
demolition, construction activity or even policy intervention difficult in the Ghats and the areas
around the temples.
1.2.8.2 Recommendations for Key issue- 7
A draft IEC strategy for various target groups has been given in Annexure-VI, segment 7.2.4.10,
it is recommended that the implementation should be taken up on an immediate basis.
A group of city level sanitation volunteers should be identified from the various stakeholder
segments in the city, who shall be responsible for sensitizing activities along with the VNN. (
Refer Annexure-VI, segment 7.2.4.10 ). The Ghats should be adopted by the different groups of
sanitation volunteers such as to initiate the sanitation programs along the Ghats with the required
awareness strategies. ( Refer Annexure-VI, segment 7.2.4.3 )
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 14
Pilot proposals in the most visited areas of the city that is, the Ghats, to improve the overall
sanitation and also improve the economic conditions of the area are suggested.
1.2.9 Key Issue-8
The institutional arrangement of the sanitation planning and management in the city is
fragmented
1.2.9.1 Rationale for Key Issue-8
There are multiples institutions involved at various hierarchal levels for sanitation in the city. The
table below lists the institutions and their overlapping responsibilities. The highlighted cells indicate
the functional overlaps. (Refer Annexure-VII, segment 8.2.2).
Table 1- Institutional overlaps in the Sanitation sector in Varanasi
Sector Description VMC JK UPJN VDA DUDA GPU UPPCB
DE
VE
LO
P
ME
NT
PL
AN
Area Development Plan √
WA
TE
R
SU
PP
LY
Plan, Design & Construction √
HH Connection √
O/M √
User Charges √
SA
NIT
AT
ION
HH Connection √
Design Approval √
HH Discharge Approval √
Community Toilet √ √
Public Toilet √
SE
WE
RA
GE
Plan, Design & Construction √
HH Connection √
Operation & Maintenance √
Sewage Treatment Plant √ √
Disposal √ √ √
ST
RO
M
WA
TE
R
DR
AIN
AG
E
Plan, Design & Construction √
Operation & Maintenance √
SO
LID
WA
ST
E
MA
NA
GE
ME
NT
Collection √
Storage √
Transportation √
Sorting & Processing √
Disposal √
Draft City Sanitation Plan for Varanasi
CEPT, Ahmedabad 15
Along with the institutional overlaps of responsibilities and functions the overall staff strength of the
various institutions involved with sanitation is also not adequate. It was observed that out of the total
designate Class I officers, a total of 46% seats lie vacant. (Refer Annexure-VII, segment 8.2.1.2)
1.2.9.2 Recommendations for Key issue- 8
Since the integration of the Jalkal with the Nagar Nigam has already been initiated it is
recommended to develop a roadmap to make it more effective in lines of the 74th CAA. It should
consist of the same.
o Reforms
o Accrual accounting
o E governance
o Citizens charter by both the VNN and JK
o Accountability to the citizens and the elected representatives
Long term capacity building has also been recommended and the target groups have been
suggested. ( Refer Annexure-VII, segment 8.2.5 )
1.2.10 Key Issue-9
The exiting financial management system is inadequate to ensure efficient service
delivery
1.2.10.1 Rationale for Key Issue-9
At present the accounts of Varanasi Municipal Corporation are maintained on Single Entry basis. The
Municipal Corporation is yet to migrate towards double entry accounting. In fact it is case of very
rudimentary form of single accounting wherein all revenue and capital receipts and outlays have been
clubbed together. In such a scenario knowing the exact expenditure for operations and maintenance
and for new projects is very difficult. Also there seems to be no classification of different heads of
expenditure as per their characteristic or function. This over simplistic accounting systems makes it
difficult to know the source of the income as well as the expenditure pattern of the same.
The revenue account analysis indicates that the ULB is highly dependent on the State to finance its
activities. Its share of own revenues is 25% of the total revenues. The share of own revenues has
grown little from 25% in 2006-07 to 27% in2008-09.
1.2.10.2 Recommendations for Key issue- 9
It is essential at present for the Varanasi Municipal Corporation to migrate from single entry
accounting system to double entry accounting system. Training and handholding of the ULBs
may be required for such transformation of accounting system.
Efforts to increase the revenue generation by regulating the tax regime and efficient assessment
and collection of taxes need to be taken up with immediate effect.
At present, the VMC is heavily dependent on the State level grants. The functions like water
supply, sewerage and solid waste especially need to be made self sufficient.
Adopt accounting and budgetary standards from as per the directive of C&AG
Institute efficient data management system ensuring appropriate financial administration and
reporting mechanism.