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This was a study done in 2 urban poor area - one a slum and other a resettlement colony . FORCE team recorded the usage pattern i.e. who (man / woman/child) came to the Community Toilet Complex (CTC), at what time and for what purpose (defecating, urination, bathing, washing clothes). Also we studied the layout plan of a typical CTC and did a Focus Group discussion with CTC caretakers. Based on this, FORCE prepared the CTC Management Report' which gives findings and recommendations for CTCs in urban slums.
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June 2013
COMMUNITY TOILET COMPLEXES
PILOT STUDY AND SUGGESTIONS (Report prepared by FORCE as part of’ Swatch Delhi Swasth Delhi’ project
Funded by Water Aid India
Presented to
DUSIB
F O R C E
Forum for Organised Resource Conservation and Enhancement
CTC Management Report
For more information on FORCE visit our website: www.force.org.in
FORCE–C-8/8035, Vasant Kunj, New Delhi–110070.T: 11 46018754 M: 09899812888 email [email protected]
2
CONTENTS
1. BACKGROUND 3
About CTCs..................................................................3
Water FORCE & CTC Management……………………………………..…..3
2. PROJECT OBJECTIVES 4
Immediate……………….………………………………………………………………..4
Final……….………………………………………………… ……………………………….4
3. SCOPE OF STUDY 5
4. METHODOLOGY OF INFORMATION COLLECTION 5
5. FINDINGS – USAGE DATA FROM SURVEY 6
Kalkaji Pre-Fab Toilet…….……….……………………………….................6
Shastri Park Toilet.……….………………………………..........................11
6. FINDINGS FROM CTC INFRASTRUCTURE LAYOUT AND MONITORING 17
Kalkaji Pre-Fab Toilet…….……….……………………………….................17
Shastri Park Toilet.……….………………………………..........................18
7. FINDINGS – FOCUS GROUP DISCUSSION 20
Users and Usage…….……….……………………………….......................20
Maintenance and Management…….……….…………………………………..20
Infrastructure…….……….………………………………...........................23
8. CONCLUSIONS AND RECOMMENDATIONS 24
Cleaning…….……….………………………………..................................24
24 hour availability…….……….………………………………...................25
Monitoring and Participative Management…….……….…………………25
Tracking Usage and Charging Users…….……….………………………….26
Infrastructure – without major changes................................27
Design Recommendations for the future…….……….……………………28
9. ABOUT FORCE 31
3
1. BACKGROUND
ABOUT CTCs
Government of Delhi and the other land owning agencies of Delhi have tried to provide toilets for floating
populations and unauthorized settlements in the form of Community Toilet Complexes. Typically a toilet
complex has 10 - 40 toilet seats and 0-5 bath rooms. The men’s and women’s sections are separate. Some
complexes also have special facilities for the differently abled persons.
In the past few years, the day to day toilet management and maintenance of its basic infrastructure has
been outsourced to private bodies / Registered Community groups. A contractual agreement that covers the
service provider’s responsibilities is signed between the CTC owning agency and the management agency. A
revenue stream is also provided for the service providers in the form of charges they can levy from users
and advertising rights for the CTC walls. The service providers are also required to provide caretakers for
ensuring proper service and collections.
With the formation of the Delhi Urban Shelter Improvement Board, the provision of all facilities to the
unauthorized settlement has been centralized with this body. This has been done to overcome the problems
created by multiple agencies in the capital. As a result, CTCs operating in such areas have also been handed
over to DUSIB.
DUSIB has done an internal analysis of the seat requirements vis a vis availability in every area. It is also
looking at ways by which service provision can be improved in these areas
ABOUT FORCE and CTC MANAGEMENT
As a part of our WaterAid India funded Swatchch Delhi, Swasth Delhi project, FORCE has been
Monitoring 75 CTCs in different zones of Delhi. The Monitoring of these CTCs is being done
every 15 days by teams of 2 women each from the user community. The Monitoring format is
based on the terms of Contract framed by Municipal Corporation of Delhi for outsourcing to its
partners. Hence the monitoring is being done only for deliverables that are provided for as a
part of the contract.
Before starting monitoring of CTCs in any area, FORCE first conducts an awareness drive in the
area to share with the CTC users the services that are supposed to be provided by the CTC
management agency and the role that the user himself has to play in its management and
maintenance. After the monitoring begins, meetings with the caretakers, sanitation staff of
4
MCD and community are organized to discuss the reasons for lapses in service and to find a
way out of the problems.
This system of Positive minded Community Monitoring with a constant feedback to government
and managing agency has had a very good effect on the condition of the CTCs. Most have been
repaired, are open for longer hours and are cleaned more frequently than they were before.
FORCE has shared our learnings with DUSIB. In its efforts to provide better CTC services to
citizens, DUSIB has asked FORCE to give suggestions for improvement of infrastructure and
management systems in DUSIB managed toilets. For the pilot study, 2 toilets have been
selected.
2. PROJECT OBJECTIVES
IMMEDIATE OBJECTIVES
The immediate objectives of the project are:
In the selected toilets
1. To find the actual user numbers and user profiles of the selected toilets.
2. To find the usage profile
3. To identify the infrastructural gaps
4. To suggest improvements in infrastructure
5. To identify the management gaps
6. To suggest improvements in management including monitoring and participative
management by communities. Also to suggest roles of each stakeholder in the
management system.
FINAL OBJECTIVES
1. To suggest a model for infrastructure / design of all sewer / septic tank based DUSIB
CTCs based on the learnings from above
2. To suggest a model for monitoring and participative management with the aim of
ensuring sustainable supply of good services in sewer / septic tank based DUSIB CTCs.
3. To suggest a model for monitoring and participative management with the aim of
ensuring sustainable supply of good services in new Bio Toilet CTCs of DUSIB
4. To suggest a reliable Reporting and Management system by which periodic reports for
all CTCs under DUSIB can be received and analysed at the headquarters level.
5
3. SCOPE OF THE STUDY
For the immediate project objectives, the following 2 CTCs have been studied:
1) Shastri Park
2) Kalkaji Bhumiheen camp ( Prefab toilet)
Both sites presents a different type of study area
4. METHODOLOGY OF INFORMATION COLLECTION
Information for the project is being collected through the following methods:
1) Focus Group Discussions - Users (both men & women), caretakers and FORCE zonal
CTC incharges of the toilets covered in this project have been called to the FORCE office
in two groups. A focus group discussion was conducted with each group to understand
the key issues related to the toilets. The Questions Guide for the FGD is as follows:
a. Usage patterns in the CTCs.
i. User profiles
ii. Usage types – bathing/ clothes washing/ urination/ defecation.
iii. Peak usage times
b. Key requirements of a CTC – user perspective
c. Current management system at ground level – user and caretaker perspective.
d. Current user charges system
e. Key maintenance issues – caretaker perspective
f. Management issues – user perspective
g. Management issues – caretaker perspective
h. Suggestions for management system – user charges, stakeholder roles ,
participative management.
2) On-site data collection for User numbers and demographics. Our CTC Monitoring team
stood at a CTC site from 4 am till the closure of the CTC to collect precise usage
numbers for one sample day.
3) Mapping of CTC – Survey and architectural drawings of 2 sample CTCs are been made.
One of the CTCs is an old CTC and one is a new Prefab CTC. The objective is to study the
layout and to suggest design changes based on user feedback and actual usage patterns.
6
5. FINDINGS = USAGE DATA FROM SURVEY
KALKAJI – PREFAB TOILET
1. Opens at 4 am and closes at 12 midnight
2. Majority of the users are men (Chart 1)
3. Assuming 3 visits per person per day and assuming that Rs 1/- is charged per person
per day (only once in a day for any number of usages), the per day collection would be
Rs 2055/-.
Chart I
KALKAJI CTC - USERS
3266
1574
1326
Male
Female
Children
4. Only men use the toilet for bathing and clothes washing. In all types of uses, men form
the largest segment (Chart 2)
7
Chart2
Kalkaji Usage based on User type
2510
503
228
25
1574
0 0 0
1326
0 0 00
500
1000
1500
2000
2500
3000
Toilet Urine Bath Washing
Male
Female
Children
5. The toilet is largely used for Defecation (Chart 3)
CHART 3
KALKAJI purpose wise usage
5410
503 228 25
Toilet
Urine
Bath
Washing
6. Among all people who use the toilet for defecation, men form the largest set. (Chart 4)
8
CHART 4
KALKAJI - USERS FOR DEFECATION
2510
1574
1326
Male
Female
Children
7. There are two peaks of usage of toilets for all purposes – 6am-8 am and 8pm-10 pm
8. Minimum usage is between 12noon -2 pm (Chart 5)
CHART 5
KALKAJI - TIME WISE USAGE
552
1123
960
757
305
375
549
484
764
297
0
200
400
600
800
1000
1200
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm 10-11pm
Time
No
. o
f u
sers
1. Maximum men use toilet for defecation between 6-8 am (Chart 6)
2. Use by women for defecation is evenly spread between 6-12 noon. Another peak
happens between 8-10 pm.
3. Use by children is spread between 6-10 am
9
CHART 6
269
193
57
591
219228
313
233233
326
243
132
87
41
12099
74
137
186
147157
180
102118
306
242
116
153
80
28
0
100
200
300
400
500
600
No.of users
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm 10-11pm
Time
KALKAJI TIME WISE USER COMPARISON - DEFECATION
MALE
FEMALE
CHILDREN
9. For defecation use, most crowded hour is 6-8 am. 8am-12 noon and 8pm-10 pm are
also crowded hours. (Chart 7)
4. Fairly high usage continues till 11 pm.
CHART 7
KALKAJI HOURWISE USAGE FOR DEFECATION
0
200
400
600
800
1000
1200
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm 10-11pm
TIME
NO
. O
F U
SE
RS
Series1
10. Peak bathing time is 8-10 am. Also high bathing upto 12 noon. Another peak in bathing
happens at 6-8 pm. (Chart 8)
10
CHART 8
KALKAJI TIME WISE BATHING USE
18
37
53
42
10 108
25
20
5
0
10
20
30
40
50
60
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm 10-11pm
Time
No. of users
5. Bathing peaks come after the defecation peaks.
6. Children and women do not bathe in the toilets at all. (Chart 9)
CHART 9
Usage for BAthing and Defecation - Time wise
18 37 53 42 10 10 8 25 20 5
519
1038
779701
248310
490400
664
261
0
200
400
600
800
1000
1200
4-6 am 6-8 am 8-10
am
10-
12am
12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm 10-
11pm
Time
User
no
s.
Series1
Series2
11
SHASTRI PARK TOILET
1) Open from 4 am to 10 pm everyday
2) Majority users are men
3) Analysis of Chart 10 data shows Usage is very high between 4-10 a.m. Peak
usage is between 8-10 a.m. The evening use is high between 4 -10 pm. Evening
peak is between 8-10 pm.
4) Minimum usage is between 12-4 pm. Trough is at 12-2 pm.
CHART 10
Shastri Park Time wise total usage
641665
714
399
216233
365
425
467
0
100
200
300
400
500
600
700
800
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm
Time
No
. o
f u
se
rs
total users
5) Maximum usage of toilet is for Defecation followed by urination. Very few people
use it for washing clothes (Chart 11)
CHART 11
SP Usage wise data
2420890
618
197
Defecation
Urination
Bathing
Washing
12
6) Comparative analysis of peak usage times for men, women and children (Chart
12) shows interesting variations. The early morning hours of 4-6 am are high
usage time for men and very low usage for children. Women and children peak
time usage is between 6-8 a.m. while at that hour men’s use shows a sudden
dip. Men’s peak usage time is 8-10 am followed by a continuous fall in usage.
Evening peak for women is from 6-8 pm whereas for men it is 8-10 pm. This
analysis has implications for cleaning and availability of female caretaker /
cleaner.
CHART 12
Time wise total usage by user type
351
265
408
188
147 142
165
185
255
206214
202
144
4961
153
171 173
84
186
104
67
2030
47
69
39
0
50
100
150
200
250
300
350
400
450
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm
time
no
of
users
men
women
children
7) Analysing Chart 13,14 and 15 in conjunction with Chart 12 gives further
suggestions about Cleaning schedules that may be followed in the toilet. For
men, peak toilet usage time is 4 am to 6 am. However, maximum visits by men
are between 8-10 am because use for bathing and urination peaks at that time.
This would seem to suggest that extra cleaning of the men’s toilet needs to be
done between 5-7 a.m. Not only would this help keep the toilet cleaner during
peak usage hours, but would also encourage more men to use it for bathing and
urination later. For women, the peak use for defecation is between 6-8 am and
then a peak for bathing happens between 8-10 am. Hence extra cleaning in the
period 6-8 am would keep the toilet clean during peak defecation use and would
also encourage more women to bathe in that complex. For children the peak
usage for both bathing and defecation is 6-8 am. Since most children go to the
women’s section. This is additionally a reason why special effort for cleaning
should be make in the women’s section in that period.
13
CHART 13
S.P TIme wise use for Defecation
259
153
212
115
7565
100105
137132
142
118
71
22
42
85
106
65
51
150
81
53
713
20 2318
0
50
100
150
200
250
300
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm
Time
No
. o
f u
se
rs
men
women
Children
CHART 14
S.PTime Usage Urination
45 45
109
2832
22
55
33
71
59
4850
41
15
6
50
21
60
27
15 15
5 52
106
15
0
20
40
60
80
100
120
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm
Time
No
. o
f u
se
rs
men
women
Children
8) As shown in Chart 15, very few people go to the toilet for bathing. Even fewer
go for clothes washing (Chart 16). The primary reason given for this is the poor
hygienic conditions in the toilet and the fact that its floor is always wet. Amongst
the users, the number of women and children users is much lesser than the men
users. Apart from the reason of poor cleanliness, the other reason is that of low
privacy and availability of a safer, cleaner alternative – that of bathing in their
house itself.
14
CHART 15
S.P. Timewise usage for Bathing
40
59
80
25
17
44
5
31 30
8
18
30
15
5
108
29
43
6
21
6 75
1517
38
6
0
10
20
30
40
50
60
70
80
90
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm
Time
No. of users
men
women
Children
8) Washing is done by very few people in the toilet – most of these are men (Chart 16). The
men do not actually wash clothes. They usually only rinse the clothes that have already been
soaped and cleaned by the women. This is because there is water available in the toilet but not
in homes. Most women tend to wash their clothes in the lane outside their homes. The reason
given for not washing in the toilet is that of poor cleanliness. Also, for women the number of
clothes to be washed is quite high (since they wash for the whole family). Hence, carrying the
clothes to the toilet and then back home is difficult for them.
9) Peak Washing time is 12-2 pm and is also high between 10-12 noon. This shows that
washing is done when other toilet activities at the minimum. The daily cleaning of the toilet is
usually done around 11 am. This shows that washing is done immediately after the cleaning is
completed. Reasons cited are the increased space requirement for washing of clothes and the
need for neat floor and clean surroundings.
CHART 16
S.P Time Wise usage for Washing
0
5
10
15
20
25
4-6 am 6-8 am 8-10 am 10-12am 12-2pm 2-4 pm 4-6 pm 6-8 pm 8-10pm
Time
No. of users
men
women
Children
15
10) Maximum users in all categories are men. Men form almost half of total users. Proportion
of men users vis a vis others increases for bathing and washing.
CHART 17
S.P Usage for defecation
1221
783
416
men
women
Children
CHART 18
S.P. Usage for urination
men
women
Children
CHART 19
S.P Usage for bathing
331
166
121
men
women
Children
CHART 20
16
S.P. Usage for washing
114
74
9
men
women
Children
5. FINDINGS FROM CTC INFRASTRUCTURE LAYOUT AND MONITORING
17
KALKAJI
The above is the current layout plan for the Kalkaji Community Toilet Complex. The observed
infrastructure provided is as follows:
1) For men - 18 WCs plus 3 urinals for Men. Open bath area with 3 faucets plus 2
bathrooms
2) For women - 24 WCs for Women. for bathing for men. Open bath area (larger than that
for men) and 2 bathrooms.
3) Water supply only in open bathroom faucets and closed bathrooms
4) No water supply inside toilets
5) Comparing seat availability with usage patterns shows that though men use the toilet
more, the number of seats for men is less
6) Though women and children barely use the toilet for bathing and washing, the provision
for both is there
18
7) There is no separate provision for hand washing after using the toilet. The hand
washing is supposed to be done in the open bathing area.
8) The taps in the open bathing are the only source of water for:
a. Filling water for use in washing in toilets. Also for use in flushing.
b. Bathing in open area
c. Hand washing
d. Cleaning of area
e. Clothes washing
9) There are no seats for children or disabled
10) The CTC is in good working condition.
19
SHASTRI PARK
The above is the current layout plan for the Shastri Park Community Toilet Complex. The
observed infrastructure provided is as follows:
11) For men - 28 WCs plus open WC area for children. Open bath area with 5 faucets plus 9
closed bathrooms
12) For women - 30 WCs for Women. Open bathing area with 6 taps. Open bath area
(larger than that for men) and 7 closed bathrooms. Also hand wash area.
13) Water supply only in open bathroom faucets, closed bathrooms and hand wash point.
14) No water supply inside toilets
15) Water supply in closed bathrooms
16) Comparing seat availability with usage patterns shows that though men use the toilet
more, the number of seats for men is less
17) Though women and children barely use the toilet for bathing and washing, the provision
for both is there
20
18) There is no separate provision for hand washing after using the toilet. The hand
washing is supposed to be done in the open bathing area.
19) The taps in the open bathing are the only source of water for:
a. Filling water for use in washing in toilets. Also for use in flushing.
b. Bathing in open area
c. Hand washing
d. Cleaning of area
e. Clothes washing
20) There are no seats for children or disabled
21) The CTC is not in good working condition.
22) Doors are broken
23) There is fungus and accumulated dirt on the floors / base of walls/ base of toilet doors
24) The motor in the bore well needs frequent repairs. The CTC caretaker collects money
separately from the users to repair the bore well after 3-4 days.
25) Blockages in toilet happen frequently. For this too money is collected from the
community for repairs.
7. FINDINGS FROM FOCUS GROUP DISCUSSION
USERS AND USAGE
1. Profile of users varies through the day. In the early hours i.e from 3am – 5 am the
users are usually labourers, vendors etc who have to leave for work by 5 am
2. This is a problem for women since chances of the men misbehaving with them are high.
3. Maximum users are between 5 am to 7am. 6 a.m. is the peak hour.
4. At peak time 60-70 people gather in the toilet. There is a queue of 3-4 people per seat.
5. People – especially the women- usually take bath at home. They prefer to do so. Even if
the toilet is relatively clean, they have a bath at home. Only where home sizes are too
small and family sizes too big, do women bathe in the CTC.
6. Kids of age group 1-3 do open defection on sewer lines. But there are locations where
people do not allow such things. In such areas, women keep the child’s feces in a
polythene bag and throw it in the dustbin.
7. Wherever possible, women do urine in one corner of the home which goes into sewer
line. This is a common practice especially at night.
8. Most people do not wash their hands in the toilet – especially in peak hours. They
prefer to do so at home.
21
MAINTENANCE AND MANAGEMENT
1) Caretakers usually clean the toilet thoroughly between 11 am to 12 noon and then
again at night before locking up the CTC ( around 11pm)
2) It takes between 30 minutes to 1 hour to clean the toilet well.
3) At that time, they try and close the CTC. However that is not always possible. So they
usually close one side of the CTC ( men’s or women’s) first, clean it and open it. Then
they repeat the same process with the other side.
4) Not being able to close the CTC for cleaning has been cited as one of the major reasons
for the caretaker’s inability to keep the cleanliness standards high.
5) There are CTC which do not have water facilities; resultant is that they are not cleaned
properly. Water availability has been identified as the single most important factor for
keeping the CTC clean.
6) No CTC has both a male and a female caretaker. Most have men as caretakers. A few
have women.
7) In most CTCs, the caretakers also have an alternative employment. Many are garbage
collectors, sweepers etc. Some also make a living by selling the water from the CTC
borewell.
8) The two CTC’s are open nearly 18 hours
9) However, the closing of toilet after 11am is a problem for the users. They have no
alternative but do defecate in the open or on drains at night.
10) Security – especially for women - is a concern at night.
11) Caretakers are not aware of the terms of the contract. They have been given a daily
quota of collection. They plan their revenue collection from users based on that quota.
12) Caretakers evolve their own systems of revenue collection. Mostly, the collection is a
‘once a day’ collection i.e. in the morning, when the users come, they pay as per the
rate set by him ( usually Rs 1 for women and Rs 2 for men). They do not charge for
subsequent visits. Additional money is charged only when a new person comes during
the day (including guests of the residents)
13) The effective collection per person is – Rs 25-30/woman/month and Rs 50-
60/man/month. Children are usually not charged. This effectively comes close to the
government proposed rate for a family pass .
14) Monthly passes are not issued by the caretakers. Infact they oppose the idea of passes
on the following grounds:
a. Difficulty in identifying members of the family qualified by the pass
b. Difficulty in verifying those during peak rush hour
22
c. Capacity to pay and payment practices of the user community. The user
community finds it easier to give Rs1 or 2 everyday than to give a lump sum
amount (such as Rs 100-200) at one time. The community refuses to give
advance for the month. After the completion of a month of use, the community
avoids paying or staggers the payment over many days. This makes the task of
tracking financial revenues very difficult for the caretaker.
d. Payment to the CTC Management Service Supervisors has to be made on a daily
basis by the caretaker. Hence the collections too have to be made everyday.
15) Users and caretakers were asked to evaluate different payment mechanisms – family
pass – daily or monthly, once a day individual user payment, monthly individual user
charges. Both users and caretakers voted for once a day individual user payment as
being most practical and suitable.
16) Caretakers do not maintain user registers despite all efforts to encourage them to do
so. The reason cited by them is that it is impossible for them to write names or even to
tickmark attendance especially during peak hours. People also do not want to go
through the trouble of writing at time of usage.
17) Caretakers get the maintenance material that they want on a monthly basis. They have
not stated any shortfall in supply. They say that they get what they ask for and their
superiors ask them about the utilization of the previous month’s supplies.
18) Managing the women’s section is more difficult than managing the men’s section. The
reasons are:
a. Women not following privacy protocol – such as closing toilet doors, or not
relieving themselves in the open toilet areas. This puts the caretaker in an
embarrassing situation. Since most caretakers are men, this is a significant
issue.
b. Improper disposal of sanitary waste.
19) Opening the blockages in pipes has been identified as the single biggest maintenance
issue in the CTC.
20) Monitoring of CTCs by the FORCE women’s sanitation group is perceived as a positive
both by the users and the caretakers. The reasons why caretakers have endorsed that
is:
a. Caretakers are always blamed for the CTC problems and people talk very badly
to them. The CTC Monitoring team, over a period of time, establishes a rapport
with the caretaker and gives him the opportunity to express his side of the story
b. The CTC Monitoring team also talks to CTC supervisors and Government
sanitation staff. This helps in ensuring that the infrastructural problems are
highlighted infront of the decision makers and so get resolved faster. This makes
life easier for the Caretaker as well.
23
c. The CTC Monitoring team also holds community meetings wherein they talk to
the users about CTC issues. These meetings sensitise community members –
particularly women – to the role they can play in helping maintain the
cleanliness in the CTC. This is a source of relief for the caretaker
d. The CTC team, as leaders of the community, also interface with the political
leaders. Because of this, additions to CTC infrastructure also happen more
easily.
e. By spreading awareness about the harmful effects of open defecation, the team
has actually led to an increase in the number of users of the CTC. Thus the
caretaker makes more money.
21) People do not seem to have a strong desire to manage the CTC themselves. It seems
that they think management by the government or a government appointed agency is
OK. However, the situation is different when it comes to caretakers.
22) People feel that having a CTC caretaker from the same community is an advantage.
This is because such a person has greater accountability, has a greater stake in
ensuring good functioning of the CTC and is available at all times.
INFRASTRUCTURE
1) In some CTC’s there is no special provision for the disabled and kids
2) Inadequate water for the CTC users. Typically, the CTCs do not have taps or flushes inside
the toilets ( next to the seats). Hence, the usual practice is to bring water in a 1 litre bottle
either from home or from the tap outside the toilet. This much water is insufficient for
cleaning the body after defecation and properly flushing the faeces down the drain. The
Caretakers have identified this as the single biggest reason why the toilet pipes get blocked
regularly.
3) The other main reason is the improper disposal of sanitary waste. Inadequate dustbins and
absence of incinerators along with lack of civic sense in users cause this problem.
4) Taps are outside the toilet blocks.
5) Doors are usually not in proper condition
6) Floors too are broken or have a bad slope so water tends to accumulate in some areas.
7) There is inadequate ventilation
8) Old and infirm people find it difficult to use the Indian toilets.
9) In view of the usage pattern, space utilization within the CTC can be improved upon. A
separate report will be submitted for the same
10) Single entrance point for both men and women is perceived as a problem by women –
especially since the women’s side is not completely blocked from the view of the entrance.
However for caretakers this single entry is essential since that enables them to take user
charges from everyone who enters.
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8. CONCLUSIONS AND RECOMMENDATIONS
Based on the Usage Survey, the Focus Group Discussion and the Site Survey for the two CTCs,
the following inferences and recommendations can be made regarding the Maintenance
Schedule for the toilets. These recommendations may also be included in the Scope of Works /
Work guidelines for the CTC Management agencies.
CLEANING
1) Cleaning with acid should be done everyday. This has been recommended by all.
2) Currently thorough cleaning is actually being done twice a day around 11.30 am and
around 11 pm before closing the CTC for the night. These timelines are correct since they
ensure that the CTC is clean when either of the peak usage hours – morning peak or
evening peak start. These timelines should be maintained and can be formalized in the
agreement.
3) However, the toilet usage is very high in the morning. Though it might be clean when it is
opened in the morning, within a short time, it becomes dirty again. Because the caretakers
adhere to the twice a day cleaning schedule, the toilet remains dirty during peak usage
period. The caretakers are particularly averse to cleaning the women’s section in the usage
hours because of the women’s privacy issues. The following steps may be considered to
counter this problem:
a. Making it mandatory for CTC mngmt agencies to hire a part-time lady sweeper for
the toilet. The usage pattern shows that toilet usage by women remains almost
constant for every 2 hour period between 4 am to 12 noon, whereas for children
peak usage is between 6am to 10 am. In view of the above, the lady sweeper may
be required to be continuously present from 6.30 am to 8.30 am and should be
mandated to clean the toilet atleast twice in that period – at 7 am and 9 am. The
same routine may be followed by the caretaker for the men’s side of the toilet.
b. A barrier (of the kind found in airports to make queues at ticket counters) may be
provided so that the cleaners can cordon off the toilet that is being cleaned.
c. The second usage peak happens between 8 pm-10 pm. Hence interim cleaning by
the lady sweeper and the male sweeper should be done around 7 pm.
4) The Management agency should be allowed to close the CTC between 12 and 1 pm in the
day for thorough cleaning using suitable disinfectants.
5) However, to prevent inconvenience to the public, the first seat in the toilet – on both men
and women’s side- may be kept open even during that hour.
6) Inadequate water in toilets was identified as one of the key reasons for blockages.
Caretakers said that a minimum of 5 litres per use is needed to ensure adequate personal
hygiene after defecation and proper flushing of the waste.
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24 HOUR AVAILABILITY OF TOILET FACILITIES.
To prevent mishaps such as molestation of women or misuse of CTC premises for wrong
activities, the CTC may be closed from 12 midnight to 4 am. However 1 emergency toilet for
men and 1 for women – with adequate lighting and water – must always be kept open.
MONITORING AND PARTICIPATIVE MANAGEMENT
1) Users and caretakers both endorse a Community Monitoring and Participative management
format for the CTC .
2) The study shows that there is no major objection to the current outsourcing model of CTC
management. However, there is a strong demand for local caretakers. This clause may be
included in the Management contract i.e. Caretakers from within the user community,
residing within the service area of the CTC, will be given first preference. Only after proof
of non-availability of suitable persons from this set is submitted, will the agency be allowed
to place a caretaker from somewhere else.
3) Current Caretakers willing to take responsibility of reporting CTC status to the government.
Based on discussions with community and Caretaker, a daily Format having the following
information points may be made:
a. Listing of mandated cleaning times . Caretaker to verify if done
b. Availability of water
c. Availability of light in all toilet seats
d. Listing of Complaints made to supervisor
e. Listing of repairs done on that day
f. Opening and closing time of CTC
g. Availability of emergency toilet
h. Per usage charges taken from men, women, children
i. Availability of cleaning material – disinfectant, broom, sucker, toilet brush
4) Community CTC Monitoring committee to do random checking for these items and
countersign with comments and stating time at which the check was done.
5) The study also showed that the CTC Monitoring team’s presence has had a very positive
effect on CTC services. Hence, a 2-4 member CTC Monitoring team selected by the
community from amongst the users of the CTC should be recognized as the Vigilance team
for the government. Its recognition by the agency should be made mandatory and its
remarks on performance must form one of evaluation parameters for the agency.
6) The study also showed that one of the reasons for the positive impact of the CTC
Monitoring team was the interface with the government, senior management of the
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management agency, community and the local politicians. In view of this, the following
requirements may be added to the Management Contract:
a. Community Sensitization meetings through an NGO on the topic of Personal and
Community Hygiene. In these meetings, the NGO will make people aware about the
negatives of open defecation and poor sanitation. It will also sensitise people about
the norms to be followed by each individual for healthy, hygienic community living.
It will also educate people about the working of a CTC / household toilet and the
role that all stakeholders can play in maintaining it.
b. Once a quarter review meeting of the CTC Monitoring committee with the officials of
the agency and DUSIB.
c. Once a year public meeting in the community with local politician, DUSIB and
agency Officials. Felicitation of that year’s CTC Monitoring committee and Caretaker
of CTC may be done in that function. Also inauguration of some new service /
renovation of CTC may be done at the time. This is basically to create a Positive
connect between all stakeholders.
7. The Caretaker forms the most important link in the Management chain. However,
caretakers are the least informed. Capacity building of caretakers on Personal Hygiene,
basic plumbing, communication has to be done. Even more important, a Maintenance
Guideline and Works Manual has to be prepared for them to serve as a checklist and a
ready reference.
8. Our CTC Monitoring has shown that Public appreciation and recognition is a strong
motivator for Caretakers. Felicitation as suggested in Pt 13iii, must be done.
TRACKING USAGE AND CHARGING USERS
The findings of our study are that the payment system most preferred by all is that of a
daily per person charge. Hence our recommendations are:
1) The usage charges may be as follows:
a. Daily usage charge of Rs 2/- for women users. Paying this once will entitle
them to visit any number of times during the day.
b. Similar charge of Rs 2/- for men users.
c. Discount of Rs 10/- if payment for 30 days made in advance (Upto 5th day of
every month). A monthly card will be given to each person who avails of this
facility. He just needs to show this card before going in. Colour coding of
cards ( different colours for every month) may be done to make it easy for
caretakers to identify card users for that particular month.
d. No charges for children below 12 years of age.
2) New technologies such as Smart card, punching machines, biometric attendance
may be used for hassle free usage recording. However, the community feels that
maintaining the functioning of such systems will be difficult
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3) To check actual daily usage, every 6 months, the CTC Monitoring team and DUSIB
officials may stand at the CTC through the day to physically count the number of
users. This count can become the basis for the following revenue sharing:
a. Management agency’s daily offtake from caretaker. The Caretaker’s salary
and working costs will be paid out of this amount
b. Caretaker’s incentive. Extra earning for the caretaker over and above his
salary.
c. Community Hygiene fund – to be used for community awareness programs
and monitoring.
d. Contingencies fund – An emergency fund that can be used by the caretaker
to immediately repair a minor fault that is causing severe distress to the
users. The fund may be used on the recommendation of the CTC Monitoring
committee.
INFRASTRUCTURE
FOR BETTER MAINTENANCE OF EXISTING ASSETS WITHOUT ANY MAJOR CHANGES
1) Blockages in toilets is a recurrent problem. This may be due to innate structural defects
in the construction. However, the fact that this problem occurs in every toilet seems to
indicate that the problem is due to maintenance factors. From an observation of CTC
facilities and the focus group discussions, we feel that the lack of adequate water
INSIDE the toilet is the single biggest cause of blockages. To enable the same, the
following alternatives can be followed:
a. Provision of taps inside each toilet.
b. Or - enabling provision of atleast 5 litres of water in each toilet by:
i. Placing 3-5 litre containers in each toilet
ii. Putting taps / open tank in both – men’s and women’s side of the toilet.
To enable easy filling and carrying of the 5 litre container into the toilet.
2) For Kalkaji CTC, open bathing area for women to be converted into Hand wash point
since women and children barely use the toilet for bathing.
3) For Kalkaji CTC, hand wash point to be made for men on the wall perpendicular to the
urinals.
4) For both CTCs, incinerator for women’s menstrual waste to be installed in such a way
that it is easy for women to throw their used sanitary napkins into it from within the
toilet.
5) Provision of exhaust fans and / or cross ventilation
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6) In Kalkaji CTC, there is an unapproachable space within the toilet complex. We were
not able to understand the reason for that. If possible, that space could be used to add
more toilets – both for men and women.
DESIGN RECOMMENDATIONS FOR THE FUTURE
By analyzing the current CTC layouts together with the trends in usage data, we can arrive
at the following inferences:
1) The number of users of the CTC is far higher than the number projections based on
which they were designed. This is because each house in a slum has one or more
tenants – most of which are men living alone. Hence a multiplier of 2 should be used to
calculate the actual toilet seat requirement in an area.
2) CTCs are largely used for defecation. Usage for bathing is much lesser and washing is
least
3) Most of the users – for all purposes are men.
4) There is a high variability in the usage pattern during the day. There are well defined
peaks and troughs in usage. The peaks and troughs pattern repeats itself across areas.
5) The peaks vary across user segments and usage types.
6) Though women users are lesser in number, the women’s side of the CTC seems to have
more problems than the men’s side
7) Emergency use of toilets in the times when the CTC is closed has not been provided for.
8) Sewage blockages is the single biggest problem in all CTCs
9) Lack of cleanliness makes people averse to using the CTC for bathing and washing of
clothes
Based on these, the following options may be considered when designing future
toilets:
TOILET SEATS AND SEWAGE CONDUITS
1) Greater slope to be given during placement of seats in toilets to facilitate easy disposal
of faeces into the sewage line
2) Higher than conventionally recommended slopes and sewage pipe diameters to be used
for the sewage disposal system within the CTC to help compensate for the lack of
adequate water for flushing.
3) Easily accessible seats for children and disabled.
4) Larger number of seats for men. The reasons for this are:
a. In absolute numbers, usage by men is more than women. Infact in both the
cases studied, the number of men users is approximately equal to the sum of
the women and children users.
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b. As shown by the usage data the peaks in concentration of usage is higher for
men than for women. Hence, during peak hours, there is a severe rush in the
men’s section.
5) Raised toilet seats to prevent clothes from getting wet even if the floor is wet.
TOILETS - GENERAL
1) For women – toilet doors with ‘shuttered’ base and open top. This allows light to come
in and circulation of air without any privacy issues.
2) Atleast 5 litres water availability per person in every toilet
3) Children’s seats in women’s toilets since children tend to come with their mothers.
4) A handle on the wall of every toilet. Many women keep the toilet doors open because
they find it difficult to stand up without support after using the toilet. They use the door
to give them support. Providing a handle placed on the wall to the right of the seat
(when sitting facing the door) approx 3 ft above ground level will solve this problem.
5) A small rack must be provided to keep sanitary napkins
6) Sanitary towel dispensers can be placed in the toilets. Women are willing to pay for
them.
7) Ideally cisterns with flushes must be provided in the toilets. Since availability of Water
is a problem, innovative solutions need to be looked at. Some such options are:
a. Channeling of bath water and hand wash water drain pipes into a tank from
where water can be pumped into the cisterns
b. Placing of a cistern cum hand-washbasin – as used in Tokyo city – where the
water from the washbasin flows into the cistern to be used for flushing. Infact,
we strongly recommend this system because it will also encourage the practice
of hand-washing.
8) The floor should be Dual flooring i.e the floor should be covered with a raised mesh /
frame. The objective is to ensure that people’s feet are never in touch with any water
stagnating or moving on the floor.
TOILET PLACEMENT
1) Apart from conventional parameters, layout planning must be done keeping the
following additional factors in mind:
a. High variation in usage intensity during the day
b. Differences in peak intensity usage by men and women
c. High variation in usage types during the day
d. Emergency use during night
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2) The peak usage time for men is 4-6 am while for women and children it is 6-8 am.
Perhaps new toilets could have a central section with additional 5-10 seats. These seats
could be ‘Revolving seats’ i.e. they could be reserved for men during their peak usage
times and for women / children during their peak use time. This will ensure 100%
usage for all toilet seats at all times and will give additional convenience to users.
3) These seats must have a separate entrance that can be closely monitored by the
caretaker.
4) Emergency use toilets for the night need to be provided. The main toilet (men & women
side) can be closed for the night. However, atleast 2 of the ‘Revolving’ seats may be
placed within a separate cubicle that can be kept open for the night. This cubicle must
have a light on always and must have a security alarm system in place.
OTHER CTC FACILITIES
1) Raised blocks (like in a dhobhi ghat) for clothes washing. People do not like to put
clothes on the floor which has been used for toilet.
2) Hiring out space on the roof of the toilet for drying of clothes. This will remove one of
the barriers to women using the CTC for clothes washing – that of carrying the washed
clothes back home.
3) The roof space may also be used for clothes washing – it may be a separate area
altogether. The washing water from clothes can be used for toilet flushing too.
4) Alternatively, bathing and clothes washing areas may be combined and built on the first
floor with clothes drying space on the top floor.
5) Incinerator – to dispose of sanitary waste. However, the key to its success will lie in its
placement. In every toilet an opening has to be given where the woman can throw her
used sanitary towel. This opening must straightaway take the towel into the incinerator.
6) Bio-Gas (from septic tank) based lights – especially at night
7) Solar / bio gas heating for giving hot water for bathing. Especially in winters, this will
drastically increase the number of people having a bath.
8) The peak of toilet use for bathing is immediately after the peak time for defecation (in
morning) or before the same (in the evening). The inference is that people prefer to
bathe when the toilet is less populated and is not being used much for defecation.
Recognizing this fact, some dual use bathrooms may be created which may be used as
toilets during peak time and, after thorough cleaning, as bathrooms later.
31
9. ABOUT FORCE
Forum for Organised Resource Conservation and Enhancement is an NGO registered under the
Societes Act of 1860. FORCE is FCRA Certified, 80G certified and registered under section 12A
of Income Tax Act, 1961. With the vision of ‘making communities “water secure“, FORCE
works on its mission to help create productive, responsible partnerships that use traditional
wisdom, Modern technology and participative governance for holistic solutions to save
Water, share water.
FORCE adopts a unique ‘4 WAY PARTNERSHIP’ (P-4)approach. It partners with government
and local leaders, communities, funding partners and technical experts to offer end-to-end
support to citizen groups interested in adopting water conservation and sanitation
practices. From research studies/seminars to creating awareness/interest and finally
implementation, FORCE uses this model to empower communities and to cover the entire
spectrum of activities related to water conservation and sanitation. Subsequent sharing of
learnings with relevant government departments has helped make existing water policies more
people and water friendly.
We have presented our technical papers on Community Rainwater Harvesting and recycling at
several national and international forums. These papers have also been subsequently
published. Additionally, our in-house magazine – BLUETIMES- reaches out to opinion makers
and practitioners in the Water sector with its unique blend of community, technology and
policy inputs.
FORCE has created more than 1.2 billion litres of annual groundwater recharge capacity in
urban areas. This has been done through revival of lakes and water bodies and through
rainwater harvesting structures. Additionally, rainwater harvesting designs have also been
made for community housing societies, schools, colleges, institutions and Armed Forces
Cantonment areas. Many of these have been implemented by the communities themselves.
A special focus area for FORCE is ‘Water and Sanitation For All’ – i.e Sustainable community
led Water and Sanitation solutions for the poor. More than 60,000 urban poor– especially those
living in settlements not recognized by developmental authorities have attained 60-70% of the
norms for water and sanitation provisions as a result of these efforts. FORCE has designed a
Model WATSAN Slum Program - an 11 Point Action Agenda - which, if implemented, can
ensure adequate, sustainable Water and Sanitation in urban poor settlements.
32
FORCE stresses on people friendly, easily replicable innovations in Water Technologies. FORCE
has designed Easy to Maintain Rainwater Harvesting systems that are both easy to make and
easy to De-Silt. FORCE has also designed a zero energy use Kitchen Water Recycling System
that allows water to be treated upto horticulture levels. Several other small innovations have
helped add to the efficiency and efficacy of our Water Conservation efforts.
FORCE’s flagship campaign – the BLUE CITY campaign is based on the premise that a
city/municipal unit must first optimize and create sustainability in the use of its internal water
resources, before it demands Water from upstream villages and forests. It is an umbrella
campaign bringing several stakeholders – from government , NGOs and communities, together
to try create Self Sufficient, Sustainable Water Secure Cities. By making major cities water
secure, it aims to create a prototype for other municipal units in India to follow.
FORCE’s P-4 partnership approach to finding sustainable water solutions reflects our belief
that such solutions will emerge from following a co-operative route rather than a
confrontationist one. We brings together technical experts, community leaders, government
and technology leaders for giving shape to water conservation efforts. With this approach
FORCE hopes that even with increasing water scarcity, there can still be 'local level water
security' for all and water will cease to be the cause of conflict that it is rapidly becoming
now.
AWARDS & RECOGNITION RECEIVED
• FORCE was awarded as Finalist (3rd Prize) in the National Urban Water Award 2009
instituted by the Ministry of Urban Development. The prize was given for our
contribution to the Rainwater Harvesting Movement using the P-4 Partnership
Approach.
• President FORCE, has been nominated in 2012 as a member of the 9 member ‘Drafting
Committee for the National Water Framework Law’ by the Ministry of Water
Resources, Government of India.
• FORCE has been nominated by Ministry of Water Resources as a member of the Task
Force for Optimization and Integration of Water Quality Monitoring stations and
Zonation of NCT Delhi for Aquifer Mapping for Public Monitoring of Water Quality and
sharing Data.
33
• FORCE has also been nominated on the ‘Advisory Committee for Groundwater
Management and Regulation’ by the Deputy Commissioners of 5 districts of Delhi.
This committee is responsible for district levelJyoti Sharma, President, FORCE, was
awarded the ‘Ashoka Innovator for Public Fellowship’ in 2009 for the P-4
Partnership Approach and Jal Rakshak vision. This International Fellowship is given to
Social Welfare Workers who, through some innovative concept, have made a significant
contribution to the upliftment of society.
• In recognition of FORCE’s contribution to the cause of Environment, FORCE President
Jyoti Sharma was nominated to run with the Olympic Torch in India for the Beijing
Olympics 2008.
• FORCE is also invited as a panelist on Civil Society Consultations held for
Groundwater Management, Sustainable Water and Sanitation solutions for the Urban
Poor held by the Ministry of Water Resources, Ministry of Urban Development, Delhi
Government and the Planning Commission.
FORCE FOR WATER AND SANITATION
Over the past 4 years, FORCE has been working with reputed international partners such as
Water Aid India, Plan India, UNICEF and Save The Children for improvement in Water,
Sanitation and Hygiene conditions for the urban poor and for children. As a result of our efforts
and the leadership of the communities we work ith we have achieved he following:
1) 9 slums having a population of approx 30,000 people, have been made Open
Defecation free within the past 3 years. Prior to our intervention, these areas had Open
Defecation leels higher than 75%
2) 22 slums having a population of more than 60,000 people have 80-100% access to
Water.
3) 100% Awareness about Safe Drinking Water and basic hygiene in all our intervention
areas
4) Government investment of more than 7 crores within our intervention areas over 3
years.
5) Reach to more than 5,00,000 urban dwellers on water and sanitation issues.
6) International papers presented on WASH initiatives taken by FORCE.
