Municipal Corporation of Tirupati
Draft City Sanitation Plan
Executive Summary
August 2011
GIZ-ASEM Municipal Corporation of Tirupati
City Sanitation Plan for Tirupati - Draft Report – Executive Summary P a g e | 1
94%
0.40 52%
40%
6%
100% 1.00 100% 100% 100%
Individual ToiletAccess
Public Toilets per500 Floatingpopulation
Water Supplycoverage
Seweragecoverage
Solid WasteDoor-to-Door
collection
Sanitation service Levels in MCT
MCT NormSource: SLB report, IMaCS analysis
Background1
The City Sanitation Plan (CSP) for Tirupati2
provides an integrated action plan to achieve universal sanitation
access as envisioned in Government of India’s National Urban Sanitation Policy (NUSP). This CSP has been
prepared for the Municipal Corporation of Tirupati (MCT) by ICRA Management Consulting Services Limited
(IMaCS) on behalf of Gesellschaft für Internationale Zusammenarbeit (GIZ).
The CSP3 identifies key issues and actions along five ‘sanitation components’ namely, a) Water Supply, b)
Access to Toilets c) Wastewater management, d) Storm water drains and e) Solid Waste Management
(SWM). Apart from Technical Actions along these sanitation components, the CSP also identifies issues and
actions across four ‘support pillars’ i.e., a) Governance and Institutional Framework, b) Capacity
Development, c) Awareness Generation and d) Financial sustainability. The CSP follows constitution of a City
Task Force (CTF), consultations with MCT officials and CTF, analysis of baseline information including a primary
survey, spatial mapping and city reconnaissance. The CSP builds on past/on-going initiatives including City
Development Plan and Detailed Project Reports (DPRs) for Sewerage and SWM.
Context
Tirupati, located in Chittoor district of Andhra Pradesh is famous for the Lord Venkateshwara temple in
Tirumala. While Tirupati’s economy has been pre-dominantly pilgrim- based, its growth in recent years has
been driven by its emergence as education and trade hub of the Rayalseema region of Andhra Pradesh.
MCT4 spread over 16.59 sq. km had a population of 2.27
lakh during Census 2001, of which slum population (spread
in 42 slum areas) was 0.94 lakh. Population within MCT is
projected to grow to 3.92 lakh by 2021 and 6.80 lakh by
2041. Being a pilgrim centre, daily floating population
averages 55,000 and peaks to 100,000 during festivals and
needs to be factored in provision of pilgrim related
sanitation services (water kiosks, public toilets etc.) and
infrastructure provisioning for water supply, waste-water
management and SWM.
The Tirupati Urban Agglomeration (TUA) extends beyond MCT and had a population of 3.24 lakh (Census
2001). Spread over 70.67 sq.km, the TUA comprises of 1 town, 3 urban out-growths and 9 villages in addition
to MCT. Population in areas beyond MCT within TUA is actually growing faster than within MCT.
Sanitation service levels have not kept pace
with the growth of the city and fall below SLB
norms specified by the Ministry of Urban
Development Government of India (MoUD). A
Sanitation rating exercise of cities carried out
by MoUD in 2009-10 ranked Tirupati a low 117
among 423 cities with a score of 39.4 in 100,
highlighting the need to address sanitation
challenges in an integrated comprehensive
1 This document presents an executive summary of the Report on City Sanitation Plan (CSP) for Tirupati. Readers are requested to refer the
complete report for further details of observations and recommendations made herein. 2 The focus of the study is area under the jurisdiction of the Municipal Corporation of Tirupati (MCT).
3 Refer section 1.2 and 1.3 for Scope of Work and Approach respectively
4 The Government of Andhra Pradesh (GoAP) issued a Government Order in 2008 to upgrade Tirupati as a municipal corporation and to
bring the whole of TUA under MCT jurisdiction. The municipal council of erstwhile Tirupati Municipality was dissolved to pave the way for this extension. However, the proposal to extend city limits is yet to be implemented.
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City Sanitation Plan for Tirupati - Draft Report – Executive Summary P a g e | 2
manner. Under this context, the initiative to formulate a CSP for MCT is very timely.
The CSP considers two time horizons:
Planning Horizon (30 years 2012-2041): The Planning Horizon covers 30 years from 2012 to 2041 and
involves planning for an Intermediate Stage (2021 or 10 years) and an Ultimate Stage (2041 or 30 years).
Action Horizon (10 years 2012-21): The Action Horizon covers 10 years from 2012 to 2021. Actions are
prioritised along a) Short Term: 3 years b) Medium Term: 5 years and c) Long Term: 10 years.
The rationale and recommendations with respect to critical issues identified in the CSP are summarized below:
Priority Issues and Actions5
1. Inadequate provision of Public Toilets and Community toilets6 has led to prevalence of open defecation
in low-income pockets in the fringes and open urination in commercial areas respectively.
Rationale
Open Defecation (OD) is widely prevalent in select slum clusters within MCT. Although access to individual
toilets is reasonably high at 94%7, Open Defecation is visibly prevalent in 10 places adjoining slum pockets in
election wards 2, 3, 5, 10, 12, 13, 17, 18 and 29. About 4% of respondents in slum areas reported OD during
the primary survey conducted as part of the CSP exercise. Street reconnaissance and local interactions reveal
higher levels of OD prevalence in slums in peripheral areas. For e.g., OD prevalence is more than 40% in Lenin
nagar-Parvathipuram and Uppangi harijanawada slum clusters in election ward 17. While the CSP estimates a
demand of 62 Community Toilets in slum areas to cater to requirements in 2016, there are no functional
Community Toilets at present, in these areas. Low Cost Sanitation toilets provided under slum development
programs in the past are now defunct and non-operational.
Open urination is rampant in commercial areas with high floating population. Coverage of Public Toilets is
inadequate at 0.4 seats per 500 floating population as against a desired level of 1 for every 500 of floating
population. Against an estimated demand of 53 Public Toilets, there are only 23 Public Toilets at present and
even these are not maintained well. 88% of users rated maintenance of public toilets as poor or very poor.
5 Only the priority issues and actions are covered in the executive summary. For a detailed analysis, refer chapters 3 to 7 of the CSP for
issues and recommendations on sanitation components and chapters 8-11 for coverage of cross-cutting aspects. 6 Issues relating to Access to Toilets and details of Baseline status are discussed in section 3.1 of the CSP
7 Proposal for ISIP. Service Level Benchmarking (SLB). March 2011.
Areas requiring Public Toilets on priority Areas requiring Community Toilets on priority Areas with open defecation
Shaded areas show slums
of different density
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Visits to toilet locations indicate that critical design considerations such as gender sensitivity, 24x7 access and
water availability are often not addressed. For instance, Pay-and-use toilets built by MCT do not have urinals.
Public urinals (at Gandhi circle, Tilak road, Tatiah nagar, P K street, TP Area, Koneru, Tirumala byepass,
Leelamahal road , KT road, Annamaiah junction etc.) have become pollution hot spots due to lack of water
supply and maintenance. Accountability for toilet maintenance within MCT is diffused with Toilet monitoring
being handled by the Health Department while repairs and maintenance are done by the Engineering
department. As a result, open urination is rampant particularly in commercial areas in election wards 14-17.
Critically vulnerable locations including Koneru, TP area, Sreenivasam group theatres, Railway station area, and
behind both the private and government Bus Stands. MCT is in discussions with Sulabh International to
develop Public Toilets at 7 locations as an initial measure.
Recommendations8
1. Building on the findings of the CSP, MCT should develop and implement a City-wide Toilet Development
and Rehabilitation Plan9 to eliminate open defecation and open urination within three years. This Plan
should be developed at a DPR level of detail to identify specific locations, configuration and sizing for
provision of Public Toilets and Community Toilets10
after a detailed city-wide demand assessment. The
DPR should also estimate capital and O&M costs for implementing this plan. A Terms of Reference for this
DPR is provided in the CSP report. This Planning effort should be followed with time-bound
Implementation with possible prioritisation as suggested below:
a. Phasing out open urinals and replacing them with aesthetically appealing functional Public Toilets.
b. Provision of Community Toilets in slums and ward locations with high OD prevalence.
c. Provision of Public Toilets in commercial areas with high floating population.
d. Provision of Public Toilets in other areas to achieve a target standard (say access within every 500 m).
2. As an immediate measure, MCT should implement an Inspection and Monitoring protocol11
to ensure
timely maintenance and consistent service delivery in existing toilets. Sanitation Inspectors should be
designated responsibility to inspect/report performance of Public and Community Toilets at a specified
frequency say, weekly, to start with. The Inspection frequency could be reduced progressively (say
monthly) as maintenance processes are streamlined and existing toilets are made fully operational. An
illustrative checklist of issues to be checked as part of the Inspection protocol is detailed in the CSP report.
3. MCT should earmark a dedicated budget for toilet development and maintenance expenditure. To
minimise financial burden, MCT should consider adopt appropriate outsourcing models12
and encourage
adoption of public and community toilets through Corporate Social Responsibility (CSR). MCT should
actively mobilise revenues through pay-per-use and advertising to achieve full cost recovery for Public
Toilets. Development of Community toilets may require subsidization and O&M costs could be managed
through community-led maintenance and monthly user fees. MCT should also mobilise support from
agencies like Tirumala Tirupati Devasthanam and local entrepreneurs through Corporate Social
Responsibility (CSR) initiatives to improve sustainability of Public Toilet maintenance and operations.
4. MCT should initiate awareness campaigns to facilitate awareness, usage and ownership of shared
community toilet facilities among slums, traders and schools. The focus of awareness campaign for users
in slums should be on a) Health Hazards, b) Use of toilet facilities and c) Good sanitation practices
including washing hands, keeping toilets clean and d) Community role in monitoring. A campaign with
support of traders could help spread awareness to limit open urination in commercial areas. A campaign
targeted at primary schools students backed by provision of good sanitation facilities at schools should
8 Refer section 3.5 of the CSP for detailing of these and other recommendations on Toilet Access provision
9 Detailed Terms of Reference for both the Community Toilet component and Public Toilet Component are provided in section 3.5 Box 3.2
10 The CSP distinguishes shared toilets into two types: Public Toilets that are required to meet the needs of floating population in the city
and Community Toilets that are required to tackle open defecation and lack of individual toilet access in slum areas. 11
A format with indicators to be monitored is provided in the CSP (section 3.5 Table 3.6) 12
Box 3.1 in chapter 3 of the CSP discusses lessons and insights from various models in shared toilet provision
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Sewerage network coverage
also be initiated on priority. Further, MCT (along with other agencies) should consider developing
standardised visual themes (logos, painting and signage) for Public Toilets for effective branding.
5. MCT should in consultation with the Government of Andhra Pradesh (GoAP) implement bye-laws to levy
fines for open defecation/urination and incorporate toilet specifications as part of Building regulations.
About 62 Community toilets and 53 Public toilets are needed within the next three years. Capital cost13
is estimated at about Rs. 12.6 crore during 2011-16 while O&M cost is estimated at Rs. 2 crore annually.
2. While MCT’s sewerage system14
covers most areas of the city, service delivery is below par on
wastewater collection efficiency and treatment performance.
Rationale
Apart from parts of election ward 17 and 36 and few areas in select wards, where rider lines for connecting to
households have not been provided, Tirupati has a fairly extensive sewerage network that covers nearly 79%
of the roads. However, only 40% of properties in the city are actually connected with a third of the wards
having connections equivalent to less than 30% of properties. Also nearly 50% of connections cover black
water only while grey water gets discharged in storm drains and in open. Reported STP capacity at 25 MLD is
inadequate vis-à-vis the waste water generation (estimated at 37 MLD). While 26% of primary survey
respondents reported problems of choking sewerage network suggesting network under-utilisation, discharge
of untreated wastewater at STP inlet is observed and suggests a pumping capacity bottleneck even with
existing flows. There is no secondary treatment at the STP. Though average outlet BOD (75 mg/l) conforms to
pollution control norm of 100 mg/l for discharge for irrigation, it is higher than pollution norm of 30 mg/l
allowed for discharge in water sources.
Recommendations
1. In view of the inadequate information on waste-water flows and other sanitation indicators at a
household level, MCT should conduct a comprehensive household sanitation survey as recommended in
the Information Systems Improvement Plan (prepared under the SLB study) on priority. A list of sanitation
parameters on which information is to be captured is provided in the CSP report.
13
Based on a normative estimate computed given that 20% of slum households are in need of Community Toilets (@ one Toilet seat for 15
Slum Households) and one Public Toilet for every 200 Floating Population. Refer Table 3.4. of the CSP. 14
Issues and Recommendations relating to Wastewater management are covered in chapter 5 of the report which analyses baseline issues pertaining to issues 2 and 3 of the Executive Summary
Under
implementation
Uncovered
areas
Covered with
sewerage
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2. MCT along with PHED should undertake technical improvements to the Sewerage system to improve
waste water collection efficiency and treatment performance. In view of limitations of the sewerage
system including pumping bottlenecks at STP, heavy peak load despite a high proportion of ‘black water
only connections’, network choking and poor discharge quality, MCT along with PHED should after
conducting a technical validation, implement the following actions:
a. Installation of Bulk meters at the STP to capture information on waste-water flows effectively.
b. Resize and replacing pumping equipment at the STP as required post validation of waste-water flows
c. Troubleshoot places in the sewerage network where choking complaints are reported frequently
d. Feasibility study and implementation of secondary treatment at STP to improve treatment efficiency.
3. MCT should initiate a sewerage connection drive to a) connect grey water outlets of existing ‘black water’ only sewerage connections and b) increase penetration of sewerage connections. Given that a sewerage
system is designed for black and grey water flows, MCT should conduct a one-time inspection of
properties with sewerage connections to identify and connect grey water outlets. To incentivise such
connections, MCT may consider providing such connections free. Further, MCT should continue with its
on-going connection drive to improve penetration of sewerage connections. As a priority, MCT could focus
on wards where the ratio of sewerage connections to properties is low and progressively cover all wards.
4. Given that there is already a request from a nearby industrial unit for re-use of treated waste-water from
its STP, MCT should pursue and implement this proposal on priority. Since the industrial unit has proposed
tertiary treatment by itself, MCT could potentially get a revenue stream from just the sale of treated water
that is being discharged into the open at present.
The capital cost15
for implementing the actions on waste-water management is estimated at Rs. 27
crore in short-medium term and Rs. 56 crore in long-term. O&M cost is estimated at Rs. 9 crore in 2011.
3. Regulation and oversight of Onsite sanitation16
and septage management is inadequate, leading to
wastewater dumping and potential risks of groundwater contamination.
Rationale
Since only 40% of properties within MCT are connected to the sewerage system (with several black-water only
connections), a significant amount of waste-water is let into septic tanks and soak pits and in several cases into
in open drains. MCT does not maintain an updated record of septic tanks in the city; the Health department
estimates that there are about 10,000 properties with access to soak pits under the ILCS scheme, several of
which are non-functional. 57% of the respondents from primary survey indicated that they had not cleaned up
the septic tank even once, suggesting limited adoption, awareness and enforcement of guidelines relating to
septic tank construction and maintenance. Only 12% of respondents indicated a clean-up frequency of septic
tank of less than 1 year. Desludging practices are archaic and managed by informal private service providers
with little attention to safety, health and environment aspects. There are 3 agencies engaged in the cleaning of
septic tanks, typically done through 6 KL tanker trucks. Septage collected is discharged in open spaces in
vicinity of MCT without treatment creating the risk of further groundwater contamination and health impacts.
Recommendations
1. Clarify and enforce bye-laws for monitoring and regulation17
of septage management and on-site
sanitation. A set of well-defined bye-laws and guidelines, accompanied by rules for on-site sanitation and
septage management should be adopted and enforced by MCT in consultation with and assistance from
15
Normative estimate based on norm arrived at for Class IC cities in report on Indian Urban Infrastructure and Services prepared by High Powered Expert Committee set up by MoUD released in March 2011. Refer Table 5.7 of CSP in Chapter 5. 16
Baseline issues pertaining to onsite sanitation detailed in chapter 5.1.2 of CSP 17
Areas that need to be covered under guidelines for onsite sanitation is discussed in section 5.5 under point 4. Annexure 16 and 17
discuss onsite sanitation option and a guidance note on septage management respectively
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GoAP. Municipal byelaws should be amended to phase out septic tanks in areas served with sewerage
system and mandate households to connect to sewerage network.
2. Two areas namely, SV University and the eastern part of Ward 17 (which is currently not connected to the
sewerage network) are currently unserved. MCT should initiate a feasibility assessment and a cost
benefit analysis of options to address these unserved areas including a) decentralised / onsite treatment
systems such as DEWATS or b) connecting to existing sewerage network (with additional pumping
facilities) to implement a suitable waste-water management solution in these areas.
3. MCT should create facility to receive and treat septage from soak pits and septic tanks at the STP. In view
of the need to improve discharge treated water quality standards, MCT and PHED initiate a feasibility
study and implement such a facility. This will help avoid indiscriminate dumping of sewage in open places.
4. MCT should empanel service providers and ensure compliance to safety, health and environment
practices in septage management and onsite sanitation. This will help MCT to effectively enforce
compliance to onsite sanitation practices and effective waste-water capture and treatment in areas that
are not served or connected to the sewerage system.
5. MCT should establish a waste-water quality monitoring protocol, in coordination with APPCB and PHED,
covering waste-water quality sampling, testing and monitoring and information dissemination to ensure
compliance of water quality to CPCB and APPCB norms.
4. Storm water drain network faces severe abuse with ‘grey water flows’ and solid waste dumping.
Rationale
Even though Tirupati has a natural topography advantage (with a sloping towards the eastern part of the town
which minimizes water logging) and a reasonably good storm drain coverage (107% as per SLB study),
effectiveness is severely limited due to indiscriminate and widespread solid waste dumping and grey water
flows into this network. Nearly 50% of complaints received by MCT are on choking of storm drains with Solid
waste. Visual inspection reveals that even black-water is discharged into storm drains along low-income
pockets. In some stretches such as Kothapalli, storm drains are also used as open defecation spots. A number
of areas face water logging due to ineffective storm water drains and lack of water retention zones to capture
peak run-off. Encroachment of urban water bodies shown in revenue maps and rapid urbanization further
Storm drains are thus emerging as vulnerable pollution hotspots as combination of solid waste dumping,
sullage flows and poor maintenance threatens to create adverse health impacts and eye-sore. While MCT is in
the process of implementing a trunk drain network under JNNURM, branch networks are poorly designed with
narrow width, lack of appropriate lining, lack of appropriate integration into trunk drains and further
contributes to water stagnation and ineffective storm water handling. While addressing these issues would
primarily require implementation of recommendations under SWM and Waste-water management, other
recommendations relating to storm water management are listed below:
Recommendations
1. Implement a time-bound phased investment program to develop / rehabilitate secondary drains. In view
of the expected demand–supply gaps pointed earlier, MCT and PHED / Public Works Department should
prepare a DPR and implement a storm drain network including secondary and tertiary drains within MCT.
2. Clarify organisational accountability for drain management. A Designated Incharge for Storm Drain
management should be created specifically discharged with the responsibility of drain cleaning and
management. At the operating level, there should be field level conservancy staff with designated
accountability for in drain cleaning and management for specific trunk and secondary drains.
3. Conduct a feasibility study to explore scope for setting water retention zones within and in the vicinity of
MCT through restoration and creation of water bodies.
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5. Service delivery in Water Supply18
within MCT falls significantly short of service level norms.
Rationale
Nearly 51% of respondents in the primary survey felt that water supplied by MCT is insufficient. Per capita
supply is less than 90 LPCD when the high floating population is factored, as against service level norm of 135
LPCD. Supply frequency is less than 1 hour per day and piped connections account for only 52% of properties.
While water demand is expected to increase to 116 MLD by 2041, supply from existing sources in MCT is only
44 MLD. With negligible metering (covering only 3.6% of connections) and no bulk metering in the network,
reported network losses cannot be validated. Though Residual chlorine and bacteriological parameters are
monitored daily, other physical and chemical indicators are inadequately monitored. There is no monitoring of
ground water status (except near waste dumpsite by APPCB). Power cost for operating power bore based
secondary network translates to nearly Rs. 9 per KL which is significantly higher relative to reported O&M cost
of Rs. 3.48 per kl for water supply. These issues in service delivery reflect in moderate Cost recovery and poor
Collection efficiency levels which are 68% and 22%19
respectively.
Recommendations
1. In order to improve baseline information on water flows and validate water consumption and losses, MCT
should install Bulk Meters at Intake points, Treatment Plants, Storage and Pumping points.
2. MCT should then, in coordination with PHED, initiate a NRW reduction study to assess system losses as a
measure to improve short term system performance. This should be followed by preparation of DPRs20
to
develop and rehabilitate the water supply network to comprehensively achieve SLB norms within MCT in a
time-bound manner. These preparatory efforts should factor the needs of the large floating population.
3. Along with these preparatory efforts, PHED should evaluate options to address water demand-supply gap
including evaluation of feasibility of bringing in additional water from Kandaleru reservoir envisaged by
PHED. This is critical to address water security concerns and groundwater depletion.
4. MCT should implement a Water Quality Monitoring Protocol covering both piped supply and ground
water. MCT in consultation with APPCB and PHED should implement a water quality sampling, monitoring
and information dissemination protocol to ensure compliance of water quality to IS: 10500 standards
covering both municipal supply and groundwater.
5. MCT should implement metering and volumetric tariffs for all commercial connections with immediate
effect. As an immediate measure, MCT could consider introducing user charge slabs for residential
connections based on size of property. This will enable MCT to remove the distortionary water pricing
prevalent, where slum households and high-income households served by a similar size connection pay the
same tariff, even though water consumption is likely to be significantly different. This will help MCT realise
better revenues while reducing burden on urban poor through lower tariffs. MCT should shift to 100%
metering of residential connections and to volumetric tariff once service levels improve.
6. MCT should in consultation with GoAP, formulate/enforce bye-laws on Tariffs, Connection policy and
Rainwater harvesting.
The capital cost21
for implementing above actions is estimated at Rs. 100 crore in the short-medium
term and another Rs. 170 crore in the long term. Recurring O&M cost is estimated at Rs. 8 crore in 2012.
18
Water supply baseline status discussed in detail in section 4.1 of the CSP 19
Figures from SLB study. IMaCS analysis indicates cost recovery and collection efficiency at 49% and 46% respectively for FY 10. 20
Detailed Terms of Reference for preparation of DPR is provided in section 4.5 under Boxes 4.2 and 4.3 21
Normative estimate based on norm arrived at for Class IC cities in report on Indian Urban Infrastructure and Services prepared by High Powered Expert Committee set up by MoUD released in March 2011.
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6. Littering and waste dumping22
in open drains reflects the poor state of SWM in MCT. Door-to-collection
is negligible while processing / safe landfilling is non-existent.
Rationale
Waste generation within MCT, at 145 MT per day translates to 1750 grams per household. Waste collection
efficiency is only 80% while coverage of Door-to-door collection and Source segregation is only 6.5% and 8.6%
respectively. Waste is dumped at Ramapuram dumping site without processing and landfill. More than 50% of
complaints received on storm water drains pertain to dumping of waste in drains. Reconnaissance visits
confirms that most storm drains are choked and waste bins are overflowing indicating scope for improvement
in service delivery. Prevailing O&M cost at Rs.1788 per ton appears high relative to other cities, especially in
the context of poor service levels and lack of facilities for processing and landfill. MCT does not have user
charges, though it has initiated steps to incorporate user charges and fines. While the conservancy staff report
under the Health department, the Engineering department is responsible for procurement of vehicles and
tendering thus creating overlaps in responsibility. Sanitary staff is not exposed to modern waste management
practices including door-to-door collection, bin-free approaches, optimal routing, recovery and processing.
Recommendations
1. MCT should create a dedicated and adequately staffed SWM department with procurement, staffing and
service delivery responsibility to achieve compliance to MSW Rules 2000 on a Mission Mode. MCT should
induct an expert with experience in implementing modern SWM practices to lead this effort.
2. The gaps in the DPR under preparation should be addressed on priority. An independent assessment done
by GIZ has identified areas for improvement and this has to be incorporated for effective implementation.
3. MCT should implement door-to-door collection on priority through training of sanitary staff, mobilising
public participation and leveraging Self-Help Groups/ local NGO linkages. In case of implementation of an
integrated PPP model, this activity could be the responsibility of a Private operator.
4. MCT should consider use of PPP options in Solid Waste Management23
. Once the DPR is finalised, MCT
should explore feasibility for structuring and implementing a suitable PPP contract. The following PPP
options could be evaluated, a) Integrated SWM involving end-to-end contract where the private operator
covers door-to-door collection, segregation, transportation, processing and landfill with or without
sweeping component, b) Only Transportation, Processing and landfill and c) Only Processing and Landfill.
5. MCT should launch an awareness campaign with public participation to complement door-to-door
collection and source segregation initiatives. Initiatives like door-to-door collection and source segregation
involve significant mind-set change and therefore engaging public involvement and participation in the
initial stages through and intensive awareness campaign is critical to get public support.
6. MCT should in consultation with GoAP, incorporate bye-laws for formalising policy on the following :
a. Right to levy, collect and retain user charges. MCT should also be able to assign/transfer this right to a
service provider through a contractual relationship
b. Articulate citizens’ duties with respect to maintaining clean environment and to fulfil obligations in
implementing modern practices such as door-to-door collection and source segregation.
c. Right to impose fines in case of non-compliance of citizens in their duties regarding sanitation.
The capital cost24
for implementing the DPR is estimated at Rs. 39 crore, but does not indicate costs of
IEC. Recurring O&M cost (including IEC campaigns) is estimated at Rs. 8 crore.
22
Baseline status of SWM is detailed in section 7.1 23
Profiles of similar PPP projects are discussed in section 7.5 Table 7.10 24
Based on estimates provided in SWM DPR of MCT
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7. While overlaps in roles and responsibilities for sanitation within MCT and among GoAP agencies tends
to create diffused accountability, inadequate staffing and exposure to modern sanitation practices within
MCT constrains ability to drive transformational changes needed.
Rationale
The Public Health and Engineering Department, Government of Andhra Pradesh (PHED) is responsible for
implementation of capital projects in water supply and sewerage. Since MCT is responsible for O&M only, it
often faces ownership and capacity constraints in managing O&M and service delivery effectively. Even within
MCT, responsibility for sanitation is diffused across multiple departments (as shown below). While SWM is
being handled by Public Health department, procurement of vehicles is handled by Engineering section.
Institutional Responsibility Matrix
Urban Services Planning Execution O&M Tariff fixation
and collection
Water Supply PHED PHED MCT MCT
Sewerage PHED PHED MCT MCT
Public and Community
Toilets Multiple agencies
MCT / TTD / Other agencies / Private contractors
MCT / TTD / Private contractors
MCT / Private contractors
SWM MCT MCT MCT Not levied
Storm Water Drainage PHED PHED MCT Not Applicable
22% of the sanctioned position are vacant, indicating constraints even with respect to planned manpower.
Officials are also constrained by inadequate exposure to modern practices in water supply, sanitation and solid
waste management as a result of which critical practices such as continuous water supply and metering in
water supply, door-to-door collection and source segregation in SWM etc. have not been adopted. Though
administration of MCT is overseen by the District Collectorate, absence of a formally Elected Municipal Council
sometimes constrains policy formulation and implementation. Effective implementation of Institutional
actions within MCT requires support and guidance from GoAP. Therefore recommendations on this issue are
being made at two levels, actions to be taken by GoAP and actions to be taken by MCT.
Recommendations
Actions by GoAP
1. GoAP should formulate and disseminate a state-level Sanitation Strategy. In line with the
recommendations of the NUSP, the Government of Andhra Pradesh to formulate a State Sanitation
Strategy in line with guidelines issued under the NUSP. The recommendations of this CSP (and other CSPs
under preparation in the state) may be factored during the formulation of the CSP to ensure synchrony.
2. GoAP should actively support ULBs in implementing local level policy framework through model bye-laws
and guidelines. Illustrative areas for formulation of such model guidelines are listed below:
Sl. No. Nature of Action Subject
1 Bye-laws Ground water management and Rainwater Harvesting
2 Bye-laws User charges Regulation, Fixation and Revision
3 Bye-laws Connection and Disconnection policy for water and sewerage connections
4 Bye-laws Citizen Obligations, Penalties for littering and waste dumping.
5 Bye-laws Onsite sanitation, decentralised treatment and septage management
6 Guidance Manual Public Toilets configuration, sizing and operation
7 Building Regulation Toilet Sizing and specifications as part of Building Code
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3. GoAP should undertake an organisation assessment of MCT to identify the number and scale of officers
required and detailing of job descriptions and drafting / amendments to service rules as necessary. The
following actions may be considered as part of this organisational review and restructuring exercise.
a. MCT should eventually align all sanitation activities under a Water and Sanitation department to
provide dedicated accountability for all Water and Sanitation activities covering a) shared toilet
access, b) water supply, c) waste-water management, d) Solid Waste Management and e) Storm
drains and water bodies. The overall schematic of a possible organisation and roles for each sub-
department is detailed in the CSP.
b. The Revenue and Accounts functions that are currently handled separately should be integrated and
handled as a centralised Finance department
c. MCT has already computerised its complaint handling process and this should be strengthened
through creating linkages between a back-office organisation that tracks, captures and respond to
citizen complaints and operating staff under various departments to ensure that complaints are
resolved in time-bound manner.
Actions by MCT
4. As an immediate measure (till a detailed organisational plan is implemented on the lines recommended
above), MCT could create a dedicated SWM team carved out of the Health and Engineering departments
to address SWM in a focused manner. MCT could also specifically fix responsibility of sanitation officials
(for e.g., a designated set of toilets for monitoring, specific zones for storm drain management and SWM)
in order to improve accountability.
5. MCT should also create a Coordination committee25
to jointly coordinate infrastructure planning and
service delivery and to clarify responsibility for various aspects of water and sanitation. This committee
could be created under the chairmanship of Commissioner MCT and comprise PHED and MCT officials. The
scope and activities of this Coordination committee are detailed in the CSP.
6. GIZ has undertaken a Training Needs Assessment focused on Environment related aspects which provides
detailed recommendations on areas of training. Priority Training needs across sanitation components and
other cross-cutting areas are also detailed in the CSP. This should be implemented on priority.
7. In order to strengthen monitoring and oversight of sanitation activities, MCT should consider
implementing a three level monitoring and evaluation framework on the lines suggested below:
a. First level - Elected Municipal Council: It may be useful to form a sub-committee to focus on Water
and Sanitation within the Elected Municipal council with the mandate of reviewing and implementing
the CSP recommendations along with the CTF. This sub-committee could also oversee enforcement of
bye-laws and tariff fixation/revision. Till an elected council is in place, MCT could use the CTF as its
first level monitoring mechanism.
b. Second level - Public Participation: MCT should actively encourage creation of monitoring
committees at a ward / community level, formed from community representatives and Resident
Welfare Associations for local oversight of water and sanitation services. When Tirupati has an
elected Municipal Council, the ward committees in line with the statutory Community Participation
requirements could take over this role.
c. Third level – Independent Evaluation: The GoAP should carry out independent evaluation of service
delivery across sanitation components periodically focused on outcomes achieved and to capture
wider perceptions of users. The results of such independent evaluation (along with action taken by
MCT as a follow up) should be disseminated widely.
25
A detailed roadmap and set of actions to be undertaken by the Coordination Committee is detailed in section 8.3.2 point no. 2.
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8. MCT’s financials are severely constrained to support capital investments; Cost recovery in sanitation
services does not even meet O&M costs and collection efficiency of even the low user charges is very low.
Rationale
Cost recovery26
in water supply and sewerage are at 69% of O&M costs while Collection efficiency is reported
at 22% and 21% in both water supply and sewerage respectively. There are no user charges levied for Solid
Waste Management yet, though recently MCT has initiated steps to implement the same. The O&M
expenditure for SWM, based on information provided to us by MCT translated to a cost of Rs. 1788 per ton
which appears high relative to other cities, especially given lack of processing and landfill facilities.
Recommendations
1. The summary of a 5 year capital investment program27
and phasing of the same is presented below. The
estimated cost required over the next five years is estimated to be Rs. 520 crore with priority investments
in Access to Toilets, Solid Waste Management and Information Systems Improvements.
Capital Investment estimate and possible phasing (Figures in Rs. Lakh)
Capital Investment (Rs. Lakh) Phasing of Investment
TOTAL Short Medium Long
Access to Public and Community Toilets 1,128 - 408 1,536
Water Supply 650 9,300 24,130 26,880
Waste water management 300 2,400 5,600 8,300
Storm Water Management 1,500 1,500 4,000 7,000
Solid Waste Management (As given in DPR) 137 3,970 - 4,107
ISIP, Project Development and Capacity Building 2,960 740 600 4,300
TOTAL 6,675 17,910 34,738 52,123
Source: IMaCS analysis
2. In view of its limited borrowing capacity, MCT will require significant grant support from schemes like
JNNURM and Rajiv Awas Yojana (RAY) to meet investment needs. Given the importance of sanitation,
GoAP should consider creating a dedicated funding as part of budgetary outlay for urban sector.
3. The estimated O&M costs for sanitation service delivery effectively translate to about Rs. 354 per month
per household and suggest that 100% O&M cost recovery is achievable through cross subsidy to lower-
income households and leveraging other potential means of revenue realisation including revenues from
waste recovery and from recycling / re-use of waste water.
O&M cost trend28
2012 2016 2021 2031 2041
O&M COST
Water Supply 785 1,041 1,528 3,249 7,052
Waste Water Management 869 1,161 1,686 3,679 7,780
SWM 716 981 1,494 3,513 8,360
Toilets 156 204 310 576 1,115
TOTAL 2,526 3,387 5,019 11,018 24,308
Annual Sanitation O&M Cost per capita 879 1,083 1,401 2,339 2,339
Monthly Sanitation O&M Cost per capita 73 90 117 195 195
Monthly O&M cost per household 366 451 584 975 975
26
Based on SLB findings. IMaCS analysis of financials of MCT suggest that that Cost recovery figures may be even lower at 49% and 46%
respectively for Water and sewerage respectively and hence need to be validated further. 27
Capital costs except in case of SWM, are computed on normative estimates and require validation during preparation of DPRs. In SWM
capital costs have been taken from DPR already prepared and under review by MCT. 28
Estimates based on normative costs. Computation details provided under respective chapters in the CSP.
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4. Even though the potential for investment-led PPPs (without grant support) is limited in sanitation sector
particularly in the context of MCT’s finances, there is scope to leverage PPPs with service efficiency focus
for provision of Public Toilets, and in managing Solid Waste transportation, processing and landfill and in
the medium term in water supply.
5. MCT should implement user charges in SWM and rationalise tariffs in all sanitation services including
water supply and sewerage to meet its reform commitment of 100% O&M cost recovery.
6. MCT should implement specific actions recommended in the CSP to improve penetration of water and
sewerage connections, cost recovery and collection efficiency and levy of user chargesConclusion
The City Sanitation Plan for MCT is a useful starting point to escalate attention to the ‘important yet often neglected area’ of sanitation and presents a comprehensive snapshot of the issues and imperatives for
sanitation within MCT. It also outlines a possible prioritisation of the above actions needed along short,
medium and long term towards achieving the NUSP goal of universal equitable access to sanitation.
MCT should work with the Government of Andhra Pradesh and MOUD to initiate the steps needed to
implement the actions recommended in the CSP. A Committee comprising representatives from MCT, GoAP
and the CTF could be formed to steer implementation. As envisaged in the NUSP, a CTF has been formed as
part of the preparation of the CSP and it provides a useful platform to engage with public stakeholders and
mobilise public support and participation during the implementation phase of the CSP.