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Acknowledgments

This document has been prepared as a part of the Performance Assessment System
(PAS) Project, funded by the Bill and Melinda Gates Foundation, at the CEPT University
in Ahmedabad. The authors would like to thank the Chief Officer and the Health
Department officials of Satara Municipal Council for generously sharing information
and their time. The authors are grateful to Dr Dinesh Mehta and Dr Meera Mehta
of CEPT, and Dr Sneha Palnitkar of the All India Institute of Local Self-Government
(AIILSG), for their valuable guidance and feedback in preparing this document. They
would also like to acknowledge the assistance provided by Raunak Nagpure during the
field work and analysis.

This is the second document that records the journey of small cities in improving
sanitation in their city and striving to achieve an open defecation free status. The story
of these cities, their visions and the varied strategies used by them can prove to be an
inspiration for other cities and provide guidance and direction in undertaking a similar
journey.

PADMA DESAI
UTKARSHA KAVADI

January 2013

Disclaimer:
The PAS Project documents are meant to disseminate information related to the work
being undertaken under the Project. The findings, interpretations, and conclusions
expressed in the document are entirely those of authors and should not be attributed to
CEPT University. The boundaries, colors, denominations, and other information shown
in this work do not imply any judgment on the part of CEPT University concerning the
legal status of any territory or the endorsement or acceptance of such boundaries.
Foreword

The Satara Municipal Council (SMC) has visualised Satara to become clean and open
defecation free (ODF) since early 1990s. Winning awards in Sant Gadge Baba Swachata
Abhiyan for three consecutive years was the first step towards it, which made us even
more keen and positive about achieving total sanitation in Satara.
Over the years, relevant schemes and government regulations by the Central and
State Government have helped to boost our efforts by providing financial support in
building infrastructure and providing improved facilities. SMC has always prioritised
sanitation services by providing public sanitation facilities wherever required.
As part of the work on the Performance Assessment System (PAS) Project in
Maharashtra, by the All India Institute of Local Self-Government, Mumbai and CEPT
University, Ahmedabad, Satara was identified as one of the towns with higher coverage
of toilets and very low level of open defecation. In this backdrop, the PAS team visited
Satara to document the efforts made by SMC in moving towards making Satara ODF.
All the achievements that are documented in this report are the outcome of combined
efforts made by the elected representatives and municipal officials of SMC, citizens of
Satara and other stakeholders and service providers.
SMC aims to continue its journey towards improved sanitation under the guidance
of Mr. Udayan Raje Bhosale (M.P. Satara) and Mr. Shivendrasinh Raje Bhosale (M.L.A.
Satara), Dr. Ramaswami N., Hon. Collector Satara, respected President, SMC, Vice
President, SMC and all councillors including leaders of opposition of our municipal
council.

Chief Officer
Satara Municipal Council,
Satara

January 2014
Introduction

The ‘Performance Assessment System’ (PAS) is an action research project initiated by

the Centre for Environmental Planning and Technology (CEPT) University, Ahmedabad,
with funding from the Bill and Melinda Gates Foundation. It supports the development
of appropriate tools and methods to measure, monitor and improve delivery of urban
water and sanitation services in the states of Gujarat and Maharashtra. The PAS
Project comprises three components: performance measurement, monitoring and
improvement.
As a part of the PAS Project, the data submitted by urban local bodies (ULBs) is validated
through field visits. During these visits, the PAS team also documents good practices.
One such case that emerged during validation is of Satara Municipal Council (SMC)
in the state of Maharashtra. At 98 per cent, Satara demonstrates a very high level of
toilet coverage with potentially only 2 per cent open defecation. Concentrated efforts
towards higher sanitation levels began in the early 2000s with Satara’s participation in
the ‘Sant Gadge Baba Swachata Abhiyan’ (SGBSA). The SMC went on to win awards for
three consecutive years. The strong foundation laid during this time was strengthened
in subsequent years with a combination of central/state government schemes,
creation of a community toilet infrastructure and sub-contracting maintenance for
it. An active political leadership also contributed to sustaining the momentum. The
present document traces this journey of Satara towards becoming an almost open
defecation free city.
 1

Satara – A Background

The district of Satara, located in the Kanheri, Urmodi and Tarali). This created
western part of Maharashtra state in fertile land, making it the highest sugar
the Pune Division, enjoys a unique producing district in the state with 12
natural setting and an important political sugar cooperatives and earning for it the
position. It is situated in the basins of name ‘District of Power’. It is bounded
rivers Bhima and Krishna and nestled in by Pune district on the north, Sangli
the plateau of Sahyadri and Mahadeo district on the south, Sholapur district
hills. Several Maratha warriors and saints on the east and Ratnagiri on the west.
Figure 1: Location of Satara

have contributed to Satara’s rich heritage, These administrative lines coincide with
once the capital of the Chhatrapati natural features, that is, the river Nira
dynasty of the Maratha kingdom. Its on the north, the Mahadeo hills on the
provincial importance during British east and the Sahyadri range on the west,
rule continued post-independence carving out its distinct character vis-à-vis
with massive investments in the Koyna its location.
Hydroelectric Power Plant along with a
number of smaller dams (that is, Dhom,

Open Defecation Free City - Satara

 2

Profile of Satara city hub. With its proximity to the Pune-

Situated at a height of 2,320 feet above Bangalore national highway, it emerges
mean sea level, the city is bound by as a transit point between three major
Ajinkya fort in the south, Yavteshwar hill cities of the state – Mumbai, Pune and
on the west and the Pune-Satara road Sholapur. It is also well connected with
on the north. This favourable position other important towns of Maharashtra
offers a panoramic view with truncated via a good network of state highways.

Figure 2: Administrative map of Satara

hills separated by deep valleys and a Industrial estates in close proximity

large green vegetative cover. A sloping have contributed to rapid growth on its
topography from the south-west to fringes.
the north-east creates a natural drain, Satara Municipal Council
discharging all stormwater into river
Venna. Satara, as a district headquarter, The SMC was established in 1853 and
has maintained its historical and was later merged with the Satara Sub-
administrative prominence with all Urban Municipal Council in 1962 to
major district-level offices located in the become the present Satara Municipal
city. It is also an important educational Council. One of the oldest in the state,
Table 1: Profile of Mahad Municipal Council

2001 2011
Area (SMC) 8.15 km2 8.15 km2
Population (Census) 108,048 120,079
Number of households (Census) 22,689 27, 025
Number of slums (SMC) - 14
Population in slums (SMC) 5,836 8,374
Households in slums (SMC) - 1824
% of slum population to total (SMC) 5.4 7
Total election wards (SMC) 34 39
Source: Census of India: 2001 and 2011; Satara Municipal Council

Open Defecation Free City - Satara

 3

it is classified as an ‘A’ class Municipal indicate a lower incidence of slums.

Council of Pune Division. The city
population is 120,079 and covers a total In 2011, the SMC launched a city-
area of 8.15 square kilometres (Census wide ‘Integrated Housing and Slum
2011). The total number of households Development Programme (IHSDP)’
is 29,026 with an average household size with grants from the Government of
of 4.14 and density of 147.3 persons per India (GoI). This programme adopted
hectare. As a district headquarter, it sees a clearance and relocation approach
a large floating population of 12,250. wherein 1,473 slum dwellers of the
Its 34 Census wards in 2001 grew to 39 city were to be provided with housing
before the 2006 election. Most of the city units of 269 square feet each along
maintains a predominantly low-rise built with infrastructural services. Despite
form, with higher densities in the older, initial resistance, the IHSDP has picked
inner city areas and plotted individual up momentum and with almost 80 per
houses in the newly developed ones. cent coverage, it promises to greatly
Recent growth has occurred outside the contribute to Satara’s vision of a ‘Slum
municipal boundaries in the adjoining Free’ city on its completion.
villages and close to the industrial
estates. There is a proposal for extending Service levels in Satara
the SMC’s jurisdiction to include this Satara has three main sources of
spillover. water – Kas Dam, and the rivers
Urmodi Krishna – with negligible
Slums in Satara
dependency on groundwater sources.
There are 1,824 slum households in the The city demonstrates a good coverage
city spread over 14 settlements with a of household level water supply
population of 8,374, that is, 7 per cent connections at 95 per cent. The per
of the total. All slums are on either capita availability of water is 119 lpcd at
municipal or state government land,
the consumers’ end with a supply of one
although none are notified. Most are
hour a day for all 30 days in a month. A
concentrated in the core town areas,
interspersed with the other built forms, similar favourable situation is noted
making a clear distinction between the vis-à-vis sanitation. As per the housing
two difficult. The newer areas of the city amenities details from Census 2011,

Figure 3: Location of slums in Satara

Open Defecation Free City - Satara

 4

78 per cent of households have individual Tracing Satara’s journey towards an

toilets. As per the SMC records, there are open defecation free city
119 community toilet blocks with 824
seats. Thus, with an additional 20 per With a high coverage of 98 per cent (both
cent having access to community toilets individual and community toilets), Satara
as per Census 2011, the total toilet demonstrated a negligible 2 per cent of
coverage stands at 98 per cent, implying open defecation. Considering this, the
thereby that only about 2 per cent of the PAS Project Team sought to understand
population resorts to open defecation. the ground realities and identify the
Community toilets indicate an existing factors that contributed to this as well as
ratio of households per seat of 6.7. assess the city’s plans to achieve 100 per
cent open defecation free (ODF) status. A
Households with individual toilets series of discussions were held with SMC
depend on septic tanks for wastewater officials to corroborate data authenticity.
management. Community toilet blocks They were not only confident of the
built by the SMC also have septic tanks. city’s status as almost ODF but also very
The newer city growth is covered by keen to share the Council’s journey in
closed drains, whereas most of the older reaching this milestone. Following this,
city areas depend on open surface drains. the PAS Project Team visited Satara and
Both grey water and septic tank effluent undertook a number of early morning
are generally emptied into this drainage visits to suspected open defecation sites
network. From here, it is disposed off in and held meetings with citizens.
the river without any treatment.
Table 2: Toilet infrastructure in Satara

Details of toilets in Satara Municipal Council

Total number of households (Census) 27, 056
Individual toilets
Total number of households with individual toilets (Census) 21,020 (78 %)
Number of non-slums households with individual toilets 20,824 (80.0 %)
(Census)
Number of slum households with individual toilets (Census) 196 (19.1 %)
Community toilets
Total number of community toilets (SMC) 119
Total number of seats in community toilets (SMC) 824
Total number of households dependent on community toilets 5,494 (20 %)
(Census)
Number of non-slums households dependent on community 5,048 (19.4 %)
toilets (Census)
Number of slum households dependent on community toilets 446 (43.5 %)
(Census)
Open defecation
Number of households resorting to open defecation (Census) 542 (2 %)
Number of non-slum households resorting to open defecation 159 (0.6 %)
(Census)
Number of slum households resorting to open defecation 348 (37.4 %)
(Census)

1
Based on PAS Project Survey, 2012.

Open Defecation Free City - Satara

 5

Early morning visits and discussions with local Construction Departments of the SMC.
residents
This exercise revealed the impressive
journey of Satara that started in the
early 1990s and gained momentum
with Satara’s participation in the SGBSA.
As a testimony to its focused efforts,
Satara won awards under this Campaign
for three consecutive years for overall
cleanliness and sanitation. Subsequently,
the synergy gained in this phase
remained intact as the city initiated
a series of large-scale interventions,
maintained the existing community
toilet infrastructure via private sector
involvement and displayed a high level
of political commitment. Indeed, in
this background, what became evident
was that the concentrated efforts of
the SMC, sustained over a long period
of time, focused not only in attaining
an ODF status but also on improving
More early morning visits and discussions with the overall sanitation level of the city.
local residents and the Councillor Thus, for Satara, the goal of ending
open defecation was placed within a
larger vision of improved sanitation
infrastructure in the city.
Discussions with the Chief Officer and officials of
the SMC

The team undertook a number of early

morning visits to these locations. During
these repeated visits, not a single
resident was found to be defecating
in the open. The city has a total of 59
sites and held meetings with citizens.
The team also visited community toilet As Satara continues to transform itself,
blocks, spoke with local councillors and this document traces its journey towards
a private contractor. A series of meetings becoming an ODF city.
were also held with the Chief Officer and
other officials of the Health and Building

Open Defecation Free City - Satara

 6

A Beginning is Made

The 1990s: Lessons from initial setbacks success. This model of toilets proved
to be unsuitable for the undulating
‘Ghar Tithe Shauchalaya’ – A toilet in and rocky terrain of the city with a low
every house level of infiltrative capacity. Thus, this
scheme too had to be discontinued.
Almost two decades ago, in 1994, the
Although in 1993 the explicit prohibition
Government of Maharashtra (GoM)
of manual scavenging was mandatory by
introduced the ‘Ghar Tithe Shauchalaya’
law, the city of Satara saw its complete
scheme (‘Toilets in each house’). During
termination only by 1999. By 2000, under
this period, frequent bouts of water-
another grant of Rs 1,000 to households
borne diseases plagued Satara’s low-
from the GoM, all latrines in the city were
income areas and slums. Overflowing
connected to septic tanks. In this early
drains, stagnant water, uncollected
phase, the explicit aim of the SMC was
garbage and widespread open defecation
not that of being an ODF city; however,
– all these were a common sight. The
the preparatory groundwork for a long
extremely unsanitary conditions in some
term intervention was inadvertently laid.
low-income hamlets of the city were
a cause of concern as these had led Early 2000s: Shift towards sub-
to disease outbreaks in the past. The contracting
‘Ghar Tithe Shauchalaya’ scheme, which
Involvement of local councillors
focused on individual toilets with a grant
of Rs 3,000 to individual households for While the central and state level
construction materials, seemed to be schemes met with limited success, the
an appropriate intervention to mitigate city witnessed efforts from another
this situation. Thus, from 1994 till 2002, direction – its local councillors. Around
the SMC directed all its efforts towards this time, some councillors took the
convincing the residents to avail of lead in constructing community toilets
benefits under this scheme. However, utilising their own funds and installing
lukewarm response coupled with community garbage bins in common
widespread malpractices compelled the areas. Political support was not limited
Council to discontinue it. to local-level councillors but extended to
the state level too. Leaders that carried
Central scheme for Integrated Low Cost considerable clout at state and national
Sanitation level politics had deep roots with this city
Around the same time, the prevalent and region. Some amongst them were
practice of manual scavenging came direct descendents of King Shivaji, who
under sharp criticism. The central ruled in the 18th century and had made
government had already introduced the Satara his capital. Thus, these leaders
Integrated Low Cost Sanitation (ILCS) shared a long ancestral and emotional
scheme all over the country in the early bond with the city. Their role in shaping
1980s with the aim of ending it. Satara the city’s development was critical. At
availed of this central government various junctures, as recounted by SMC
scheme. The main objective of ILCS was officials, they guided and mobilised
to construct low-cost pour flush latrines support for various schemes. This
connected to leaching pits. This scheme element – the active involvement of
subsequently underwent a number political leaders – has remained an
of revisions. However, in this scheme important contributing factor through
too, Satara did not meet with expected the years.

Open Defecation Free City - Satara

 7

Sub-contracting maintenance of on predefined parameters achieved

community toilets through community involvement and
Sanitation and solid waste in the city were innovation. Information, education
managed by the Health Department and communication (IEC) was a critical
of the SMC. It had one Senior Sanitary feature in this campaign.
Inspector, four Sanitary Inspectors, ten Around this period, the Chief Officer
Mukkadams, 128 Safai Kaamgaars and of the SMC was a medical doctor and
53 street sweepers. However, regular the Vice President an advocate. The
maintenance of community toilets educational background of this team
posed an increasing challenge for the appears to have contributed in setting
SMC. With limited staff and paucity priorities and building awareness
of adequate equipment and cleaning around the sanitation problems facing
materials, it became increasingly difficult the city. They recognised the SGBSA as
for the Health Department to carry out a perfect vehicle for not only changing
daily cleaning and maintenance/repairs the mindset and behaviour of citizens
of the toilet infrastructure. In 2002, the but also energising the Council officials.
SMC passed a resolution to outsource Indeed, as recalled by senior officials
this activity to private agencies. Other of Health Department, the decision to
services – such as door to door waste participate in this campaign infused
collection via ghantagadis, sweeping a sense of purpose and direction in
streets and drains in public areas – were the department. Under the leadership
also outsourced. of the Chief Officer and the Vice
Thus, a prelude to Satara’s journey President, the staff became motivated
towards attaining an almost ODF status to showcase Satara as an exemplary
can be seen in the tentative steps of city and participated in the SGBSA with
the early 1990s, via the state (‘Ghar great zeal. As efforts took off, they
Tithe Shauchalaya’) and central level were infused with a competitive spirit
(ILCS) schemes. In this era, the support and an urgency to win and attain due
extended by local and state level political recognition under the Abhiyan. Towards
leaders held in good stead for the next this end, they employed a number of
phase that followed. Outsourcing the different strategies not only to inform
maintenance of community toilets and educate but also to create a sense
assured regular cleaning and thus of involvement among the citizens.
increased their accessibility to users.
The SMC’s focus on toilet infrastructure Penal measures
in this phase appears to have invigorated One of the most effective and quick means
it towards taking the most decisive next of dissuading people from engaging in
step – participation in the SGBSA. the prevalent and widespread practice
of open defecation was via penal
The game changer: Participation in the measures. Sanitary Inspectors, along
‘Sant Gadge Baba Swachata Abhiyan’ with the police, undertook numerous
early morning visits and arrested people
Sant Gadge Baba was a folk hero of
defecating in police custody for a day
Maharashtra, whose life’s mission of
cleanliness had inspired many people. Public boards announcing the punitive measures
In 2000–01, the GoM’s Department regarding open defecation
of Water Supply and Sanitation
launched a massive SGBSA – aptly
drawing on the inherent message of
cleanliness via its associative title.
This campaign focused on ‘Hagindari
Mukta’ (open defecation free) villages
and embodied the ‘facilitator’ role of
the government. It was patterned as a
competition wherein overall cleanliness
assessment and ranking was based

Open Defecation Free City - Satara

 8

and fined. Numerous public boards Involvement of ‘Saving groups’:

were displayed at suspected open Another effective means of reaching
defecation site to warn citizens about the citizens was through ‘Mahila Bachat
the consequences of engaging in this Gats’ (‘Saving groups’). Numerous such
practice. The prospect of arrest and the groups were mobilised for awareness
public shame that followed proved to be building in their own areas of operation.
a very effective curb and an immediate, Leaders of the ‘Bachat Gats’ toured the
perceptible decrease was noted. city and held several night meetings in
neighbourhoods. Once again, the central
Advocacy and awareness campaigns theme was emphasizing cleanliness and
Although the impact of the penal exhorting people to stop the practice of
measures was effective, they were open defecation.
small part of the larger campaign. At a
parallel level, a number of activities for Puppet shows, dramas and street plays:
advocacy, awareness generation and These art forms were used as effective
participation were launched in the entire means of spreading the twin messages
city. These were aimed at spreading of cleanliness and ‘Hagindari Mukta’
awareness related to safe drinking Satara. Street plays and folk songs
water practices as well as the spread reflected local customs and issues and
of diseases and means of preventing were designed in the local language. Folk
them. ‘Hagindari Mukta’ Satara formed singers and theatre groups were invited
an important message in all these to perform. This proved to be a very
campaigns. Pamphlets were extensively effective medium of spreading public
distributed; posters, billboards and awareness.
banners were exhibited prominently in
important public places. The SMC was Community pressure: The officials of
actively supported in this endeavour by the SMC’s Health Department exhorted
the elected representatives. Some of the users to stop the practice of open
IEC features were: defecation. Simultaneously, they also
appointed a few conscientious citizens
Rallies:Numerous rallies were undertaken to informally supervise the overall
on the streets of Satara in which the sanitation in their neighbourhoods
detestable practice of open defecation and reprimand those still defecating in
condemned. Such rallies proved to the open. This social pressure exposed
be an effective means of propagating uncooperative households and created
the message of cleanliness and good fear of ridicule from others.
hygiene practices. Students from various
Nagarpalika schools enthusiastically ‘Dry Day’: An innovative method
participated in these demonstrations. The SMC introduced a ‘Dry Day’ concept
Repeated public processions displayed in the city. On a pre-decided day every
the high level of commitment of the week, households pledged to follow
SMC and were successful in drawing the a ‘Dry Day’ thereby getting rid of all
citizens into its fold. These rallies were stagnant water and making a conscious
inhouse initiatives by the SMC staff, effort to clean their surroundings.
especially of the Health Department. Sanitary Inspectors and Mukkadams
These evolved organically and did visited different areas of the city,
appear to follow a structured game persuading and motivating citizens to
plan. A flexible and intuitive framework participate in this initiative. In some
guided SMC officials in flagging off such areas, citizens displayed a stubborn
public demonstrations to build support reluctance to join, in which case officials
and awareness. Subsequently, as local had to forcefully empty containers in
political leaders and school children which water had been stored for a long
started participating, such rallies gained time. This often led to volatile situations
higher visibility and participation. escalating to public confrontations.

Open Defecation Free City - Satara

 9

of Health Department continued with Government Resolution of 2006

firmness and kept up their constant Resolution (GR) in 2006, making it
vigilance and pressure. Finally, repeated compulsory for all government officials
outbreaks of water-borne diseases in to have individual toilets. The Water
such areas convinced its residents of the Supply and Sanitation Department
threat posed by stale and, in some cases of the GoM issued a GR outlining its
filthy, water. As more citizens joined in, decision to take punitive actions against
those resisting too were swept by the government officials without individual
enthusiasm of others. toilets or engaging in the practice of
open defecation. It reasoned that
Provision of community toilets
the GoM’s goal of ‘Hagindari Mukta’
One of the most concrete interventions cities would be invalidated if its own
at this time was the construction employees were found violating it.
of community toilet blocks in areas To maintain its authenticity and have
which lacked such facilities. The SMC the desired exemplary effect, it was
undertook the building and repair/ imperative for all employees to engage
maintenance of toilet blocks as a top in appropriate sanitation practices. This,
priority. Efforts were also concentrated the GR mentioned, was the duty of every
in constructing ‘pay and use’ model of employee, thereby emerging as role
community toilets, especially close to models for other citizens.
the markets and commercial areas of
Figure 4: Government Resolution making
the city. Subsequently, by 2008 by this ‘Cleanliness Proof’ mandatory
time, the SMC had constructed 103 out
of the 119 community toilet blocks in
the city (under the SGBSA), leading to an
adequate infrastructure of community
toilets. (The remaining toilet blocks were
built during 2008–13.) Once again, this
demonstrated the Council’s commitment
towards creating a clean and ODF city.
One of the community toilets built by the SMC

Employees were expected to submit to

A ‘pay and use’ toilet
the SMC’s Health Department attested
proof – in the form of a self-declared
certificate – stating their accessibility
to, and usage of, individual toilets. The
SMC, in turn, issued a ‘Cleanliness Proof’
(Swachata Daakhala) to the employees.
Non-compliance with the GR would
result in discontinuation of housing
allowances. Under the policy, fines
would be levied on those who did not
An unexpected impetus to this campaign have an appropriate arrangement and
came from a Government continued to defecate in the [Link]
policy is in operation till date.

Open Defecation Free City - Satara

 10

Figure 5: Application for ‘Swachata Daakhala’ Figure 6: Format for ‘Swachata Daakhala’
(Cleanliness Proof) submitted to SMC by (Cleanliness Proof) granted by SMC
individual households

created urgency amongst residents to

The GR set in motion a spate in
construct individual toilets.
construction of individual toilets. In the
words of the Senior Sanitary Inspector: Efforts bear fruit: SMC wins SGBSA prize
for three consecutive years
“This GR gave the required push to many
employees for constructing individual toilets This multi-pronged, inclusive approach,
– something they had been deferring till then. drawing into its fold the participation
As it was mandatory for getting of housing not only of the officials of the SMC but
allowances, they were forced to comply. We also of common citizens, ‘Bachat Gats’,
are not exactly sure of how they raised the private contractors, and councillors,
money, but it could have been their own created a synergy in the city and bore
savings or credit from friends and family or fruit.
a bank. For educational purposes too this
document became critical. In that phase, we
issued numerous ‘Swachata Daakhalas’.”
The award for the Sant Gadge Baba Swachata
Abhiyan.
Thus, the GR contributed significantly to
the momentum already gained under
the SGBSA. As more citizens approached
the SMC for these certificates, officials
took this opportunity to inform them
about the cleanliness campaign under
way and encouraged them to extend
their support to the campaign.
Indeed, in this phase, the decision to
participate in the SGBSA was a trigger
that energised the entire Council in Satara was awarded the prize under the
initiating a number of proactive steps. SGBSA for three consecutive years. It
These included: a well worked out was awarded the first prize at the district
IEC campaign with participation of level (2005–06); a second prize at the
school children, ’Saving Groups’ and division level (2006–07); and the first
elected representatives; introduction of prize at the state level (2007–08). These
innovative concepts such as a ‘Dry Day’; awards were for overall performance
–and punitive measures such as arrests, with 60 per cent marks for overall
lock-ups and fines. The construction of cleanliness and sanitation.

adequate community toilets as well

as privatising their maintenance also
decisively supported their efforts.
Further, the GR issued around this time Open Defecation Free City - Satara
 11

Crusade for ‘Clean and ODF Satara’

Continues
Repeated success in winning the beautification projects utilising their
campaign is a matter of great pride for own funds and turned these spaces into
the Council. It is a clear embodiment public gardens. This transformation was
of the high level of motivation and given enough publicity and inaugurated
collective action that has been evident with pomp and ceremony, thus creating
in this phase. The Council, by taking the public awareness. In this, due respect
lead, has successfully demonstrated a and recognition was given to the state
participatory approach which drew into This erstwhile open defecation site was
its fold all important stakeholders of transformed into a well maintained public park
the city – its own officials, citizens and
local and state level politicians. In the
years that followed till date (2009–13),
this high enthusiasm and focus has
been maintained, as is evident from the
numerous initiatives highlighted in this
section.
Involvement of elected representatives
The support of local councillors, energised
during the SGBSA, was clearly seen in
their efforts to maintain an ODF status. In
This site, similarly used for open defecation
some wards, they were actively involved
previously, was also transformed into a public
in ground level dynamics and in close
garden
A plaque commemorating the inauguration of a
public park

level patron or political leaders,

descendents of King Shivaji.
In still other instances, the councillors
made efforts to clear a few existing
open defecation locations of debris and
garbage, thereby changing their physical
contact with their constituency. A few character from that of an ignored and
open plots in the city had inadvertently misused open area to a clean and
turned into sites for open defecation. accessible one.
To stop this, the councillors undertook

Open Defecation Free City - Satara

 12

An open defecation space cleared of debris and locations to be covered. Demand-based

garbage services for cleaning septic tanks, done
with vacuum emptier, is offered by the
Health Department by charging Rs 500
per operation within city limits and Rs
1,500 outside city limits. One private
agency also offers these services. The
fecal sludge is dumped on the outskirts
of the city. Another noteworthy feature
observed in some areas, although limited,
is community engagement in cleaning
toilet blocks. For example, discussions
with users revealed that women took
Some others undertook localised turns in cleaning toilet blocks in their
campaigns in their own wards to locality. These are typically blocks with
dissuade this practice via public notices. smaller as well as fixed user groups.
A public notice issued to dissuade open A Work Order is issued for the stipulated
defecation time of the contract.
Figure 7: Contract for maintenance of community
toilets

In all the above instances, the

proactiveness of the councillors resulted
in turning derelict plots into community
resources. Indeed, some councillors Figure 8: Work Order for maintenance of
displayed a high sense of ownership and community toilets
stake in the affairs of their own wards

Continued emphasis on maintaining

cleanliness levels in the city
Currently, the Council is continuing
with the strategy of sub-contracting all
sanitation services of the city to private
contractors. There are 39 contracts for
door to door collection, two for cleaning
community toilets, four for sweeping
streets and public areas, and four for
cleaning of drains and gutters. The
contract for cleaning community toilets,
signed on Rs 500 stamp paper (see Figure
7), contains details of the private agency,
a list of its duties and responsibilities and

Open Defecation Free City - Satara

 13

Box 1: Typical contract for maintenance of community

toilet blocks
The SMC has entered into Memorandums of Understanding (MoU) with private
agencies for maintenance of community toilets in the city since 2002. This practice
has continued till date. The MoU is a detailed document outlining the duties and
responsibilities of the private agency. Some of the aspects covered under it are:

A. Contractual agreements
Details of private agency undertaking contract.
Duration of contract.
Allocation of specific operational areas (wards).
Pattern of payment.
Conditions for extension in the same.
Regular medical examination and insurance for cleaning staff.

B. Logistics of cleaning operations

Minimum number of seats to be covered each day.
Allocation of specific time schedules for cleaning.
Provision of water tanker.
Cleaning materials, equipment and safety measures for cleaners.
Adequate provision of uniforms for cleaning staff.
Appropriate usage of disinfectants.
Adequate safety measures to be maintained during cleaning.

C. Supervision and reporting

Scheduling and reporting structure (daily/weekly).
Pattern of daily supervision and reporting.
Adherence to daily time schedules.
Forbiddance of child labour.
Outline of fines to be levied.
Penalty structure for non-implementation of duties.

D. Satisfactory resolution of complaints received by the SMC

Open Defecation Free City - Satara

 14

Monitoring system for maintenance of The vehicles involved in the cleaning

community toilet blocks follow this pre-determined schedule,
A systematic monitoring system oversees commencing their rounds at seven in the
the city-level performance of the private morning and terminating at around one
contractors. in the afternoon.
On an average, Mukkadams are Each community toilet block is covered
allotted one prabhag depending on the as per the allocated day of the week
population served in each. Every week, in the ‘Ahwaal’. This vehicle, a water
Sanitary Inspectors, along with the tanker, is equipped with adequate
Mukkadams, prepare a schedule charting cleaning materials (disinfectants, soaps,
out expected routes of cleaning vehicles brooms, etc,) and cleaning staff (usually,
so as to cover the entire prabhag. These a team comprising one cleaner and one
daily routes are planned such that each helper)2. On the field, completion of
seat in a community toilet block is tasks is verified by the Mukkadam and
cleaned at least every two days. the users themselves. A consolidated
picture of the cleaning operation in
This weekly cleaning operation, each prabhag emerges from the ‘Daily
represented in a ‘Daily Ahwaal’ Ahwaals’. These are compiled by the
(‘Schedule’), outlines details such as day respective Mukkadams and submitted to
of the week, corresponding area to be the Health Department every evening.
covered that day, total number of toilet The ‘Daily Ahwaals’ are further tracked
seats in the community toilet blocks of by the Sanitary Inspectors in their own
that area, actual seats cleaned and the areas. Every evening, a review of areas
signature of the Mukkadam. Further, the covered and the status of each prabhag
same schedule also contains another is monitored by the Sanitary Inspector.
level of detailing, that is, name of specific Thus, anomalies can be detected and
area, total seats cleaned in that area and attended to in a reasonable time frame.
signatures of the citizens who verify the Water tanker used by private contractors for
cleaning operation. This participatory cleaning community toilets
element assures a system of field level
monitoring.
Figure 9: ‘Daily Ahwaal’ (or Schedule) of cleaning
operations and citizen monitoring

2
The water tanker is never used for water supply, only for cleaning [Link] has
enough space to store cleaning materials. etc.

Open Defecation Free City - Satara

 15

Monitoring system for maintenance of The SMC also maintains a city-level

community toilet blocks record of the cleaning operations by
compiling and updating prabhag level
information from time to time. These
city-level records contain details of
wards, location of community toilets,
number of male and female seats, age
of the community toilet blocks and
frequency of cleaning per month.
Figure 10: City-level consolidated picture of
cleaning operations

Figure 11: : City-level consolidated picture of

cleaning operations

Complaint redressal system

Complaints are registered by citizens in a
number of different ways, although the
most preferred appears to be routing
User verification of cleaning operations.
them via elected councillors of their
wards. During visits to the SMC office
for a plethora of other work related to
their constituencies, the councillors also
verbally register complaints with the
concerned Sanitary Inspectors. A small
proportion of written complaints are
received by the department from users
directly (see Figure 12). There is also a
‘Complaint Register’ maintained at the
SMC office. According to the Senior
Sanitary Inspector, although there has
been a drop in complaints since

Open Defecation Free City - Satara

 16

Figure 12: Written complaint received by SMC influence area of toilets is substantial,
giving easy accessibility to users.

The use of community toilet blocks in

the older, non-slum areas of the city is
also high. Discussions with this target
group revealed that space constraints
proved to be a deterrent in constructing
individual toilets, even though they were
affordable. In others, they preferred to
use nearby community toilets due to
socio-cultural beliefs. In non-slum areas,
these are typically better maintained
toilet blocks. In a few areas, handpumps
have also been provided by the SMC.
The toilets are reasonably well maintained

sub-contracting of cleaning work

for community toilets was started,
the department attends to those
received within a “reasonable frame of
time”. Longstanding non-redressal of
complaints is a rare occurrence.
Adequate spread, quality and
The toilets are well maintained and accessible in
accessibility of community toilet
non-slum areas too
infrastructure
At present, Satara indicates a good
spatial distribution of its community
toilet infrastructure. For instance,
Figure 13: Adequate spread and accessibility of
community toilet infrastructure

Another well maintained and accessible toilet in

a non-slum area

most community toilet blocks are

concentrated close to slum areas and in
older, denser areas of the city which lack
individual toilets. Newer parts of the city
with plotted development and a higher
proportion of individual toilets show a
lower incidence of community toilets.
Considering a 150-metre buffer area, the

Open Defecation Free City - Satara

 17

Recent Initiatives

Maharashtra Sujal Nirmal Abhiyan has commenced. The MSNA forms an

In 2010, the GoM’s Water Supply and important initiative of the SMC and an
Sanitation Department along with the integral part of its overall Clean Satara
Maharashtra Jeevan Pradhikaran (MJP) and ODF vision.
launched the ‘Maharashtra Sujal Nirmal
Abhiyan’ (MSNA) as part of its Golden Integrated Housing and Slum
Jubilee Year celebrations. The MSNA’s Development Programme
ultimate goal is wide ranging and includes The ‘Integrated Housing and Slum
major reform initiatives and institutional Development Programme’, introduced
arrangements for optimal water by the GoI, seeks to provide housing
management. Satara is a beneficiary and infrastructural services to the slum
of this programme. In 2010, under dwellers of cities not covered under
the MSNA, a house to house survey of the Jawaharlal Nehru Urban Renewal
Schedule Caste and Navbuddha families Mission (JNNURM). The wide ranging
was carried out in the city. This survey components for assistance include
identified 2,024 beneficiary families improvement, upgradation or relocation
that did not have access to individual projects in slums and infrastructural
toilets. Out of these, only 1,641 could be facilities like water supply and sewerage.
covered as inclusion of the remaining 383 It outlines the minimum requirements
beneficiaries was difficult due to space for various programme features, such
constraints. The MSNA has provisions as dwelling unit sizes, land titles, ceiling
of financial support to households with costs, selection of beneficiaries and the
90 per cent grants (that is, Rs 10,800) financing pattern.
and the remaining 10 per cent (that is,
Rs 1,200) as beneficiary contribution. Grants under the IHSDP were approved
Better services and construction levels for Satara in 2011. Under it, the Council
can be achieved by higher beneficiary proposes a clearance and relocation
contribution depending on their approach: 1,473 slum households will
affordability. According to the Sanitary be relocated in individual housing units
Inspector of SMC: with an area of 269 square feet each. The
“There is a good response for this scheme financing pattern has contributions from
amongst the residents. We get a high level the GoI (41 per cent), GoM (5 per cent),
of inquiries as well as visits from those Maharashtra Housing and Development
desirous of availing the benefits. In this Authority (MHADA) (13 per cent), SMC
endeavour, local councillors have also spread (26 per cent) and beneficiaries (15 per
information and are helping residents with cent). Twenty-one plots in eight locations
the procedural requirements.” have been identified which contain both
in-situ construction (eight pockets) and
For the 383 that remained excluded, relocation to a site in close proximity to
the SMC plans to build community the original slum (13 slums). The SMC
toilets with approximately 64 seats in is also seeking financial assistance from
16 locations under its ownership. Thus, the Housing and Area Development
under the MSNA, the SMC plans to Authority (HUDCO).
provide 1,641 individual toilets and 16
community toilet blocks with 64 seats. This scheme faced initial resistance
Currently, the Council is engaged in the from the slum dwellers when it was first
preliminary scrutiny of applications introduced. Internal conflicts in slums
under the MSNA and no concrete work

Open Defecation Free City - Satara

 18

differing expectations of the slum at the city’s bus depot. All the above
dwellers resulted in a slow start. contribute to a considerable floating
Officials had to repeatedly dispel the population. Field observations indicate
apprehensions of slum dwellers and that appropriate sanitation facilities for
convince them to participate in the catering to the needs of this target group
scheme. In the words of an official from may be insufficient. For instance, fruit
the Building Construction Department: and vegetable markets are underserved
“Repeated meetings were held in the slums due to inadequacy of seats (for instance,
to convince the dwellers of the benefits of this in the ‘Utpanna Bazaar Samiti’). Out
scheme. They were still reluctant. Some had of the four main roads with high
larger houses and demanded more space; commercial activity, two indicate some
older dwellers disapproved of identical deficiency. Similarly, during field visits, it
benefits to newer entrants; in others there was observed that lack of seats resulted
were pre-existing conflicts. However, when in open urination, especially by women,
construction finally started in full swing on at the local bus stand. Students of some
one plot, it had a rippling effect all over the higher educational institutions were
city. As slum dwellers saw the authenticity also forced to use community toilets
of the Council’s claims, agreement gradually in their vicinity as their institutions
increased. Now, we have covered all slum lacked adequate toilets seats. Some
pockets in the city. We have also provided institutions indicated severe inadequacy
for transit accommodation for sites that (for instance, LBC College) or even total
are presently undergoing construction. On absence. Augmentation of existing
completion, Satara will not only be an open infrastructure to cater to the needs
defecation free but also a completely slum of this floating population has been
free city.” recognised by SMC officials.
Construction work in progress under the Beyond municipal boundaries
Integrated Housing and Slum Development The Chief Officer of the SMC highlighted
Programme
another urgent issue that confronts the
city and is detrimental to all its future
decisions. The rapid growth of Satara has
spilled outside the SMC’s jurisdiction,
creating a huge agglomeration zone
around it. The city’s population stands
at 120,079; that of the Satara Urban
Agglomeration is 149,170 (Census 2011).
This clearly is a matter of great concern
to the SMC, as detailed by its Chief
Officer:
“In the last couple of years, Satara has spilled
Addressing the needs of the floating many times outside its municipal boundaries.
population Densification of the inner city areas has
resulted in this outward shift of population.
Undoubtedly, the overall achievements
Some residents, although shifting to the
of the SMC are inspiring. There
outskirts, still work within the city. This
are, however, some areas in which
overburdens the city infrastructure. Our
Satara faces potential challenges. An
proposal is to extend the municipal limits to
important feature is Satara’s district
include a number of villages in surrounding
level prominence. As noted earlier,
areas under our jurisdiction. However, till
a plethora of administrative offices
the time this materialises, it puts the entire
and educational institutions are
municipal infrastructure under duress.”
located in the city. In addition, large
fruit and vegetable markets as well
as commercial establishments create
large concentrations of people. Due to
Satara’s connectivity to surrounding
cities, several state bus routes converge

Open Defecation Free City - Satara

 19

Figure 14: Satara Agglomeration

Figure 15: SMC’s proposal to increase municipal

limits

On the ground, this reflects in the

susceptibility of fringe areas to open
defection. Those residing outside SMC
boundaries and lacking community
toilets use city areas for open defecation.
For instance, during early morning
visits, this was clearly higher along the
nallahs (drains) and hilly areas situated
on the outskirts of the city. In addition,
the future prospect of extension in
municipal limits to include the suburban
growth poses the greater challenge of
governance and management for the
SMC. Integrating the existing Gram
Panchayats into its jurisdiction as well
as rising to the challenge of providing
adequate infrastructural and sanitation
services to the exponentially increasing
population due to this extension is an
issue that the Chief Officer stressed at
length.

Open Defecation Free City - Satara

 20

Figure 16: Timeline of key milestones

1990s: A beginning is made – Lessons from initial setbacks

‘Ghar Tithe Shauchalaya’ scheme

‘Integrated Low Cost Sanitation Scheme (ILCS)’ to stop manual scavenging

Early 2000s: Shift towards sub-contracting

Sub-contracting the maintenance of community toilets
New toilets constructed by councillors

2005 onwards: The game changer – Participation in SGBSA

Strategies for making Satara ODF: Punitive measures, construction of community toilets, IEC
campaigns, social pressure, involvement of politicians
Government Resolution making ‘Cleanliness Proof’ mandatory for government employees
Satara Wins SGBSA for Three Consecutive Years

2009–11: Crusade towards clean and ODF Satara continues

Political involvement in converting open plots to well maintained gardens
Clearing debris from open plots
Information dissemination via public banners
Well worked out monitoring system for sub-contracted maintenance of community toilets

2011 onwards: New initiatives

Sanction of Maharashtra Sujal Nirmal Abhiyan (MSNA)
Proposed 1,641 individual toilets; 64 community toilet seats in 16 locations
Integrated Housing and Slum Development Programme (IHSDP)
Infrastructure and housing to all slum dwellers in the city
Proposal to relocate 1,473 slum dwellers covering all 21 slum plots
Addressing needs of the floating population
Beyond municipal boundaries

Open Defecation Free City - Satara

 21

Key Factors Influencing the Drive for Clean

Satara
The story of Satara is impressive. assuring functional integration from
Commencing with rather tentative steps the field up to the Department level.
in the 1990s by availing of state (‘Ghar An innovative feature in this is citizen
Tithe Shauchalaya’) and central schemes participation via the daily endorsement
(ILCS), the City Council could increasingly of cleaning operations in the ‘Ahwaals’.
give shape to its larger vision of a clean Furthermore, city level cleaning status
and ODF Satara. In the years that can also be prepared by consolidating
followed, this vision was consolidated these daily records.
further by successes in the SGBSA.
Recent large-scale city interventions in Involvement of elected political leaders
form of the MSNA and IHSDP promise to The support of elected councillors during
create additional toilet infrastructure as Satara’s participation in the SGBSA was
well as address the problem of slums in noteworthy. Under the leadership of the
the city. Indeed, in this success story of Chief Officer and Vice President of the
Satara, a number of factors have played Council, the city was able to mobilise and
a decisive role, as highlighted in this motivate its citizens. Rallies, street plays
section. and puppet shows as well as involvement
of ‘Bachat Gats’ and school children,
Key role of community toilets created a high level of public awareness
At 98 per cent, the overall toilet coverage and participation in this phase.
of both individual and community toilets Innovative methods such as observing
in Satara is remarkably high. The spread ‘Dry Days’ and appointing volunteers for
and location of community toilets also dissuading open defecation were other
indicates easy walking accessibility in a noteworthy factors. The evidence of its
radius of 150 metres. An added strength success was in the awards that it won
is the good coverage of the water supply for three consecutive years under this
network (95 per cent) and per capita Abhiyan.
availability of 119 lpcd at consumers’
end with supply for one hour each day. In Innovations through local leadership
a few locations, provision of functioning This political support has continued
handpumps outside community toilets in ensuing years. Prabhags that have
supports the above infrastructure. Thus, demonstrated a higher involvement
on the whole, it is possible to maintain of local councillors have been able to
a hygienic environment in and around mobilise resources as well as come
the community toilet blocks due to the up with novel responses to field level
availability of water. conditions. For instance, residual open
spaces in congested areas of the town
Sub-contracting the maintenance have been turned into small gardens.
of community toilet blocks to a Such well maintained spaces have
private agency has contributed to transformed potential open defecation
creating a reasonably well-maintained spots to community resources. In
infrastructure. As already noted, another instance, councillors have
the Council’s monitoring system is cleared debris from open spaces, giving
well established with an innovative them a notional air of vigilance, once
feature of ‘Daily Ahwaals’. Cleaning again halting their misuse. In some
operations are monitored via these wards, councillors informally supervise
‘Ahwaals’ by Mukkadams and verified the cleaning operations. They have also
by Sanitary Inspectors every evening, guided residents in complying with the

Open Defecation Free City - Satara

 22

procedural requirements of state and in beautifying open plots or cleaning

central schemes. State-level political and supervising them, not only displays
leaders who share a historical bond with an involvement in civic affairs but also
the city have steered the city’s growth at an inherent and strong bond with the
various points in time and emerged as city. Indeed, SMC officials, supported
their patrons. Their contribution, openly by local and state level politicians,
acknowledged by officials as a ‘guiding have been able to consolidate the
force’, continues in all future initiatives. foundation laid in the early years by
Clearly, an involved political leadership maintaining the commitment. This
appears to have emerged as an important ‘aspirational’ tendency – clearly pointing
element in Satara’s impressive journey to a collective pride in showcasing the
toward an almost ODF city. city’s accomplishments and striving to
maintain its reputation as an outlier –
Proactive role in availing several
government schemes repeatedly came forth in discussions and
visits with the officials.
The SMC has demonstrated a good level The journey of Satara towards achieving
of inventiveness in availing state and not only an almost ODF status but
central level schemes. In the trajectory also raising overall sanitation levels
of making Satara almost ODF, the earliest is remarkable. Its successes were
was the ‘Ghar Tithe Shauchalaya’, achieved through a combination of
followed by the ILCSS and later SGBSA. good leadership, appropriate choices
This characteristic – awareness about and ability to harness opportunities
various government schemes and presented by various state schemes and
the ability to mobilise the required programmes. With an inherent pride
internal resources to comply with its in its achievements and confidence to
requirements – is a noteworthy feature meet future challenges, Satara can prove
in SMC’s case. The more recent schemes, to be an inspiration to many other cities
the MSNA and IHSDP, both large scale with similar goals.
interventions, once again reiterate this
organisational resourcefulness. The
latter, with a target of 1,473 households
potentially seeks to relocate 80 per cent
of all slum dwellers of the city. Thus, it
has consistently demonstrated a good
knowledge of the overall policy climate
and has been successful in directing the
Council’s efforts to capitalise on this.
Indeed, keeping abreast with national
and state level initiatives and harnessing
the opportunities that they offer has
been Satara’s strength.
‘Clean Satara’: A Matter of pride and
honour
The above also reveals another
underlying feature noted in the case of
Satara. During repeated discussions with
SMC officials, a sense of ownership and
engagement in the affairs of the city
was noticeable. The clearest evidence
of this was participation in the SGBSA
competition and winning it continuously
for three years. Firm and relentless
efforts to bring about a change during
this period are recalled by officials with
great pride. Similarly, the proactive
steps taken by elected representatives

Open Defecation Free City - Satara

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