CHAPTER – 2

IMPLEMENTATION OF THE ACCELERATED RURAL WATER SUPPLY PROGRAMME (ARWSP)

2.1       IMPLEMENTING AGENCIES  

2.1.1   The implementing agencies for the programme may be decided by the State Government.  The implementation may be through the PHED or Rural Development Department / Panchayati Raj Department / Board, Corporation or Authority.  The implementation should be entrusted to one single department in the State and not to a number of departments, with a view to better implementation, monitoring of the progress, etc.  If the programme has to be implemented in more than one department in the State due to unavoidable and certain special considerations, one of the departments should be designated as the Nodal Department for coordinating the rural water supply programmes and sending consolidated progress to the Central Government.  

2.1.2   The Panchayati Raj Institutions should also be involved in the implementation of schemes, particularly in selecting the location of standpost, spot sources, operation and maintenance, fixing of cess/water tariff, etc.  

2.1.3   While formulating the schemes, name of the implementing agency may be indicated for each scheme.

2.1.4   The Nodal Department in the State Government will have the overall responsibility for planning, implementation, supervision and monitoring, of the approved schemes.

2.1.5   In case the implementation is entrusted to the District Rural Development Agency (DRDA) , there should be a close coordination between the State Nodal Department and the DRDA so as to ensure avoidance of duplication of efforts and dovetailing of the activities with the normal schemes under MNP and ARWSP.  The implementation of specific schemes through DRDAs should not mean reduction or stoppage of flow of funds to the particular scheme/area under State Sector MNP.  

2.2      NORMS FOR PROVIDING POTABLE DRINKING WATER  

2.2.1   While implementing the Rural Water Supply Schemes, the following norms may be adopted for providing potable drinking water to the population:  

40 litres per capita per day (lpcd) for humans to meet the following requirements:  

  2.2.2     In addition,  provision should be allowed  at 30 lpcd for animals in hot and cold  desert/ecosystems in 227 blocks of 36 DDP districts already identified in the States of Andhra Pradesh, Gujarat, Haryana, H.P., J&K, Karnataka and Rajasthan.   

2.2.3   With normal output of 12 litres per minute, one handpump or standpost is estimated for every 250 persons.  In case of an independent habitation/hamlet/Wadi/Tola/Majra/Mohra etc, if their population is less than 250 persons and there is no potable water source within its location, one source may be provided . A rural habitation not having any safe water source with a permanently settled population of 20 households or 100 persons, whichever is more, may be taken as the  unit for coverage with funds under the ARWSP.  However, the State Government could cover any habitation regardless of its size/population/number of households with funds under the  MNP.  

2.2.4     DDP areas and  SC/ST habitations with less than 100 persons can, however, be covered under the ARWSP.    

2.3     CRITERIA FOR IDENTIFICATION OF PROBLEM HABITATIONS  

A habitation which fulfills the following  criteria may be  categorised as  a  Not Covered (NC) / No Safe Source (NSS) habitation :  

a)       The drinking water source/point does not exist within 1.6 km of the habitations in plains or 100 meter elevation in hilly areas.  The source/point may either be public or private in nature.  However, habitations drawing drinking water from a private source may be deemed as covered only when the water is safe, of adequate capacity and, is accessible to all.   

b)       Habitations which have a water source but are affected with quality problems such as excess salinity, iron, fluoride, arsenic or other toxic elements or biologically contaminated.  

c)                   Habitation where the quantum of availability of safe water from any source is not enough to meet drinking and cooking needs.  

Hence, in case of quality effected habitations, even if they are fully covered as per the earlier norms it would be considered as a NSS habitation if it does not provide safe water at least for the purpose of drinking and cooking.  

Habitations which have a safe drinking water source/point(either private or public) within 1.6 km. in plains and 100 meter in hill areas but the capacity of the system ranges between 10 lpcd to 40 lpcd, the habitation could be categorised as  “Partially Covered (PC)”.  These habitations would, however, be considered as “Safe Source  (SS)” habitations, subject to the water quality parameters.   

All the remaining habitations may be categorised as “Fully Covered (FC)”.  

2.3.1   Once the task of providing every habitation with safe drinking water source is completed as per the norms and criteria indicated at para 2.2.1 and para 2.3 (a) respectively, in the entire State, the State Government may consider relaxation of norms with the prior approval of the Government of India, subject to the condition that beneficiaries of the relaxed norms are willing to share a part (which should not be less than 20%) of the capital cost and shoulder full responsibilities of subsequent O & M  and replacement so as to meet their enhanced service expectations.  

2.4    PRIORITY FOR COVERAGE OF NO SAFE SOURCE HABITATIONS  

The following priorities should be adopted:  

-         Coverage of  No Safe Source (NSS) habitations.  Among them priority may be given to the ones  inhabited exclusively by SC/ST or having larger SC/ST population enumerated in the Status Report of 1994 (Survey) and resurveyed in 1996-97.  

-         Coverage of quality affected habitations with acute toxicity first and the others later.  

-         Upgradation of source level of safe source habitations which get less than  40 lpcd water to the level of 40 lpcd.  

-         Coverage of schools and Anganwadis where safe drinking water sources could not be provided  under the outlays allocated by the Tenth Finance Commission.  

2.5      Criteria for allocation of funds under ARWSP  

Criteria for allocation of funds to the States under the ARWSP w.e.f. 1.4.99 will be as under:

  a     Keeping in view the differential impact of chemicals such as Fluoride, Arsenic, Brackishness and Iron on human health, higher weightage have been given to fluoride (40%) and arsenic (40%) affected habitations which have serious health problems when compared to Brackishness (15%) and Iron (5%) while arriving at quality parameters.      

b    The weightage for overall water resources availability criteria is intended to take care of special needs of an area with overall water scarcity on account of poor rainfall, low ground water potential etc. 
 

However, the proportion of Union Territories, North Eastern States, and Sikkim is retained at the level of their allocation for 1986-87.  

2.5.1   The allocation of Central Assistance under the ARWSP is subject to the matching provision/ expenditure by the States under the State Sector MNP.  Releases under the ARWSP would not exceed the provision for Rural Water Supply made by the State Governments under their MNP.  The shortfall in actual expenditure under the MNP vis-à-vis expenditure under the ARWSP during the previous year shall be deducted from the last installment of the ARWSP funds for the current financial year.  The allocation of central assistance under the ARWSP for a financial year would be communicated to the States/UTs at the beginning of the financial year.  

2.5.2   These are dynamic figures and allocations for the subsequent years will be made based on the data on items on 2.5 (c), (d) and (e) above as on 31^st March of the previous year. This can vary subject to changes on (c), (d) and (e) above on an annual basis  

   2.5.3   The funding pattern for Sub Mission projects taken up after 1-4-1999 will be in the ratio of 75:25 by the Central and State Governments.  No separate funds will be released for this purpose.  Upto 20% of  the ARWSP funds released to the States can be used for these projects as per the details given in para 5.2.  

2.6      ARWSP in DDP Areas  

            A fixed amount (of about 5%) of annual central plan allocation is earmarked for Rural Water Supply in DDP areas in Andhra Pradesh, Gujarat, Haryana, Himachal Pradesh, J&K, Karnataka and Rajasthan without the condition of the States providing matching provisions under their MNP. The share of these States will be determined in proportion to the number of NSS habitations without safe source.  

2.7      OPERATION & MAINTENANCE  

            Upto 15% of the funds released every year under the ARWSP to the States/UTs may be utilised for operation and maintenance of assets created,  subject to (i) ceiling of matching grant provided by the States out of the MNP provision and (ii) the approved norms already circulated to all the States/UTs. The funds earmarked for operation and maintenance of assets is not to be permitted for creation of capital assets.  

2.8      EARMARKING OF ALLOCATION FOR SCs/STs  

2.8.1   The State/UTs are required to earmark and utilise at least 25% of the ARWSP funds for drinking water supply to the SCs and another minimum 10% for the STs.  Where the percentage of SC or ST population in a particular State is considerably high warranting earmarking/utilisation of more than stipulated provisions, additional funds can be utilised.  As a measure of flexibility, States may utilise at least 35% of the ARWSP funds for the benefit of SCs/STs, particularly in those states where SC/ST coverage is less than the coverage of the general population.   

2.8.2   Diversion of funds earmarked for the SC/ST Sector to other sectors is not permitted.  In cases wherein the States have achieved substantial coverage of SC/ST habitations and,  do not have sufficient SC/ST population left out so as to utilise 35% of the ARWSP and the MNP allocations, such States may be allowed by the Rajiv Gandhi National Drinking Water Mission, to incur lower level of  expenditure on the coverage of SC/ST habitations, on a case to case basis, in consultation with the Ministry of Social Justice and Empowerment and the National Commission for SC/ST.  In such cases, States are required to submit separate proposals giving detailed justification for availing  of such relaxation.  

2.8.3     The State Governments may list out the SC/ST habitations separately and their coverage may be monitored as a distinct component of the programme.  

2.9            INVOLVEMENT OF WOMEN  

                Since women are the principal beneficiaries of this programme, it is of crucial importance that women are involved at all the stages of Rural Water Supply Schemes, particularly while making decisions on the location of the standpost/spot sources in the villages/habitations.  Information about sources of water should be obtained from women by the surveyors of the schemes.  They should also be involved in the following manner:-

a)       At least 30% of handpump mistries under NHRD, TRYSEM and other training schemes, should be women of the local areas/habitations as they can take better care of the operation and maintenance of the handpump schemes than others.  

b)       There should be women caretakers for handpumps in the habitations.  

c)       Certificate about satisfactory completion of the schemes may be obtained from women groups in the habitations.  

d)       Prominent women from the habitation should be represented on the village  level water monitoring committees.  

Experience has shown that where women are involved in such consultation and in the maintenance of the spot sources, the performance of the water supply systems has been effective.  This aspect should be kept in view and ensured by the implementing agencies at the time of formulation, implementation and maintenance of the schemes.  Each scheme/project for Rural Water Supply should mention the extent of  the involvement of women.  

2.10     ANNUAL ACTION PLAN  

2.10.1  The main objectives of the Annual Action Plan are to provide a definite direction to the programme,  and also to ensure monthly and quarterly monitoring of physical and financial progress during the course of the financial year vis-à-vis (i) the target as included in the Action Plan and (ii) the priorities mentioned in para 2.4.  

2.10.2  The States/UTs shall prepare Annual Action Plans six months before the commencement of the financial year on the basis of the shelf of schemes, the likely size of the allocation under State Sector MNP, ARWSP as well as likely carry over funds, if any, and submit them to the RGNDWM, by the beginning of October of the year for use at the Annual Plan discussions.  

2.10.3  While preparing the Annual Action Plans, completion of the incomplete works shall be given priority over taking up of new works. It should be ensured that the works taken up are completed as per schedule and that there should not be any delay in execution which would result in cost escalation, non-utilisation of assets created, etc.  

2.10.4  As soon as final outlay is decided, the Annual Action Plans prepared earlier may be reviewed and finalised.  It should be forwarded to the Central Govt. latest by the  30th April of the financial year to which they pertain.  The Action Plans should indicate the following aspects also:-  

·                     Target of coverage of NC/PC habitations with their names, block, district, etc with reference of serial number from the appropriate survey list,  

·                     Whether the habitations will be covered fully or partially.  If partially, the extent of such partial coverage in terms of either additional segment of population to be benefited or the number of sources to be added to the sources existing at the end of the previous financial year,  

·                     Steps taken by the implementing agency for functioning in a mission-mode, 

·                     In house plan for HRD and how these have bearing on the projects,  

·                     The activities to be taken up under sub-missions, magnitude of the problem, steps to tackle it, the oranisational structure for handling the sub-missions, details of IEC activities,.  

·                     Population to be benefited indicating separately the SC/ST population; and,

·                     Clean environment around drinking water sources including handpumps ,  proper  O&M and involvement of the Panchayati Raj Institutions.  

2.10.5   Dual Water Supply Policy may be adopted for rural habitations facing acute water quality problems.  In these habitations even if safe water is provided upto 10 LPCD, which would be sufficient for drinking and cooking purposes, it may be considered as a habitation with a safe source of drinking water.  For other activities like washing, ablution etc. water available from the unsafe sources can be utilised without any problem.  

2.11   RELEASE OF FUNDS  

2.11.1 The central assistance of the ARWSP is normally released in two installments subject to specific instructions from the Ministry of Finance.  The first installment is released in April without any condition except that the last installment in the previous financial year was drawn by the State/UT Govt. If the last installment in the previous financial year was not drawn, the first installment of funds in the current financial year will be released only after receipt of specific request/proposal along with all the necessary documents / information required for release of the 2^nd installment of the previous year in the prescribed proformae (Annexure II) .

2.11.2   The second installment to cover the balance of the annual allocation will be released on fulfillment of the following conditions:-  

(a)      Receipt of a specific proposal from the State/UT Govt. in prescribed proforma (Annexure II) with progress reports and returns by the end of December in each year,  

(b)      Utilisation of 60% of the available resources under the ARWSP and the MNP  (unutilised opening balance, if any, from the previous years plus funds released as the first installment),

(c)      Receipt of certificate of actual expenditure under the MNP and the ARWSP from the Accountant General upto the year preceding the previous financial year,  

(d)      Receipt of utilisation certificate ( in the prescribed proforma as at Annexure-III) under the MNP and the ARWSP signed by the Chief Engineer and countersigned by the Secretary, for the previous financial year,  

(e)      Certificate that the unfinished works are given priority for completion,  

(f)      Certificate that no work started more than three years ago remains incomplete,  

(g)      Certificate that schemes technically cleared six months ago have been taken up for implementation,  

(h)      Proposal for release of the second installment of funds under the ARWSP, complete in all respects as indicated above, should reach the Mission by the 31st December.  Such proposals will be entitled for receipt of full allocated amount under the ARWSP. Proposals received after the 31^st December will be subjected to progressive cuts as indicated below:

(i)       The expenditure on O&M should not exceed 15% of the ARWSP and 15% of the MNP funds.  Excess expenditure in the previous year, if any, will be deducted at the time of release of the 2^nd installment of funds for the year; and  

(j)      Any other condition(s) that may be imposed from time to
         time. 

2.11.3  Release of funds for other schemes/projects will also be regulated in two installments and as per the need-based approach.  In other words, funds will be released based on the specific proposals from the State Governments indicating the actual requirement during the remaining part of the year and utilisation of prescribed percentage of funds already released.  

2.11.4  While releasing the central assistance, the quantum of unutilised funds available with the States/UTs in relation to the total allocation for the financial year will be kept in view. From 1.4.99, a carry over of funds, to the extent of 20% of the total allocation for the year will only be allowed. The maximum  carryover of funds on 1.4.99 (from 1998-99 to 1999-2000) permissible is 20% of the total allocation.  However, from 1.4.2000, the carry over of funds, only to the extent of 15% of the total allocation for the year will be allowed. Final instalment for the year will be reduced by the amount the carry over funds exceed this limit. 

2.11.5 The States/UTs shall release the entire amount of central assistance received along with the matching MNP share to the executing agency/agencies without any delay and in any case not later than 15 days after its receipt. 

2.11.6  In the States where the programmes are implemented through Statutory Bodies like Boards, Nigam and Authority etc, central assistance will be released direct to such Bodies and not through the States.  In such cases, expenditure incurred under the ARWSP  should confirm submitting  the utilisation of Central funds should be subjected to audit either by the Accountant General of the State concerned or by Chartered Accountants.The expenditure incurred under the ARWSP should be confirmed by submitting the certificate of actual expenditure from Accountant General or Chartered Accountant which shall be acceptable. The Audit of Central funds is mandatory from the financial year 1999-2000 onwards. In respect of expenditure incurred under the  Minimum Needs Programme the  statutory audit by the Accountant General concerned upto the year preceding the previous financial year is necessary and hence  the Certificate of expenditure incurred from the AG clearly indicating the audited expenditure figures will have to be necessarily submitted 

2.11.7   Copies of orders for release of funds by the State Governments both under the  ARWSP and the MNP should be invariably endorsed to the Central Govt. to ensure  funds are  released on time.  

2.11.8  Vigilance and Monitoring Committee at State, District and Village level may be set up as indicated in the Ministry of Rural Areas & Employment letter          No.V-24011/27/95-RE-III dated 16-10-95 and regular meetings of the same held.  This would also be a pre-condition for release of funds henceforth. 

2.11.9  Amount released under the ARWSP cannot be utilised/adjusted against any cost escalation of schemes or excess expenditure over the approved cost of schemes in the previous years. 

 2.11.10An official of the Mission should be invited to the meeting of the Scheme Clearance Committee of the State.

2.11.11 The unutilised fund under the ARWSP, due to non drawl / non utilisation of the allocated amount by any state government will be redistributed to the better performing states, towards the end of the financial year, as per the allocation criteria.

Index