A Guidance Book on
Social Accountability in Rural Water Supply
Acronyms ASST
Above Sector Storage Tank
ATR
Action Taken Report
BSST
Below Sector Storage Tank
CBO
Community Based Organizations
GP
Gram Panchayat
IPH
Irrigation & Public Health
MNREGS
Mahatma Gandhi National Rural Employment Guarantee Scheme
PRI
Panchayati Raj Institution
RWS
Rural Water Supply
SAC
Social Audit Committee
SAI
Social Accountability Index
SAM
Social Accountability Mechanism
Content
Page No.
Acronyms Preface Key stakeholders and inter-linkages Improvement of service delivery in rural water supply through social accountability: An initiative µ Sharing of the process in gram sabha µ Social accountability mechanism: A complete cycle of activities µ Gram sabha as the first & last step of the whole process µ Selection of an Institution for social accountability mechanism µ Capacity building of the institution µ Collection of physical data in the formats at ward-level µ Validation of physical assets by social audit committee at ward-level µ Preparation of social accountability index at ward-level µ Compilation of social accountability index from all wards at gram panchayat µ Analysis and Interpretation of social accountability index scores µ Preparing time-bound action plan with specific responsibility for different stakeholders µ Providing the copies of action plan to the stakeholders µ Presentation of action taken report in gram sabha, ward and gram panchayat µ Repetition of the social accountability mechanism cycle in gram sabha
Annexures
1 7 8 10 12 14 19 21 22 24 25 28 30 32
Preface Drinking water is one of the most important basic services that are required by everyone. It is the primary responsibility of the service provider to ensure better service delivery to all users. In rural areas, where access and availability of adequate quality of drinking water is already a big concern, it is very crucial to check malpractices, malfunctioning and mismanagement that affect the service delivery in rural water supply systems. Challenges pertaining to rural water supply get even tougher in mountainous terrains, mainly due to adverse topographic conditions, remoteness of the settlements and socioeconomic factors. Department of Irrigation and Public Health (IPH), Government of Himachal Pradesh is responsible for ensuring quality and accessibility of good quality water for the people of the state. The department has developed a sound rural water supply system covering all villages. Despite several initiatives taken by the Government and a wide network of rural water supply systems in place, there is need for accountability and participation of all stakeholders for the improvement of service delivery, taking into account the quality, quantity, adequacy and regularity of water supply. The Indo-German Bilateral Cooperation Project ‘Capacity Building of Panchayati Raj Institutions in Himachal Pradesh’, (hereafter PRI project) has taken a unique initiative for the first time in India. An attempt was made to pilot test an accountability mechanism developed through consultative processes with all stakeholders to improve the standards of service delivery in rural water supply. Social Accountability Mechanism (SAM) is a participatory appraisal of service delivery which tries to enhance transparency through community participation and make stakeholders accountable on various parameters of service delivery. Principally, SAM in rural water supply assesses users’ satisfaction in terms of adequacy, accessibility, regularity and potability of drinking water. The tool was tested in selected Gram Panchayats in two blocks of Himachal Pradesh. The process revealed that: § More number of people participated as most activities were carried out at ward-level instead of Gram Panchayat. § Involvement of all stakeholders, including the service providers and users, led to participatory actions and ensured accountability of everyone involved. § An easy scoring system was used to determine the response of community over four parameters of service delivery- (1) participation of community, (2) reliability of
service, (3) responsiveness of service providers and (4) condition of physical assets. § All proceedings of Gram Sabha meeting with SAM as an agenda item were duly recorded by the Panchayat secretary in Gram Sabha register. § An already existing institution, Social Audit Committee (SAC) mandated for Mahatma Gandhi National Rural Employment Guarantee Scheme (MNREGS) was given the responsibility to facilitate the day-to-day activities of SAM, averting the need of having different committees for different tasks.
This Guidance Book primarily aims at building the capacities of Gram Panchayat representatives and village communities in understanding and implementing this tool. It engages the readers to understand the concept of social accountability and gives an overview of the step-by-step process conducted. This Guidance Book has been presented as an illustrated story where a Gram Panchayat attempts to understand the process and purpose of SAM in rural water supply. This story can be applied to every Gram Panchayat in Himachal Pradesh.
Key stakeholders and inter-linkages
IPH Department (Service Provider)
Gram Panchayat (Local Government)
provides drinking water through its network (pipelines), schemes and staff. Responsible for rural water supply above sector storage tank (ASST)
Ward/ habitation communities (Service User)
GPs are expected to provide safe and adequate drinking water to people. Accountable to Gram Panchayat
Responsible for rural water supply below sector storage tank (BSST)
All users of drinking water are members of the Gram Panchayat Accountable to community
Facilitation of social accountability mechanism
Social Audit Committee (SAC)
Fo r m e d u n d e r t h e MNREGS to hold social audit of the the work done under the scheme. Additionally, mandated to hold pilot-testing of social accountability mechanism (SAM) in rural water supply
Improvement of Service Delivery in Rural Water Supply through Social Accountability: An initiative Story of a panchayat Two years ago, the people of a Gram Panchayat in Himachal Pradesh were witnessing several problems related to the service delivery in rural water supply, despite a rural water supply system in place. The unsatisfactory access, availability, quality and quantity of drinking water was causing worries both for people and the Government. In order to address this issue effectively, the social accountability mechanism as a tool to improve the service delivery in rural water supply was developed. After awareness, training and exposure tours of service providers (IPH Department and Gram Panchayat) and service user (community), an enabling environment was created for improving the service delivery in rural water supply. The Panchayat pradhan, Up-pradhan, Panchayat Secretary, ward members, communities, engineers and field-level functionaries of IPH Department endeavoured collectively to complete the first cycle of SAM. The Social Audit Committee (SAC) of this Panchayat and SAC’s proactive chairperson Ms. Neeru has played a vital role in the completion of the first SAM cycle in this Panchayat. Today, the Gram Sabha is taking place in this Panchayat to share the process/findings of SAM with all stakeholders present. Representatives of Gram Panchayat, Executive Engineer & field-level functionaries of IPH Department, villagers of the Panchayat, SAC members and representatives of the various civil society organizations, all are present in this Gram Sabha. Before we move to the Gram Sabha meeting, let’s first get introduced with the characters that will appear in the storyline...
Pradhan Gram Panchayat
Chairperson SAC
Secretary Executive Engineer IPH Department Gram Panchayat
Ward member Ward member Gram Panchayat Gram Panchayat
Member SAC
Member SAC
Sharing of the Process in Gram Sabha Neeru, our panchayat has made the first successful attempt to improve the service delivery in rural water supply, through social accountability mechanism. All SAC members deserve praises for this!
Pradhan Ji, real credit of this success goes to your kind guidance and proactive participation of all villagers of our Panchayat. It would not have been possible without the appreciable cooperation and support of Engineer sahab, field-level functionaries of IPH Department and our Panchayat Secretary.
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Thanks! Yes, the collective efforts have led us to the completion of pilot testing of the first cycle of SAM. For your kind information, this is the first unique initiative in Himachal Pradesh. Neeru, can you please explain the complete process that was attempted in this Panchayat?
Correctly said Engineer sahab, we must understand every step of this process, so that we can get actively involved in future .
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Improving Service Delivery in Rural Water Supply through Social Accountability
Dear panchayat members, as you know our panchayat witnessed some problems related to mismanagement and misuse of water in recent years, wherein some of the problems could have been solved at our panchayat level itself. So, to deal effectively with these problems, a tool of SAM has been evolved for improving service delivery through a series of consultations with stakeholders.
Yes, I was also present in some of the meetings where feedback was sought over the issues pertaining to rural water supply. But Neeru, can you please elaborate and explain the concept of social accountability and its mechanism?
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Of course Bali Ram Ji, I’ll be very happy to explain all this you! ? To understand social accountability, we must first know what is accountability. Accountability or answerability is the obligation of an individual or organization to accept responsibility of their actions or inactions and the impacts and consequences of the same. ? And social accountability is a citizen-centric, participatory approach to hold all the stakeholders responsible for undertaking certain actions (or refraining from taking actions) and also for providing an account of those actions. ? Social accountability mechanism is a set of tools, methods and strategies that involve citizens and civil society in the process of allocating, tracking and monitoring the use of public resources and holding all stakeholders accountable for this, in order to ensure improved delivery of any public service in future.
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Improving Service Delivery in Rural Water Supply through Social Accountability
But Neeru, how did our Panchayat get to know about this, and what was the objective of this initiative? Seema, last year when the IPH Department of Himachal Pradesh, in collaboration with the PRI Project, decided to pilot test the SAM in some selected Panchayats, fortunately our Panchayat was also included. The objective was to improve the service delivery of rural water supply by ensuring transparency and accountability through participation of communities and proactive involvement of all stakeholders.
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As this was a new initiative and a challenging process, especially in context of rural water supply for better understanding and synchronization among the stakeholders, the initial efforts were focused on promoting awareness about social accountability through street plays (kalajatthas), workshops and meetings. A step by step activities were planned and a complete cycle of SAM emerged, starting from the selection of social audit committee (SAC) as an institution, meetings at ward level, preparation of social accountability index (SAI), analysis and compilation of data at panchayat level, preparation of action plan, and finally presenting the Action Taken Report (ATR) in Gram Sabha. Developing mutual understanding among the stakeholders for evolving step-by-step SAM cycle
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Improving Service Delivery in Rural Water Supply through Social Accountability
Ward-level inspection of the rural water supply system in the process
Here is how we went through a step-by-step process of completing a SAM cycle in our panchayat!
Social Accountability Mechanism (SAM): A complete cycle of activities Capacity Building (IEC, trainings & exposure tours) of stakeholders was an integral part of the process
1 11 Gram Sabha
2
Presentation of ATR in Gram Sabha
Selection of SAC / an institution
10 Copies of Action Plan to Key stakeholders
3 Training of SAC / an institution for SAM
9 4
Time-bound Action Plan for stakeholders
Collection of data through meetings at ward level
8 5 Analysis / interpretation of SAI scores 7 Compilation of ward level data at GP
6
Validation of assets by SAC / an institution at ward Level
Preparation of SAI at ward-level
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Preparation for SAM in Gram Sabha Pradhan Ji, can you please explain the first step in the SAM cycle?
Pradhan Ji, I would like to also emphasize the presence and participation of womenfolk in this meeting as water is our main need and responsibility. Thanks Neeru, Gram Sabha is the first and the last step of SAM, because here, in presence of Panchayat members, we select SAC members for facilitating the process. At the end of the cycle, an ATR is also presented in the Gram Sabha and if quorum is not full, then it could be presented in Panchayat or ward meeting. Also, it is mandatory for the service providers and service users to attend these meetings.
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Improving Service Delivery in Rural Water Supply through Social Accountability
...and Pradhan Ji, we should not forget to tell everyone that ‘Improving service delivery in drinking water through social accountability’ should be placed as an agenda item in the Gram Sabha meetings. The proceedings and decisions taken during the Gram Sabha should be recorded in the Gram Sabha register by the Panchayat Secretary.
Yes Neeru, correctly said! It should be an agenda item and also the proceedings regarding ATR need to be recorded for its authenticity.
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Selection of an Institution for SAM Neeru, who facilitated the process of SAM in our Panchayat?
Good question Sarla! It comes as second step in our SAM cycle. Our Panchayat passed a resolution in the Gram Sabha for the selection of SAC as an institution to facilitate the process. Here we need to ensure that all members of SAC should be the members of their Panchayat. If the Gram Sabha decides to assign this work to some other institution, this is also possible. Secretary sahab, will you explain us why SAC was selected for SAM in our Panchayat and not any other institution?
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Of course Neeru! SAC was chosen to facilitate the process of SAM only because it was already conducting social audit in Mahatma Gandhi Rural Employment Guarantee Scheme (MNREGS). So it was decided that we do not require to have different committees, as duplication of committees for different purposes creates complication in the Panchayat.
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Capacity Building of the Institution Neeru, are the SAC members trained before starting their work? And what are the responsibilities of SAC members?
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Yes Pradhan Ji, SAC members are trained on various aspects of the SAM process which also includes the facilitation and communication at the ward level, which we know is the lowest level of village unit. Creating awareness among community regarding the process is their first and foremost responsibility.
SAC members are trained to act as the catalysts and community mobilizers in the SAM cycle. They are also trained for collecting data, validation of data, compilation and preparation of report.
You as SAC members have a crucial role to play in SAM, like? As communty mobilisers, ? Collecting relevant data ? Analysis of SAI scores ? Facilitate in preparation of action plan and presentation of ATR
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Collection of Physical Data in the Formats at Ward-level
Who provides training, stationery and formats to SAC members? It is responsibility of the service provider to provide training, stationery, formats etc. to SAC or any other institution to carry out the process of SAM. For example IPH Department provided all facts and figures related to the infrastructural assests for rural water supply in your panchayat.
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Very correct, Engineer sahab, it is the service provider’s duty to provide training to SAC and relevant data and information required for facilitating the process smoothly. For example- information regarding population and tariff paid at ward level was provided by our Gram Panchayat.
12 public taps and 125 household connections have been provided in this panchayat. Recently the old scheme has been augmented by the department.
Sometimes, the water supply is erratic, it needs to be checked regularly.
It’s important, if each of us perform our duties seriously, we can definitely move towards improving the service delivery of water!
No fee is being paid by 34 household connection holders in our panchayat.
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After ward-level meetings and surveys, we calculate the SAI to determine the Performance Index of the service provider on 4 parameters of service deliveryparticipation, reliability, responsiveness and conditions of physical assets.
Receiving community’s responses on 4 parameters
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The formats A, B, C & D are collected by SAC members in a meeting held at ward-level (chosen due to adverse geographical conditions in the mountainous region), where the real problem of the community gets addressed. Therefore, community responses are collected at ward-level over 4 crucial aspects- (A) Participation of community, (B) Reliability of service, (C) Responsiveness of service provider (D) Condition of physical assets.
Format- A
Format- B
Participatory Index
Reliability Index
- Are the villagers consulted at the time of planning the drinking water supply?
- Is the public drinking water tap located at proper distance?
- Do the villagers participate in the construction of the plan?
- Is the quantity of water you get adequate for your daily needs?
- Do the villagers participate in the management of the water supply system?
- Do you get drinking water everyday?
- Is the quality of drinking water checked by the local communities?
- Do you get drinking water in summers? - Do you get drinking water during rainy season?
Format- C
Format- D
Responsiveness Index
Assets Index
- Is the person responsible for releasing the water working properly?
- Is the sector tank in your panchayat or ward properly designed and built?
- Is the pump operator of drinking water working properly?
- Is the sector tank clean and hygienic?
- Do you get solutions to your problems at the SDO level?
- Do the motor and pump work properly?
- Do other workers of your supply system work properly?
- What is the condition of the wiring and fitting for electricity? - Are there taps in good condition?
NOTE: Actual Formats are given in Annexure (Annex No. 2a, 2b, 2c & 2d)
Responses
Good
Average
Bad / To be improved
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Neeru, what is this SAI you mentioned as a step, it’s confusing to me... some calculations?
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Yes Pooja, you are right, it’s nothing but a numerical expression of the service delivery standards. It is calculated as an average score that comes out from the ward for each parameter and then compiled at the Panchayat level. This will be explained in later steps that follow.
Validation of Physical Assets by Social Audit Committee (SAC) at Ward-level Engineer Sahab, can you please explain the physical assets validation by SAC members?
Thanks Neeru! SAC members inspect the physical assets like taps, pipes, storage tanks etc. at ward-level to validate the data and information provided by the service providers. This validation is done on the basis of physical inspection endorsed by the corresponding information in Format- D filled at every ward.
Wow! This seems to be a good way to cross check the information provided by the service provider with villagers’ perceptions at ward level!
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The assessment and validation of data is conducted by the SAC with the help of the concerned service provider, whether it is IPH Department responsible for systems and assets Above Sector Storage Tank (ASST) or the Gram Panchayat that takes care of the assets and systems Below Sector Storage Tank (BSST).
Engineer sahab, this pipe is very old and water is leaking out. We need to take quick action on this as the pipe is rusted too!
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S i r, w e n e e d a replacement of ½ inch diameter pipe for 50m at ward no. 5. That also needs to be mentioned,
Preparation of Social Accountability Index (SAI) at Ward-level Neeru, what are the 4 Performance Indexes, please elaborate...
Of course Ramlal Ji! Following Performance Indexes are needed to be assessed: ? Participatory Index is to find out the score to
determine the level of stakeholders’ involvement in planning, implementation and maintenance of schemes ? Reliability Index is to find out the score to determine the surety of access and availability of water in terms of potability, adequacy, quality and regularity ? Responsiveness Index is to find out the score to determine the answerability of the service providers ? Assets Index is to find out the score to determine the status of the physical assets and infrastructural facilities related to rural water supply
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Compilation of SAI from all wards at Gram Panchayat
Neeru, what happens after preparing the SAI at ward-level?
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The data obtained from 4 Indexes of all wards, is then calculated to get the average SAI of entire Gram Panchayat. This way, the Panchayat also gets a performance score on all parameters based on the ward-level data.
On the basis of four Performance Indexes, the information collected is compiled at Gram Panchayat level which determines the status of rural water supply of entire Gram Panchayat.
Our ward has got the highest score on Participatory Index.
And our ward has got the highest aggregate after calculating all four Indexes.
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Analysis and Interpretation of SAI Scores
But Engineer sahab, what is the need to analyze this data and interpret SAI scores?
As you have already understood, SAI is an accumulative performance score. If we see the minute details of the information and SAI data received at Gram Panchayat level from all the wards, we get a clearer understanding of the problems. This eventually helps in making effective action plans and also enhances the administrative, technical and managementrelated decision-making, taking into account the feedback and concerns from the users.
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Preparing Time-bound Action Plan with specific responsibility for different stakeholders Neeru, what is this time-bound action plan and how are stakeholders involved in it?
Sarla, yes I was about to explain this. There are 3 key stakeholders in the SAM process- field-level functionaries of IPH Department, Panchayat and the community. As per the nature of action to be taken, the responsibilities are allocated among themselves and are categorized as short term, medium term and long term actions.
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Ideally, an Action Plan should be in the form of a format where time-bound, specific responsibilities are divided between the stakeholders. Actions which will be taken-up immediately come in short-term Action Plan. Actions which will be taken-up within three months will belong to medium-term Action Plan and Actions which will take more than 3 months fall in long-term Action Plan. Now I request Engineer sahab to kindly brief us about the format of the Action Plan.
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Let me show you a sample Action Plan! The Action Plan is made in such a way that every stakeholder, including the communities, gets a clear idea of what is to be done, by whom, and how much time is required to accomplish that task. It is important that the Action Plan is signed by the representative of Gram Panchayat, the Chairman of SAC and the representative of the IPH Department. Thus time-bound responsibilities are clear among the stakeholders. We are providing a sample copy of the Action Plan to you. Responsible Stakeholder
Short-term (Immediate)
Medium-term (upto 3 months)
Field-level functionaries of IPH Department
Remarks
ExampleIncrease the capacity of tank
ExampleGram Panchayat Repair of leaking pipes
Community
Long-term (more than 3 months)
ExampleReplacement of defunct taps
ExampleCleaning of Storage Tank
NOTE: Sample of an Action Plan is given in the Annexure (Annex- 3) Improving Service Delivery in Rural Water Supply through Social Accountability
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Providing the Copies of Action Plan to the stakeholders
How are service providers and service users made accountable? And secondly, when will we know what action has been taken?
Thanks Seema, for highlighting this point! SAC provides the copies of Action Plan to the service providers (IPH Department, Gram Panchayat and the ward members). The key stakeholders can decide their own norms/byelaws to hold themselves accountable in a self-regulatory way, for their actions or inactions in light of the action plan in their own Panchayat.
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We need to understand that Action Plan is a very crucial document of SAM as it helps to assess the progress and time-bound accomplishment of the tasks allocated to every stakeholder. The copies of Action Plan helped us to assess the progress and time bound accomplishment of the tasks allocated to stakeholders. Further, in our Panchayat the pipes were changed, the tariff collection started and more interest and zeal was shown by the community to know what score their ward scored in the Panchayat.
Our department has already taken action for repairing the pipes, even the Gram Panchayat has started the tariff collection and community is trying to be watchdog to check the misuse of water! If this is how it works, improvement in service delivery will be visible soon.
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Presentation of Action Taken Report in Gram Sabha, Up Gram Sabha and Gram Panchayat Neeru, when, where and how is the Action Taken Report presented in the Gram Sabha?
Mohanlal Ji, ideally the Action Taken Report shall be presented in the Gram Sabha once in every six months. The presence of all stakeholders and SAC members in the Gram Sabha is very crucial. In the absence of quorum, the Action Taken Report can also be presented at ward-level or Gram Panchayat. And yes, to measure the scale of improvement in service delivery after the actions taken, a SAI may be conducted for the Action Taken Report as well.
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As the Action Taken Report (ATR) is crucial to assess the performance of every stakeholder on the basis of tasks they were entitled to do, it is important that all the service users (community) and service providers (Gram Panchayat and IPH Department) should attend the Gram Sabha and pay attention when the ATR is presented.
Presentation of Action Taken Report in the Gram Sabha
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Repetition of the SAM Cycle in Gram Sabha How many SAM cycles can we have in one year? Is there anything specific we need to know about the time and duration of a SAM cycle.
Ideally we should have 2 SAM cycles in a year, one during summers and another during the winters. If needed, we may undertake an additional SAM cycle on the basis of a special need.
Wow! This initiative is an inspiring example of improving service delivery in rural water supply through SAM. And this is a laudable groundbreaking effort for several reasons...
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Well said Balram Ji! This initiative was unique in several ways. This was the first of its kind endeavor in Himachal Pradesh to improve service delivery in rural water supply through the tool of SAM.
All stakeholders in this process (Gram Pa n c h a ya t r e p r e s e n t a t i v e s, community, Panchayat secretary, IPH Department & ward members) had worked collectively to improve the service delivery in rural water supply.
SAM-related Proceedings, decisions taken and resolutions made during the Gram Sabha were duly recorded in the Gram Sabha register to make it authentic.
As an unique effort, the social accountability was assigned to a single committee i.e. Social Audit Committee (SAC). They conducted social audit for MNREGS and social accountability for rural water supply in our Panchayat.
Another commendable aspect of this process was that instead of Gram Panchayat, the wards were considered the basic unit for survey and validation of physical assets, determining the performance indexes etc. which brought out issues related to water in a participatory and transparent way.
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Dear Panchayat members, always remember that when we use the tool of social accountability for improving the service delivery, three key factors play a vital role. They areParticipation, Transparency and Accountability.
And also, do not forget that Social Accountability Mechanism enables us to improve the service delivery on four key aspects(1) Citizen’s participation in planning, implementation and management (2) Reliability of services (qualitative & quantitative) (3) Responsiveness of service providers and (4) Condition of physical assets
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Content of Annexure
Format for Data on Water Supply Scheme to get information from the IPH Department
Format for Water Supply Scheme
Annex- 1
Questionnaire to assess the participation of stakeholders
FORMAT- A : Participatory Index
Questionnaire: 2a- Participatory Index
Annex- 2
Questionnaire to assess the reliability of service
FORMAT- B : Reliability Index
Questionnaire: 2b- Reliability Index
Annex- 2
Questionnaire to assess the responsiveness of the service providers
FORMAT- C : Responsiveness Index
Questionnaire: 2c- Responsiveness Index
Annex- 2
Questionnaire to assess the condition of the physical assets
FORMAT- D : Assets Index
Questionnaire: 2d- Assets Index
Annex- 2
Annex- 3 Sample of an Action Plan
to be continued...
to be continued...
to be continued...
PRI
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