Ensuring Water and

Sanitation: The SHG way

A Case Study of Keeraplayam Experience

By
Manu Prakash
School Sanitation Consultant

Rajiv Gandhi National Drinking Water Mission

Department of Drinking Water
Ministry of Rural Development
Government of India

May 2005
 Table of Contents

S. No Items Page No
1.0 Background 4
2.0 Methodology 4
3.0 Physical and Social Environment 5
4.0 Achievements of Keerapalayam in watsan sector 6
5.0 Factors-that played important role in the evolution of Keerapalayam as 7
model
5.1 SHG engaged in providing masonry services for toilet construction 11
5.2 SHG engaged in providing plumbing services 12
6.0 Is the SHG model of Keerapalayam sustainable? 13
7.0 Replication Potential 16
8.0 Conclusion 17

Annexure
List of Persons met
Letter on training of masons and pluming SHGs
Proceeding of selection of SHG of Cuddalore
Institutional Structure of Cuddalore for Watsan activity
Details of 25 SHGs of Keerapalayam

2
 Abbreviations and Acronyms

ANM Auxiliary Nurse Midwife

AWW Anganwadi worker
BDO Block Development Officer
CRSP Centrally Sponsored Rural Sanitation Programme
DDWS Department of Drinking Water Supply
DRDA District Rural Development Agency
GoI Government of India
GP Gram Panchayat
HRD Human Resource Development
IEC Information, Education and Communication
IMR Infant Mortality Rate
NGO Non-governmental Organisation
PC Production Centre
PLA Participatory Learning Appraisal
PRI Panchayati Raj Institutions
PLF Panchayat Level Federations
PTA Parent Teachers Association
RGNDWM Rajiv Gandhi National Drinking Water Mission
RSM Rural Sanitary Mart
SHG Self-Help Group
SMC School Management Committee
SGRY Swarnajayanti Grammeen Swarojgar Yozna
SIRD State Institute of Rural Development
TSC Total Sanitation Campaign
TRSP Total Rural Sanitation Campaign
UN United Nations
UNICEF United Nations Children’s Fund

3
 Ensuring Water and Sanitation: The SHG way
A Case Study of Keeraplayam Experience

1. Background

If water is life, sanitation is surely a `way of life’ and access’ to such facilities definitely
has an impact on the quality of human life and health as well as the incidence and the
spread of diseases; needless to mention, the broader human development programme.
The programme of water and sanitation has definitely evolved and moved beyond from
top down to bottom approach focusing on community participation both in planning and
implementation. There have been numerous efforts, which have strengthened this
programme over the years. Some of them quite aptly been highlighted during the Nirmal
Gram Puraskar Ceremony held in February 20051, by His Excellency Dr. A.P.J Abdul
Kalam, President of India who shared his experiences related to sanitation in various
places in India including Keerapalayam, Cuddalore district and Gandhi Nagar Town
Panchayat, Vellore district of Tamil Nadu. He desired that such cases might be
examined with possibilities of replication in other parts of the country.

Department Drinking Water Supply of Ministry of Rural Development, Govt. of India vide
letter No. W-11037/8/2005-CRSP-PT dated Jan 2005 constituted a two member study
team namely Mr. K. Mazumdar, Deputy Advisor and Mr. Manu Prakash, Consultant,
School Sanitation to study the cases of Gandhi Nagar Town Panchayat in Vellore district
and Keerapalayam case in Cuddalore district respectively in Tamil Nadu. The latter
visited said district from 25th April 2005 to 27th April 2005 along with Mr. N. Gopalkrishna,
DRDA, Cuddalore.

2. Methodology

The backdrop of Keerapalayam case unfolds in an unique experiment where women

were mobilized in groups and helped them in acquiring masonry and plumbing skills for
constructing the household toilets and repairing of watsan facilities on an entrepreneurial
basis which not only provided employment opportunities to the involved women but also
enabled the Panchayat area clean, tidy and free from diseases arising out of poor
sanitary conditions. Such cases in water and sanitation sector are rare, therefore,
needed a detailed study for better replication. The case study methodology was adopted
to evaluate using tools of interaction, secondary data review, field visit, etc. The study
focused on following points:
• Keerapalayam’s social environment in terms of its institution, structure, social
status, and other indicators
• Major achievements in view of watsan interventions in Keerapalayam
• Factors that played important role in the evolution of Keerapalayam as model
case in watsan sector and in what form
• Is the model of Keerapalayam model successful? If yes, is it sustainable?
• Can the model be replicated, how?

1
Nirmal Gram Puraskar (NGP), under Total Sanitation Campaign, is an incentive scheme in recognition of the role played
by Panchayati Raj Institutions, organizations and individuals in promotion of rural sanitation.

4
The team directly reached the Cuddalore district and visited two Panchayat Villages i.e.
Keerapalayam Panchayat in Keerapalayam Block and Kanisapakkam in Annagramam
Block. The former was obvious place to visit while the latter was visited to study any
replication in any form and content. The team adopted the strategy of discussions with
the District Magistrate and Project Officer DRDA, NGOs, health and education officers,
SHG groups, PRIs, visit to village, visit to HH, School, Community Complexes, RSM
Units, and de briefing with Project Officials. The list of persons met is enclosed in the
annexure 1. Accordingly, the consolidated report has been prepared and presented
focusing on Keerapalayam Panchayat.

3. Physical and Social Environment

With six Talukas, Cuddalore district, which

was earlier called South Arcot District, has 15
blocks in which three blocks fall in North
Western coast of Tamil Nadu. The district has
total 22,80,530 population out of which
14,43,851 are literates. The district has also
rich agricultural and industrials base providing
employment to both rural and urban
population. On rural sanitation front
Cuddalore district has 3,74,361 households in
which 2,64,885 households do not have
toilets. Under TSC, total 97,000 toilets have
been constructed out of sanctioned 1,58,623
households toilets since Nov 1999.
Keerapalayam Panchayat is an ancient
village of Keerapalayam block near the
heritage city of Chidambaram of Cuddalore
district. Keerapalayam village lies across the bank of Vellar river which is a seasonal
river flowing through the district. Keerapalayam Panchayat has population of 5,347
(3012 men and 2335 women) and most of them belong to Schedule Caste. Almost 90%
of them are literate. The Panchayat has 1160 households (132 APL and 993 BPL) and 2
habitations namely Thirupaninatham and Chettikulam. This is fast developing village
especially in community infrastructure wise. The Panchayat has two primary schools and
one high school with total 897 students along with two Anganwadis. Also, there are a
health sub-centre, Panchayat office, post office, agriculture, banks, Weavers’
Cooperative society, etc.

Keerapalayam Panchayat has witnessed many development interventions both

Governmental and Non- Governmental as well as individual efforts which need to be
underlined that have made this Panchayat a
model not only of district but also of the
entire State because of its pioneering efforts
in the field of sanitation, drinking water
availability and assets maintenance, Self
Help Groups movement, community
participation in development projects, rain
water harvesting, greening up activities and
efforts in the filed of education and health.
But it was the efforts in sanitation that

5
actually distinguished Keerapalayam 2 from other Panchayats when it had got the unique
distinction of being declared as ‘ First Totally Sanitized Village Panchayat in the whole of
Tamil Nadu in September 1998. Since then, Keerapalayam has received many awards.
Recently, it was presented the ‘Best Clean Village Campaign Award’-2003-2004 by
hon’ble Chief Minster of Tamil Nadu. The Panchayat further came into the limelight when
His Excellency, Dr. A.P.J. Kalam, President of India visited Keerapalayam on 8th
Aug 2004 and appreciated the efforts being made especially in water and sanitation
through SHGs.

4. Achievements of Keerapalayam in watsan sector

Achievement has no colour but in Keerapalayam case, it is visible in facts. The practice
of open defecation has been totally arrested in the village. All the 1,160 houses have
constructed their own household toilets and are in full use. One community toilet, which
was constructed to cater to individual households of the village, is now being used by the
persons visiting to the local market. All the schools and Anganwadis have been provided
with water and sanitation facilities. Sanitation of a village did not finish with construction
of toilets in the individual houses, schools and other Government buildings only. For a
village to look clean its streets should be cleaned and there should be a proper disposal
of drainage/sewage in order to ensure cleanliness of the village. This has been ensured
by dovetailing the funds available in the Rural Development schemes like PGSY and
SGRY schemes; the village Panchayat has so far laid Cement Concrete roads across 12
of its village streets. Due to this, village streets look clean and free from village garbage
and slushy.

The Village Panchayat has also

introduced household collection of
garbage within the village. Two separate
garbage bins3 are available in the
households. Household collection of
garbage is separated as degradable and
non-degradable wastes and the villagers
themselves collect this by means of tri-
cycles4. Big garbage pits have been
constructed across various parts of the
village to compost the degradable and
non-degradable wastes and such pits placed both across the National Highways that
passes through this village and also by sides of State Highways roads, which also join
National Highways in this village. The village Panchayat ensured that the highways road
sites, which were earlier, heaped with piles of garbage is now free of any such ugliness.
The village Panchayat has also now started conversion of the degradation of wastes into
compost by using the composting process.

2
Sanitation movement started during CSRP and DANIDA assisted sanitation programmes, which were phased out in
2002 and 2003 respectively. Both were high subsidy programmes. TSC was introduced in 1999 on demand driven
mode and has given new thrust to the sanitation drive.
3
30 such pits have been placed with cost of Rs. 12500-/- per GP
4
Its especially designed try-cycle to carry the garbage with cost of Rs. 12000-/- which has been given to Panchayats
engaged in waste management

6
Even on water supply front, the Keerapalayam Impact of Watsan drive in
Panchayat has shown remarkable progress. In Keerapalayam
1996, Keerapalayam Panchayat had only two
OHTs. The village Panchayat is now a proud No death due to communicable
possessor of 7 OHTs, 108 public taps and 176 disease in last three years
household connections. Safe drinking water is Zero drop out rate in the last three
supplied to the villagers regularly twice a day. years
There are 12 mark-II Hand Pumps and 32 Supply of safe drinking water to all
shallow hand pumps. All the water sources Practice of open defecation
work even during the summers due to eliminated
Clean and green environment
successful installation of rainwater harvesting,
which have ensured that ground water does not
deplete even during the summer season. All the Govt buildings along with religious
structures have been covered with rainwater harvesting schemes. The average water
supply to the villagers is 80 lpcd, which is more than the national average.
Keerapalayam Panchayat has also utilized the government scheme to ensure that all
village ponds are desilted on a regular basis. In Keerapalayam, there are 6 village
ponds, which are the main source of water recharge for bore wells and also the direct
source of water for animals, desiliting has been undertaken fully to receive maximum
rain water. The Panchayat now goes with the vision that not even a single drop of water
should go wasted.

5. Factors-that played important role in the evolution of Keerapalayam as model

Keerapalayam Panchayat has surely moved ahead in ensuring better water and
sanitation services adhering to the principles of community participation. There has been
huge support from community in the water and sanitation programme reflected in the
form of community cash contribution, participation in programme implementation,
monitoring, etc. The participation of women has been commendable; in fact, the real
catalysts have been women who have extended full support in this drive under the
persuasive leadership of Panchayat President Shri K.P. Panneerselvam5. He has been
engaged in creating vision to the villagers to make their village clean and green.

But it’s the dynamic base of Self Help Groups in the Keerapalayam Panchayat that
distinguishes it from other Panchayats, which proved to be the backbone in ensuring
water, and sanitation services. But the issue is how, when, why and in what form these
groups have played such an important role. Is it sustainable? What are the strengths and
weaknesses of these groups? Which are the interventions that have supported these
groups? Can such model be replicated? This is our point of study.

In Keerapalayam Panchayat, there are 25 Self Help Groups in which 9 are Backward
Class groups, 11 are Schedule Caste groups, 1 Schedule Tribe groups and 4 are mixed
groups. There are total 459 members in this groups i.e. 10% of the total population is
mobilized in these groups. All the SHG groups have their bank account in the nearby
bank. They are engaged in many activities like coir rope, coir and puppet making, milk
society, pickles, earthworm manure, herbal medicine production, producing ploythen
power, etc. Most of the groups have 12 to 20 members. The focus has been on

5
Since 1996, played major role in mobilizing funds for watsan activity under DANIDA assistance, TSC,
SGRY and other Govt funds.

7
women especially on married women to ensure sustainable membership within
the group.

These groups have been further organized in a federation called Panchayat level
Federation (PLF) that is again a registered body with maintained bank account, which
was formed in Aug 2001. There 50 members of this body with three elected officer
bearers amongst them namely Secretary, Joint Secretary and Treasurer. From the 25
SHGs, 2 members from each SHG are elected to represent them in PLF who further
participates in the election of these office bearers. The PLF works on subscription as it
charges Rs 25 per SHG per month to facilitate its day-to-day activities. The main work of
the PLF is coordination among SHGs, support in exploring employment opportunities,
etc. Sometimes, it also acts as SHG, for example, in case of Keerapalayam Panchayat,
it has been engaged by DRDA under TSC programme as a SHG for manufacturing rural
pans. The PLF has received Rs 75,000-/- as revolving fund, which in turn has formed an
informal group to manufacture the rural pans in which members are drawn from existing
SHGs of PLF. The PLF works in coordination of GP6 and NGO working in the village.
The another concept of informal group which linked to this model wee which we will
discuss forthcoming paragraphs.

SHG Model of Keerapalayam

Gram Panchayat –
Helps in work, motivation, PLF-50 member, 2 NGOs- support in
organization from each SHG mobilization, training, work

Formal SHGs with bank account- 25 such groups,

12-20 members in each group

Informal SHG-3 such groups, members drawn from others

groups, No thrift and credit activity

Village Community

Govt and WDC support through dovetailed programmes such as SGRY, TSC

The evolution of such federation has been supported by many institutions ranging from
Govt. of India, State Govt., District, Block and Gram Panchayat level functionaries,

6
Keerapalayam Panchayat has 7 committees. Watsan activities are coordinated by Water and Clean
Committee headed by Panchayat President

8
 International agencies such as DNIDA, to local NGOs namely Bless Foundation7. The
role-played by Women Development Corporation, Tamil Nadu is really worth mentioning
whose technical and funding support to Bless Foundation had helped in mobilizing
community members into SHGs. Initially, there only 14 SHGs in 1997-1998 when all
such activity began. Later it developed into 25 vibrant groups who now actively
participate in many other development programmes. These groups are aware to the fact
that continuous work is necessary to eradicate social evils. These groups are now
moving ahead and planned to open a Cooperative Bank for women SHG, Super Market,
Sales Stall, etc. A market Network PRO is their prime aim. The role of State and District
administration cannot be underplayed. The contributions in such cases have been
exceptional not only in only in planning and extending funding support but also in
implementation and monitoring. The role of DRDA has been rewarding especially in
dovetailing the schemes of the SGSY and Total Rural Sanitation, which have
strengthened this movement both in terms of credit and market support. The DRDA
under SGSY scheme has also opened a sale outlet in the name of Rural Bazar at
Cuddalore where the products of these SHGs are marketed and sold.

Such PLF type structure is operational in all the blocks of Cuddalore district. In fact, a
Block level Federation is also proposed (BLF) to organize all the PLFs in the blocks. In
comparison to other Panchayat village visited- Kanisapakkam in Annagramam Block,
which has also shown remarkable progress in water and sanitation especially in solid
waste management, such structure exists. But it’s the presence of watsan-based groups
especially the masonry and plumbing groups that separate Keerapalayam Panchayat
from others. In Keerapalayam Panchayat, there many groups, which are engaged in
providing watsan services not only to Keerapalayam Panchayat but also to other
Panchayats.

Watsan Services based SHGs

SHG engaged in pan manufacturing

SHG engaged waste management SHG engaged in providing masonry

through plastic shredding services for toilet construction

PLF

SHG engaged napkin making SHG engaged in providing plumbing

services for hand pump repair

SHG engaged in drinking SHG engaged paper cup

water testing making

7
Bless Foundation has been selected as RSM for two blocks by DRAD under TSC programmes. There are
4 such RSMs in the district and received Rs. 1 lakh as revolving fund.

9
There are at least seven groups whose activities are water and sanitation related. But
the composition and nature of groupings differ from each other. For instance, SHG
engaged in providing plumbing services for hand pump repair has five women
members and is actually an informal group8 where its members are drawn from
different formal SHG groups of PLF. Same case is with SHG engaged in providing
masonry services for toilet construction, which has 10 women members. No credit
assistance has been extended to them from any scheme. The support they have been
given in the form of training and toolkits by DNIDA (which trained SHG engaged in
providing plumbing services and SHG engaged in providing masonry services through
Bless Foundation in 1998, refer annexure 2). Though, the concept of SHG providing
plumbing services has been scaled up and now every Panchayat has such trained five
member groups. Either Block or GP functionaries arranges the work contracts. But SHG
engaged in providing masonry services is only one in this block and associated with
Bless Foundation, which informs about the potential villages to be covered and also
arranges the raw material to be used in toilet construction. Now, the model is replicated
in other blocks as well; one SHG per block is trained under SGSY.

Similarly, SHG engaged in rural pan manufacturing

is again an informal group having 17 members drawn
from different SHG groups. The training has been
provided on experiences of Mednipur under SGSY and
support of SIRD and Gandhi Gram Rural Institute,
Tamil Nadu has been taken. This group works under
the flagship, as informed, of PLF, which receives
revolving fund of Rs 75,000 from TSC to manufacture
the pans. These pan are sold @ Rs 80 to 90. There is huge demand for rural pans
mostly supplied to TSC programme. The B.D.O of the block has been designated to
purchase such pans and further make arrangement for its proper utilization by RSMs,
SHGs, individuals, etc. A group manufactures almost 60 pans per day and single
member earns around Rs 25000-30000 per year. So far, the DRDA, Cuddalore under
TSC programme9 has selected 13 SHGs for pan manufacturing, which have, by March
2005, manufactured 16,691pans. For proceedings refer annexure 3.

There is one more group engaged in waste management through plastic shredding but
this group is formal group with a bank account. The group having 16 women members
has changed its activity from candy crafting to plastic shredding. For this activity, they
have received Rs 2.5 lakh as credit assistance under
SGSY scheme in Sept 2002 for setting up their unit
that included the machine and work site; they have
already repaid Rs 50,000. But the interesting thing is
the increase in their income, which was very low
earlier. They as group almost shred 23-30 kg plastic
every day collected from villages, scavengers,
household, etc @ Rs 3 per kg and sells @ Rs 12 per
kg to Rural Development Department which use them
for rural road construction under PGSY. Hence, approx. Rs 800 is secured for every
member of the group per month as an income. In this regard the case of Kanisapakkam

8
No thrift and credit activity in such group. Members are still engaged in such activity but in their parent group. Active
work participation is restricted to informal group.
9
In Tamil Nadu, it is called Total Rural Sanitation Programme

10
in Annagramam Block is also worth mentioning,
which has given new dimension to the concept of
solid waste management and its optimal use through
SHGs. For instance, the vermi-composting has
been introduced in the village with help of women
SHG (20 members) with the credit support worth Rs.
2.5 (that includes the subsidy support of 1.5 lakh)
from SGRY. It has been very rewarding business as
animal waste comes free which after being converted
into compost sold @ Rs. 3 per 300gm; almost 10mt
is sold everyday. These are remarkable example how wealth can be generated from
waste by dovetailing various Govt schemes.

The above equally establishes the potential of SHGs in broader development process
providing that enabling and supportive environment exist. But it is also necessary to
understand the internal and external issues in the functioning of SHGs for any potential
application and replication. The two SHG cases i.e. one SHG engaged in providing
plumbing services and other SHG engaged in providing masonry services for toilet
construction, as agreed, has been studied in detail to create a micro understanding of
SHGs especially in relation to water and sanitation services.

5.1 SHG engaged in providing masonry services for toilet construction

This group is very special as it is the

only group in the block, which provides
masonry services. The group was
formed in July 2003; though an informal
group with no regular bank account has
managed to survive with great support
of Bless Foundation, PLF and
Panchayat President. There are 10
women members in the group in which
team leader is Smt. A. Susila. The
average age of group is 33 and average
family size of 3. 40% of the group is illiterate but have an average income of Rs 600-
/- per month. As informed, Bless Foundation at their training center has trained the
group with support of DANIDA. Earlier, they used to work as unskilled worker10 and
get only Rs 40 per day but now they get Rs 80 per day with independent choice of
work. In comparison of working day, which was just 10-15 days now they get 20-25
days work in month. In one working day, they construct 20-toilets per day. When
there is no work in rainy seasons they work as farm workers. So, all through the
years, they are engaged in some employment. The group functions in a unique way.
Bless Foundation informs about the potential village to be covered; they first go the
village, motivate and mobilize the community for toilet construction. A date is fixed.
Bless Foundation (BF), which gets incentive of Rs 50 per toilet construction arranges
the raw material; the group hires a tractor and reaches the village and on the tractor
itself the materials are mixed. The work is divided among the group on rotational
basis. Two members dig the pit, two mixes the raw material, two fix the slab, two

10
Cittal

11
 fixes the pan and two members plaster and clean. The cost of one toilet comes
around Rs 600-650. Govt of India and State gives the incentive of Rs 500 routed
through the same RSM (BF) and rest is secured from community as contribution. So
far, this group has constructed 625 toilet and 600 more temporary toilets in Tsunami
affected areas.

According to Smt. A. Susila, team leader, ‘increase in the incomes have really
increased our saving though mostly used in purchasing of jewelry and children’s
education. The best thing is that our standing in the work place and in family has
increased. Even if the Govt withdraws subsidy support, we will be able to work as
there is visible demand from the APL families too’. They feel more training input on
construction of superstructure know-how would help them a lot. At present, they are
only able to work at the base level.

Strengths and weakness as perceived by the Group

Strengths Weakness
1. Unity due to same village and caste 1. Not skilled in constructing super-
2. Strong leadership structure
3. Participatory environment 2. Lack of office and communication
4. Prompt services facilities
5. Survived without any credit 3. Informal grouping
assistance 4. No long term saving

5.2 SHG engaged in providing plumbing services

This is small informal group of five members, which was

formed in 2003. DANIDA facilitated the training and
trained one member Smt. N. Sudha of the group on
plumbing especially on the repair of the hand pumps.
She trained other members of the group. The average
age of the group is 34 with monthly income of Rs 1000.
All are literate. They are members of different groups of
PLF but desire to increase the income brought them
together. On an average, they get 10 days of work in a
month and earn Rs 325 per hand pump and if there is
minor repair, they get Rs150. They repair almost 2 hand
pumps in a day. This experiment has been scaled up
and now all the Panchayats have such group with same composition. Panchayats
and block get them work. They are also engaged in awareness generation
programme and get paid around Rs 100 per day depending upon the need of work.
Mrs. Sudha, the leader of the group has also been engaged to train women of the
other blocks. So far, she has trained 80 such women. She says,’I feel proud when
the neighboring panchayat presidents come to my house and invite me for repairing
their hand pumps. Whenever breakdowns occur in the hand pumps in my village I
need not go to block office, I myself can rectify it immediately. This training builds in
me the confidence that I can earn some money and provide better education to my
children”.

12
 Strengths and weakness as perceived by the Group

Strengths Weakness
1. Sharing same level of income 1. No permanent income
2. Unity due to same village 2. On site problem –unclear division of
3. Availability of tools work due to nature of work
4. Prompt services 3. Increasing competition from same type
5. Capable of water testing of SHGs
4. Informal grouping
5. Hand pumps are fast replaced by tap
water system- more training on this

6. Is the SHG model of Keerapalayam sustainable?

In broader sense the concept and model of Self Help is surely sustainable and
replicable. There are glaring examples of such movement across the country (Seva,
Anand, etc). But the caution must be taken in view of growing base of defunct SHGs
in the absence of clear vision and purpose, lack of sustained inputs from institutions
and unity in the group, low skill both in production and management, low market
opportunities, misuse or inefficient use of credit assistance, etc. Therefore, the issue
is-what makes the model sustainable? For that, we need to understand the meaning
of the word "sustainability" which is very important in development process. It refers
to the "ability" of something to be "sustained" (carried on) after outside support is
withdrawn. For e.g. for the community that builds a water supply, the repairing,
cleaning and using the pump after it is constructed, is the desire. For an external
donor, it is the continuation of the project or its outputs after the donor withdraws.
For mobilizer, it is the continuation of the community strengthening social process
after you move on. For environmentalists and ecologists, sustainability requires that
an activity can be sustained (e.g. biologically) by the physical environment that non-
renewable resources are not used up.

In the context of watsan programming and SHG model, the issue is sustainability of
whom–the water and sanitation programme which is our focus or the sustainability of
SHG. Is there any difference in the sustainability requirement of these two? If
programme adopts the strategy of SHG to implement some of its programme inputs,
the sustainability of SHG will surely sustain the programme if it phases out.
Therefore, in relation to water and sanitation programme, we need to count those
advantages or best practices and disadvantages, which can have critical impact in
ensuring its sustainability in relation to SHGs involved in providing masonry and
plumbing services and pan manufacturing.

Advantages/best practices
The SHG model adopted in the Keerapalayam Panchayat has worked well so far
largely because of:
1. Strong leadership in the form of Panchayat President who has not only
provided a vision for development but also managed to keep politics out
from the development process.
2. Dedicated community participation in the programme which has improved
the coverage and awareness

13
 3. Presence of functional SHG in diverse activities organized under PLF
which has strengthened their functioning and economic and social
outputs
4. Dovetailing/convergence of different schemes has given a new
dimension to the development process
5. Coordination among DRDA, NGO, GP, other Govt functionaries which
have improved the implementation
6. Focus on women has ensured parity in participation, which has also
improved their status in general.
7. Value addition/ innovations in programme especially in the form of waste
management or Rural Bazar has taken the programme to higher level

Disadvantages
The model adopted has certain weaknesses, which need to be counted for
better understanding:
1. Informal grouping and in the absence of no thrift and credit activity with
no formal bank account may make group defunct if there is no work.
Members may go back to their parent group from where they have been
drawn or take up some other activity.
2. Keeping pace with advancements being in watsan technologies would be
a challenge. Presently, the skill level is not very high which may affect
them in future if not improved.
3. High degree of handholding from Govt/NGOs, which may prove deterrent
when they take independent assignment.
4. No social security in term of insurance or long term saving
5. Lack of inadequate infrastructure such as communication, office, vehicle,
modern tools, etc
6. Low management skills

In cases, we discussed especially in relation to SHGs involved in providing masonry

and plumbing services and pan manufacturing, contents of sustainability are partially
applicable. Presently, there is, for example, huge institutional support in the form of
Govt assistance in terms of credit and training. In fact, we need to examine, how the
support is extended to these group in what forms. This has been depicted below:

Support mechanism for SHGs

SHGs
involved in
providing
Training and toolkit support masonry and Programme and market Support
Skill building in production and plumbing Immediate programme and market
management under SGRY and services and support under SGRY, TSC, IAY
pan
TSC manufacturing

Institutional Support
Organized institutional support in the form of
PLF, NGO, GP, DRDA, WDC, Bilateral
support, etc

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 As above suggests, the support11 can be categorized under institutional, programme
and market support, and training and toolkit support. For example, SHGs group for
pan manufacturing, TSC programme itself generates huge demand. There are 2.64
lakh households, which are without toilets and only 97 thousand households have
been covered since 1999. It means that there is perceived demand for pan for
another 2 to 3 years before the construction of toilet gets saturated. Toilets are also
constructed under IAY, which creates more demand for such pans. Therefore for
this group, there is effective market base to sustain their activities but after 2-3 years
they will surely need to explore new market base independently. Same trends can
be witnessed in case of SHG involved in providing masonry services for toilet
construction that is heavily dependent on NGO and Govt to secure their work
contracts. Given the informal nature of their grouping with no bank account, and in
the absence of improved skill and linkages with free market, the group may become
defunct. The formation of their present groupings itself is the result of mobility from
other groups. This might be repeated in their present group. In comparison to SHG
plumbing services, the case is somewhat different as institutional support works as
facilitator in securing work contracts. But decision to have one group in each
Panchayat has created huge competition and may reduce the no. of working days
which may impact their monthly income. Needless to say, the vision behind such
model has been to increase their income and quality of life, which, if affected, will not
be able to sustain it.

Thus, it means that there are avoidable weaknesses in the model, which, if
corrected, can make them not only sustainable but also replicable. As we discussed,
there are three way-support mechanisms, which make these SHG a viable model
presently which if continued in future can make them sustainable provided that
weaknesses outlined are taken into account. If this is successfully done surely can
be replicated. But the issue is if three way-support mechanisms, as we have
discussed above, is to be continued in the absence of any Govt programme inputs
also addressing the weaknesses, how and with what solutions? Some of them
summarized below:

Institutional support
a) The institution of PLF has worked well which has organized all the SHGs in
the Panchayat. This should be scaled up to the level of Block, District or even
at State level. It must act as an institution, which can safeguard the interest of
SHG. Such institution must also ensure quality services and products if
exposed to the free market norms. This will help SHGs to face competition
effectively.
b) No informal grouping should be allowed. All the groups must have initiated
thrift and credit activity and opened a bank account.
c) Norms of participation should be followed with regular election of team leader
and other functionaries both in SHG and in PLF.
d) Rules adopted should be accepted and adhered by the members groups
e) Govt support should be continued but not to the extent of making them
dependent.

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The support has helped in effective implementation of SGRY and TSC programmes. For example, in
Keerapalayam Block, which has 63 Panchayats, under SGRY 155 schemes were taken up in 2004-2005 and
all are completed. Similarly, in TSC against the target of 4382 household toilets, 2089 toilets have already
been completed in year 2004-2005.

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 Programme and market support
a) New programmes, for example, if Govt is constructing any hospital or
community center, provision of such SHGs groups’ inclusion should be made.
All the watsan maintenance contracts, if suited, may be given to such groups.
b) New markets may be explored. Govt or NGOs can facilitate the process of
linking these groups to local hardware shops, factories, etc.
c) Local urban market can also be explored via Resident Welfare Association,
Schools, Collages, Hospitals, Local Markets, Govt offices, etc for watsan
services and maintenance works.
d) Convergence of programme should be continued but the credit assistance
should be minimized and sustainable work opportunity to increase the income
should be explored. This will strengthen the spirit of independence and
ownership.
e) Support can also be sought from watsan related Corporate Houses to engage
such groups in their activity.

1. Training and other support

a) One time training is not enough; therefore, refresher training should be
organized incorporating upgraded skill know-how.
b) Modern toolkits should be given to them.
c) Group insurance and long term saving facilities should be extended to them.
d) NGOs and PLF itself may be engaged to ensure above.

7. Replication Potential

The word "replication" means a process of deliberate repeating. Since no two

communities are alike and no community is the same at two different points of time,
the notion of replicability becomes an ideal rather than something, which can be
practiced precisely. This is even true for India who is very diverse and complex.
Therefore, any efforts to replicate any model certainly invite some deviation from the
original model. In case of watsan based SHG model of Keerapalayam Panchayat,
various possibilities on sustainability has been discussed. The model has the
potential for substantiality and if it is sustainable, certainly, it is replicable. But
keeping the diversity of Indian States in view, a very precise methodology would be
inappropriate to be outlined, however, certain steps can be taken which can facilitate
the replication of this model:
a) Convergence of Rural Development Programme may be initiated at Govt of India
level especially among SGRY, TSC, and ARWSP. On pilot basis, States may be
asked to select districts to make project focusing on SHG model dovetailing the
programme and funding resource of SGRY, TSC, and ARWSP. Initially 100
districts may be engaged actively as models; later on it can be scaled up.
Programme guidelines for the same may be developed and circulated to States.
A coordination committee can also be set up to see its implementation and
monitor it.
b) In TSC programme, some of the States have focused on SHG model but need to
work in coordination with SGRY programme.
c) Exposure visits may be organized to learn from the Keerapalayam Panchayat
Model.

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 d) There is huge base of SHGs across our country, which needs to be activated,
energized and involved in these programmes. NGOs, bilateral and international
agencies may develop a programme for them on these lines.
e) To ensure supportive platform for SHGs involved in watsan services, public-
private partnership may be activated to ensure regular employment to them

8.Conclusion

The SHG model of case of Keerapalayam certainly has potential to be replicated. A well-
planned programme trusting in the abilities of SHG may help in replicating. The
convergence in the various development programme has shown that the benefits can be
doubled on sustained basis, if implemented in planned way. Increased income, better
empowerment of women, increased coverage of water and sanitation with improved
maintenance, low burden of diseases due to clean and healthy environment and so on
are just few examples that find a concrete facts in the case of Keerapalayam. Such
examples are waiting to become facts in other villages thanks to the efforts of SHGs.
Can this be a case of other States?

Note:
In undertaking this field visit, I received wholehearted support from Shri, G. Bedi
Collector, Cuddalore, Shri, D. Jagannathan, Project officer, DRDA, Shri T. Murugan,
Additional Director, TSC, Panchayat President Shri K.P. Panneerselvam, Keerapalayam,
Officials of the SGRY, EDUCATION, HEALTH, ICDS, TWAD, members of the
Keerapalayam Panchayat, Officials of Bless Foundation, all the members of SHGs,
Teachers and above all the communities of the villages visited. I express my thanks and
deep gratitude to them all. In particular, I wish to put on record my sincere appreciation
for the cooperation and support extended by Shri Mr. N. Gopalkrishna, DRDA,
Cuddalore.

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