Guidelines

for
National Rural Drinking Water Quality
Monitoring and Surveillance Programme

Field Test Kit

Rajiv Gandhi National Drinking Water Mission

Department of Drinking Water Supply
Ministry of Rural Development
Government of India
New Delhi
January 2006
 Contents

Item Particulars Page Number

No.
1.0 Background 1
2.0 Objectives 2
3.0 Strategy 2
4.0 Funding 3
5.0 Illustrative list of activities under IEC 4
and HRD
6.0 Cost Norms 5
7.0 Community contribution 6
8.0 Monitoring of the Programme 7
9.0 Reports 7
10.0 Annual Audit 7
Suggested Media & Communication Annex-1
Strategy
ABBREVIATIONS USED IN THE GUIDELINES

WHO World Health Organization

UNICEF United Nations Children’s Education Fund
NRI National Referral Institute
NICD National Institute of Communicable Diseases
SRI State Referral Institute
NRDWQM&SP National Rural Drinking Water Quality Monitoring &
Surveillance Programme
O&M Operation & Maintenance
DDWS Department of Drinking Water Supply
SHG Self Help Group
NGO Non-Governmental Organization
IEC Information, Education & Communication
HRD Human Resource Development
CCDU Communication & Capacity Development Unit
SWSM State Water & Sanitation Mission
DWSM District water & Sanitation Mission
PHED Public Health Engineering Department
VWSC Village Water & Sanitation Committee
GP Gram Panchayat
ARWSP Accelerated Rural Water Supply Programme
PRI Panchayati Raj Institution
TA/DA Traveling Allowance/Daily Allowance
FTK Field Testing Kit
ASHA Accredited Social Health Activist
UT Union Territory
MIS Management Information System
 GUIDELINES FOR THE NATIONAL RURAL DRINKING WATER QUALITY
MONITORING AND SURVEILLANCE PROGRAMME (NRDWQM&SP)

1.0 BACKGROUND

The National Workshop held on 7-9, August 1997 on ‘Water Quality

Monitoring and Surveillance’, jointly organized by Ministry of Rural
Development and Ministry of Health with support from WHO and UNICEF,
had recommended institutionalization of drinking water quality monitoring
and surveillance systems in the country. As drinking water quality
monitoring, and quality surveillance are two distinct but closely related
activities, requiring drinking water quality monitoring by suppliers of the
drinking water and surveillance by the Health authorities, the workshop
had also recommended close collaboration between drinking water supply
agencies and Health authorities all over the country. The enormous task of
drinking water quality monitoring and surveillance in rural areas requires
160 lakh samples to be tested annually with a norm of one sample per 200
population.

In order to institutionalize Water Quality Monitoring and

Surveillance systems four pilot projects were implemented in Nellore
(Andhra Pradesh), Sehore (Madhya Pradesh), Allahabad (Uttar Pradesh)
and Kangra (Himachal Pradesh) based on Catchment Area Approach.
After analyzing the findings of these pilot projects, it has been decided to
scale up the programme all over the country. Accordingly, an
Implementation Manual on National Rural Drinking Water Quality
Monitoring and Surveillance Programme was got prepared through All
India Institute of Hygiene and Public Health, which was circulated to all
State Governments in January 2004.

For implementation of the programme, operational aspects

mentioned in the Implementation Manual on National Rural Water Quality
Monitoring and Surveillance Programme like drinking water quality
standards, epidemiological and health aspects of water quality, sampling
procedures, specifications for laboratory space, equipment, chemicals and
glassware’s for district water quality testing laboratories, role and
responsibilities of SRIs, NRI, etc. will be followed. Since the cost norms
suggested in the Manual are outdated, and in some cases not specified, it
is felt necessary to update the same on realistic basis and share with the
States through these Guidelines. Therefore, for cost norms, these
Guidelines should be referred to for implementation of NRDWQM&SP.

As the infrastructure available in the country for monitoring the

quality of drinking water supply is inadequate it was decided to adopt a
community based approach, involving the available sub-district level

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 infrastructure for drinking water quality, testing e.g. educational, technical
and private sector institutions.

2.0 OBJECTIVES

o Monitoring and surveillance of all drinking water sources in the

country by the community.
o Decentralization of water quality monitoring and surveillance of all
rural drinking water sources in the country.
o Institutionalization of community participation and involvement of
PRIs for water quality monitoring and surveillance
o Generation of awareness among the rural masses about the water
quality issues and the problems related to water borne diseases.
o Building capacity of Panchayats to own the field test kit and take up
full O&M responsibility for water quality monitoring of all drinking
water sources in their respective PRI area.

3.0 STRATEGY

At the National level:

o The Department of Drinking Water Supply (DDWS) to monitor the

entire programme.
o National Drinking Water Quality Coordination Council to advise
DDWS for planning and supervising the implementation of drinking
water quality monitoring and surveillance in the States
o Establishing a well structured information flow between
Government, Technical Institutes, District Laboratories and grass-
root functionaries.
o Identification of National Referral Institute (NRI)
o Training to State level functionaries.

At the State level:

o Identification of State level Referral Institute

o Taking up State and Region specific IEC activities involving PRIs,
Co- operatives, Women Groups, SHGs, NGOs by CCDU/SWSM
o HRD- Training to be imparted to district, block and GP level
functionaries.
o Testing of atleast 10 % of the samples tested which include
positively tested samples by the district water quality testing
laboratories apart from routine cross-verification by the State
laboratory. The State level Laboratories would also be involved in
testing concentrations of rare elements and extend all necessary

2
 help in providing water quality testing reports to the State
Governments during the periods of natural calamity and disasters.
o The district laboratories / PHED are expected to test at least 30 %
of the water samples tested by GPs and compulsorily where
possibility of contamination is reported by the community
(VWSC/GPs).
o The district and State laboratories shall compare the concentration
of contaminants with respect to limits prescribed by Bureau of
Indian Standards in IS-10500.
o Identification / Registration of safe drinking water sources in all rural
habitations (Gram Panchayat wise)
o Sanitary inspections of drinking water sources should be done
atleast once in a year initially, there after as situation demands.
o 100 % testing of all sources at village level by grassroot level
workers from VWSC/GP.

4.0 FUNDING

Under the programme, 100 % funding would be provided for IEC

activities, HRD activities, strengthening of district level laboratories,
procurement of field test kits, travel & transport cost, data reporting cost,
stationery cost, honorarium to district level surveillance coordinators,
water testing, documentation and data entry costs to the States for
strengthening water quality monitoring facilities as per approved norms for
water quality monitoring and surveillance programme and ARWSP
guidelines. The existing personnel (both technical and non-technical) in
several departments like PHE, Health, Rural Development, Panchayati
Raj etc., would be mobilized and involved.

O&M of the field test kits including refilling costs for field test kits,
cost of disinfectants, minor remedial expenses, annuity and mobility,
honorarium to grass root workers, and honorarium to GP level coordinator
will be covered by community contribution.

One field test kit per GP shall be provided. In addition, demo kits
shall also be provided as per the following breakup: - State/SRI -1 no.
District-3 nos. & Block-2 nos.

The funds for implementation of the Programme will be released by

Government of India to the SWSM/PHED/Boards, based on criteria like
number of drinking water sources, number of GPs, Block Panchayats,
districts, total rural population, etc. in respective States.

State Governments then release funds relating to IEC and HRD to

the CCDU. Funds for setting up of new laboratories and strengthening of

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 existing district level laboratories and administrative expenses shall be
released by the States to DWSM/District laboratory.

Fund flow and strategy for procurement of field testing kits may be
decided by the respective State/UT Government.

For meeting recurring costs of field test kits and other expenses,
the community could contribute @ Rs 1 per family per month and deposit
in the VWSC accounts with separate ledger.

5.0 ILLUSTRATIVE LIST OF THE ACTIVITIES UNDER IEC AND HRD

5.1 Training of Members of PRIs / VWSCs / Standing Committee of PRI on

water quality and sanitation

o Water quality issues including health related diseases

o Water quality monitoring
o Sanitation and hygiene

5.2 Training of NGOs district level officers, State level functionaries on

o Social mobilization
o Water quality monitoring and surveillance
o Sanitation and hygiene

5.3 IEC strategy which may include

o Inter-personal communication (door to door contact)

o Audio-visual publicity
o Hoarding and wall writing etc
o Slogans, picture frames, group meetings, street play, participatory
rural appraisal and exhibition may be used as a tools. A
suggested Media and Communication strategy is given at
Annex-1.

5.4 Training of school teachers at village, block, district level, Health

workers, Anganwadi workers for promotion of water quality
monitoring and surveillance

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6.0 COST NORMS

6.1 IEC activities

• As per the weightage of population in the State (total budget = Rs
120 crore for 5 year period)
• IEC activities to be carried out at State, district, block and
Panchayat levels as per requirement.
• IEC activities at village level may include awareness camps for one
day with 25 participants and a cost of Rs.100 per participant is
allowed, as per CCDU guidelines.

6.2 Training
• No. of persons to be trained at State - 2
• No. of persons to be trained at District – 4, Block- 5 & GP –5
• Maximum No. of persons per course at all levels should not
exceed 25.
• Maximum Cost per course: District officials at the State level:
Upto Rs.1,92,500 for 5 days excluding TA/DA (for TA/DA
average Rs.2000 i.e TA-Rs.1500, DA-Rs.100 per day) Block
officials at the District level- Upto Rs.30,000 for 3 days
inclusive of TA/DA and GP functionaries at the block level -
Upto Rs.15,000 for 2 days inclusive of TA/DA.

6.3 Laboratories
• For strengthening – Rs.1.00 lakh per lab (further financial support
to be assessed based on SRI report and NRI recommendation).
• For establishment of new lab – Rs.4.00 lakh per lab as per the
existing norms.
• Till such time the new district level laboratories are set up and
made functional, the DWSM may identify technical institutions like
CSIR labs, Engineering colleges, Polytechnics, +2 level schools,
district health laboratory, etc. for implementation of the
Programme.

6.4 Field test kits

• Unit Cost of field test kit shall be upto Rs.2500 (on FOR
destination basis) for chemical parameters – FTK would be
provided to all GPs on the norm of one kit per GP.
• H2S vials/Strips at a unit cost of Rs.18 will be used for
bacteriological testing – Testing should be done 4 times per year.
• Savings generated from procurement of field-testing kits, if any, can
be utilized for procurement of additional kits.

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 • GP/VWSC to ensure testing the quality of all drinking water
sources in their PRI area including private drinking water
sources.

6.5. Travel and transport at GP level

• Rs.60 per quarter per GP (The average cost of travel by bus is

expected not to cost more than Rs 30 per trip between the village
and the block/district HQ).

6.6 Data reporting at district level laboratory

• No. of sample x Rs.0.70

6.7 Stationery to GPs – Rs.50 per GP per year

6.8 Honorarium to District level surveillance coordinators

• Rs. 1500 per month honorarium for one coordinator per district
preferably an employee from local Health Dept.

6.9 Consultancy fees to NICD (NRI) and SRI

• For NRI - as per MoU agreement.
• State level Training – 2 persons per State – funding as per Key
Resource center guidelines.
• For SRI – Rs 4.8 lakh per year to be paid for technical
consultancy, tours and travel, documentation and stationery.

6.10 Water testing, documentation and data entry fee to district

laboratories

• Rs.90 per sample. It is estimated that 30 % of total water quality

sources in the State may be required for testing.

7.0 COMMUNITY CONTRIBUTION:

It is estimated that a contribution of Rs. 1 per family per month could

meet all the below mentioned expenses.

7.1 Refilling cost at GP – Rs. 500 per kit

7.2 Annual Honorarium to ASHA/ Anganwadi/Science teacher/Health

personnel & other grass root level workers for awareness, testing and
record keeping (5 nos. per GP) – @ Rs 500 per person per annum

7.3 Cost of disinfectants, minor remedial expenses, etc at the GP level -

Rs 1500 per annum per GP

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7.4 Annuity costs – Rs 250 for GP per year

7.5 Honorarium to GP level Coordinator - one person per GP @ Rs. 1200

per annum

8.0 MONITORING OF THE PROGRAMME

• Monitoring through regular field inspections by officers from the

State level and the district levels is essential for the effective
implementation of the programme. DWSM should constitute a team
of experts in the district who should review the implementation in
different blocks frequently. Such review should be held at least
once in a quarter. Similarly the SWSM should conduct review of the
programme in the districts once in 6 months.
• The inspection should be made to check and ensure that the water
quality monitoring and surveillance programme has been done in
accordance with the norms and also whether the community has
been involved in the analysis of water samples using field test kits.
• Inspection should be done to check whether the water quality
information of a Gram Panchayat has been displayed transparently
in Gram Panchayat (by wall painting or special hoarding for which
IEC funds could be utilized)
• In addition, Government of India may also send its Review Missions
to the States to assess the quality of implementation of the
Programme.

9.0 REPORTS

The Reporting mechanism shall be as follows :-.

• The GPs/VWSC should furnish test reports to district laboratory once in
3 months.
• The water quality testing data of the district lab shall be updated in the
online MIS package once the same is installed.
• The State lab shall further update the district level data based upon its
observations. Till the MIS is put in place, the State Governments shall
submit the district-wise water quality monitoring results to this Ministry,
once in every 3 months.

10.0 ANNUAL AUDIT

The district implementing agency should get the accounts audited

annually by a Chartered Accountant and submit the report to the State
Government and Government of India, at the time of release of second or
subsequent installment.

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 Annex – 1

Suggested Media and Communication Strategy

1. MEDIA CAMPAIGN PLANNING AND DEVELOPMENT PROCESS

1.1 Overview

The communication strategy will be used to structure and guide media plan for National
Water Quality Monitoring and Surveillance Programme. A concurrently produced plan
will identify and recommend various components in an integrated communication mix
(such as media outreach, Internet and other types of new media, and partnerships) to
effectively reach, motivate, and enable members of the target audiences to adopt water
quality measures for better health

1.2 Scope of Work

An integrated communication plan at the central level will, act as a platform under which
various states will make the state specific plans for effective dissemination of information
and a change in behavior in the target audience.

The communication strategy statement will clearly define the target audiences for the
campaign, the communication objectives for each target audience (i.e., what we hope to
accomplish through communication), and the most promising message strategies to
affect each objective (i.e., how we plan to communicate).

The media plan will be developed which will act as a blueprint to guide the cost-effective
and maximum reach media action plan. This will specify, for a given level the
recommended media mix (i.e., the proportion of media weight given to TV, radio, print,
outdoor, and Internet advertising) and placement within each medium nationally and
locally to achieve maximum reach and frequency with all target audiences.

1.3 In Sum

These documents will generate a communication campaign that will carry Importance of
safe water in an integrated, strategic, and aggressive manner. The campaign will take
full advantage of the complementary strengths of paid advertising, integrated marketing
communications, strategic alliances to ensure the most effective possible use of the
government's media expenditure.

2. NATIONAL COMMUNICATION STRATEGY.

2.1 Target Audience Defined

2.1.1 Primary audience:

• Women members of the family.

• Head of the household.
 • Primary school children for awareness.
• Youth audience (Approximately ages- 8 to 14 yrs)
• High school-age young adolescents (approximately ages 14-18), focusing
specifically general hygiene practices and importance and methods of water
quality testing in schools for awareness (They are the change agent for future.)

2.1.2.Influencers in the villages

• School teachers
• Anganwadi workers.
• Health department staff including ASHA
• Panchayat president/ members.
• NGOs/ CBOs / Youth clubs
• Local influential people like priest, father of church, etc.

2.1.3 Influencers in the District level / Block level.

• District level implementers (DM/CEO/ Other district agencies.)

• BDO and other implementers.
• NGOs/CBOs/Youth clubs.
• Political people.
• Professors, lecturers, from Universities, Colleges and other reputed research
organization.

2.2 Communication Objectives

Communication Objective 1: “Water is everybody’s business”

Create an awareness regarding it.

Communication Objective 2: Generate the understanding about “Operation and

maintenance cost should be fully bored by community”

Communication objective 3: Questioning the quality of water. (The ill affect of impure
water can be highlighted)

Communication Objective 4: Enhance people’s understanding about pure and safe

drinking water (What is Quality water?)

Communication Objective 5: Change the perceptions of the people regarding safe

drinking water and sanitation. (Increase felt demand of pure water and sanitation)

Communication Objective 6: Enhance personal and social skills of the people

regarding better handling, storage of water.

Communication Objective 7: Enhance skills of the grass-root level workers for testing
water and monitor it periodically to ascertain its quality as well as report it to the concern
authority.
2.3 Strategies

The following three strategies are proposed to guide the creation and implementation of
integrated communication.

Strategy 1: Maximize the delivery of messages through multiple media and

interpersonal channels at different level.

Strategy 2: Region and problem specific communication strategies should be utilized.

Strategy 3: Involve grass root level organization and people in developing area specific
campaign and messages to ensure campaign speaks to/for them (and is accepted).

Strategy 4: Use real members of the target audience to demonstrate behaviors and
consequences (i.e., make the audience the message).

2.4 Communication Channel Analysis.

Very objective of this programme is to bring perceptible behavior change in the target
audience regarding issues related to water quality It varies from generating awareness
among the filed functionaries regarding importance of water quality the necessity for
testing, ill effects due to unhygienic practices of water handling. This behaviour change
should be a sustainable one, which will not die down soon. For this purpose the vehicle
used are the various communication channels. A cost benefit analysis is required before
we introduce various channels in the whole process

1. Interpersonal Communication

It is the most primitive form of communication, which yield maximum results. The
target audience directly interacts and there are very few chances of any
communication gap. The chances of communication barriers are very less. This
media is extensively used in all the programme. The advantage of this channel is,
the message can be communicated to the target audience who are illiterate. For the
above message to be delivered a dedicated team of workers are required who can
deliver the message. The disadvantage to the above channel is, The per person
contact cost is very high along with a series of trainings are required for the staffs to
deliver proper communication messages across the target audience.

2. Mass media- Print.

Mass media print is a cost effective medium to reach a vast number of populace at a
single go. It is a credible medium and the presence of a vast number of vernacular
print mediums the reach increases many fold. The disadvantage with this medium is
a precise message with more visual effects attracts audience attention.

3. Mass media- Wall painting, Hoarding Posters, Banners:

 Mass media of the above type reaches to a large audience very easily. The visibility
of this media is very high. People remember the message. Capital cost on per
person reach of this media is very low. Due to longevity of the message it act as a
reminder media for the audience.

4. Mass Media-Audio visual. (Video van, Branded van)

Mass media Audio Visual is a very good media to reach to a larger audience. Here
with a very precise message the target audience can understand the need of a
behavioral change. The cost of reaching per person is relatively higher. But it is a
recommended media for a large-scale dissemination of message.

5. Traditional media.

In India folklore are very famous and various traditional channels like Street theater,
Puppets show, Story telling, folk dances exists. They have a huge impact on the
target audience. Due to the message in the local language keeping a pace with their
traditional belief systems they are very helpful to change the perception of the target
audience.

2.5 Plan of action

Following is the outline of action plan in the introductory phase. Each of these sections is
elaborated in the following pages.

2.5.1 Introductory phase action plan

I. A National Campaign Launch through Electronic and other print media channel.
II. PR campaign for Secondary audience, political mass etc.
III. State specific strategies to be developed by the respective States.

2.5.2 Other activities in the first Year

I. Special Television Programming. (Talk Show, Other events)

II. Special Internet based campaign for WQ issues.
III. Promotion and Support of School Peer and Youth Mentor Activities.

2.6 Introductory phase of NRDWQMSP

2.6.1 National Campaign Launch

The launch of the National Rural Drinking Water Quality Monitoring and Surveillance
Programme is an unprecedented opportunity to put the issue of Importance of Drinking
Water Quality in Water and Sanitation Sector. Effectively implemented, it will:

• Create a national attention about this issue through news and feature coverage in
media outlets that reach the target audiences.
• Build understanding of and support for the campaign goals among partner groups
and stakeholders.

The campaign launch needs to generate excitement and a sense of something "new" so
that target audience, will take notice. It should be a multifaceted "happening," ideally
coinciding with the rollout of the advertising nationally one month prior to the launch of
the Programme.

This can happen, in part, through unique media partnerships with paid advertising
partners. (For this proposals from various agencies can be asked. As per the Reach of
the media and it’s target audience acceptability, the selection of media can be carried
out)

A month can be dedicated exclusively for broadcasting Water Quality messages through
advertising, entertainment, and information programming on national and local news
papers and magazines, seen by millions. Launch events would introduce the campaign's
graphic symbol, and perhaps slogan to successfully communicate the essence of the
campaign messages to all target audiences

One-page paid advertisements in major newspapers (In national English dallies, Hindi,)
could announce the launch and call for people’s participation in the Catchment Area
Approach. The broadcast and the special WQ Testing kits may be showcased at the
launch event and special media kits may be developed for the reporters.

Representatives from all walks of life like specialists, NGOs, CBOs, media organizations,
could be invited to the launch event. For public private partnership corporate may be
included for the launch of this event.

2.6.2 Other Activities in the first year :

2.6.3 State Specific Action Plan To Be Developed

For proper communication campaign area and problem specific communication

strategies need to be developed. As here we are trying to change the behavior of a
large number of local population, all efforts should be concentrated to generate
awareness of local population. For this States has to identify and start media campaign
as per the suitability of local populace in regional flavor. State Referral Institutes along
with CCDU may provide necessary inputs to SWSM for preparation of State specific IEC
Action Plan.

3. INTEGRATED COMMUNICATION PLAN WITH STATES:

Multiyear communication campaigns like this will be planned most effectively and
implemented in phases, as priorities will shift depending upon program and various
external factors. So the campaign will always undertake planning process that will take
into account:

1. Principles, strategies
2. Undertake midterm Evaluation/feedback from campaign activities in progress
3. Relevant external and internal factors.
A proper institutional set up is very essential for the Programme. The IEC action plan at
various level will vary keeping in mind the overall IEC strategies. The details of
Institutional frame work supporting this programme can be as below :-

4. Recommended Elements in introductory phase communication

strategies:

Sl. Purpose Audience Communication Message

No channel
1. Pre launching 1. General public. 1. AV- Channels 1. Pre publicity
publicity 2. Implementers. and Print media on every week
with in one for four
month of prior to consecutive
launch. weeks.

2. Launching the 1. Political leaders. 1. Audio visual 1. Need of a

programme 2. State officials. channels- programme like
3. Implementing Primarily all NWQMSP.
agencies. News channel 2.Need of safe
3. General public. (NDTV, ZEE, drinking water
4. Target audience. AajTak, DD showing the ill
national) effects of
2. Print media- polluted water.
National Dallies,
Vernacular
media.)
3. Hiring PR
agencies.

3. Highlight the need of 1. Primary target 1. TV / Radio 1. Message as

Safe drinking water. audience and spots. above.
secondary target 2. Training
audience. manual
development on
Water quality
testing and use
of kits.
4. Community 1. Primary audience, 1. Documentary 1. Issue based
participation in safe Influencers. films should be local films in
drinking water. prepared.. regional
2. IPC manuals language.
prepared. 2. Develop a
3. Use of standard
traditional media region/ State
specific script
with NSD.
5. Strengthening of state 1. Implementers. 1. Pin Mailers 1. Need for
laboratories should be sent to strengthening
the individual of labs as per
members. GOI focus.

5. Recommended Elements in Integrated Communication with States:

Sl. Purpose Audience Communication Message

No channel
1. Development of State 1. Implementers 1. Develop a 1. Before
specific Communication starting the
Communication Strategy as per effect in the
Strategies. the requirement state.
and problems of
various states.
2. Arrange
region specific
workshop with
the help of
CCDU and SRI
to finalize the
communication
strategies of the
states.

2. Develop 1.Workers and 1. Mass media, 1. Safe

Interpersonal Implementers. (Flip charts and drinking water
Communication Pamphlets) and its need.
manual, And Training
Manual.

6. CONCLUSION

In conclusion, the Programme encompasses the resources for educating and enabling
local populace to understand and participate actively. This can be accomplished most
effectively through national and integrated communication campaign with states. By
delivering strategic messages through multiple complementary channels, an integrated
communication campaign has the potential to cut through the clutter to shape the beliefs
and behaviors that will influence consumption of safe drinking water.

Each of the diverse elements of this integrated communication plan is made in

accordance with the communication strategy. As these program elements unfold in a
carefully coordinated manner, a productive synergy to shape behavior should emerge in
future.