Advisory on Public and Community Toilets PDF (November 2018)

ADVISORY ON PUBLIC AND COMMUNITY TOILETS Central Public Health and Environmental Engineering Organisation (CPHEEO) MINISTRY OF HOUSING AND URBAN AFFAIRS www.swachhbharaturban.gov.in November 2018  ADVISORY ON PUBLIC AND...

ADVISORY ON PUBLIC AND COMMUNITY TOILETS Central Public Health and Environmental Engineering Organisation (CPHEEO) MINISTRY OF HOUSING AND URBAN AFFAIRS www.swachhbharaturban.gov.in November 2018  ADVISORY ON PUBLIC AND COMMUNITY TOILETS Central Public Health and Environmental Engineering Organisation (CPHEEO) MINISTRY OF HOUSING AND URBAN AFFAIRS www.swachhbharaturban.gov.in November 2018 ADVISORY ON PUBLIC AND COMMUNITY TOILETS Developed by Ministry of Housing and Urban Affairs, Government of India In technical collaboration with GIZ India Support to National Urban Sanitation Policy – II project Published by Ministry of Housing and Urban Affairs, Government of India Terms of Use Ministry of Housing and Urban Affairs poses no restriction to reproduction of materials. We request Ministry of Housing and Urban Affairs is made reference of and that representatives are informed. In case you wish to change or further develop the materials, please contact the representatives of Ministry of Housing and Urban Affairs. November 2018 Not for Sale Message Hardeep Singh Puri Honourable Minister of State (Independent Charge) Ministry of Housing & Urban Affairs The Ministry of Housing and Urban Affairs (MoHUA), is presently implementing missions like Swachh Bharat Mission (SBM), Atal Mission for Rejuvenation & Urban Transformation (AMRUT), Smart Cities Mission and National Heritage City Development & Augmentation Yojana (HRIDAY). Swachh Bharat Mission is a flagship mission of the Government of India and is committed to achieving total sanitation in the country. It is established that every rupee spent on sanitation has an economic return of 6 to 9 times. Under the Swachh Bharat Mission, Ministry is determined to make cities and towns open defecation free and clean by 2nd October 2019 in partnership with States and ULBs. For helping them in this endeavour, Ministry has prepared several guidelines, advisories and handbooks for effective implementation which can be accessed from the Ministry’s website. I am happy to launch “Advisory on Public and Community Toilets” which is a felt need for planning, implementation, O&M and monitoring & evaluation of public sanitation facilities such as public and community toilets. With this Advisory, ULBs will be in a position not to let public sanitation facilities fall into disuse or dysfunctional. I am thankful to GIZ for their support in developing this Advisory. I am sure ULBs will find this advisory very useful tool in achieving and sustaining ODF status for their cities. ADVISORY ON PUBLIC AND COMMUNITY TOILETS v Preface Durga Shanker Mishra Secretary Ministry of Housing & Urban Affairs The Ministry of Housing and Urban Affairs (MoHUA) is committed to transforming cities to make it a better place to live. Swachh Bharat Mission (SBM), the flagship programme of Government of India with a target to clean India by 2019 on the 150th birth anniversary of Mahatma Gandhi. Given that 12% of country’s urban households defecate in the open as per Census 2011, the provision of clean and well maintained public and community toilet facilities is need of time. Availability of a clean and hygienic toilet even when the person is away from his residence is a basic right of the citizens. Keeping in mind India’s growing urbanization, vast geographical area, prevailing systems and practices, this aim becomes a humongous task for Urban Local Bodies. But even under such constraints, the cities have done exemplary work to attain open defecation free status. Access to Toilet means more than just construction of a toilet block, it encompasses many things including land identification, planning, analysis, right design, operation and maintenance, monitoring, effective systems of governance and vision to improve and excel. With the aim to support and guide ULBs, the present advisory on Public and Community Toilets should be a tool to provide hygienic and healthy toilets to the citizens. This publication deals with various management aspects of Public and Community Toilets which the Ministry hope will make implementation of successful and sustainable projects on the ground easier. I extend my wishes to all Urban Local Bodies for moving towards “Swachh Bharat” and achieving the objectives of SBM (U) in true spirit! ADVISORY ON PUBLIC AND COMMUNITY TOILETS vii ADVISORY ON PUBLIC AND COMMUNITY TOILETS ix x ADVISORY ON PUBLIC AND COMMUNITY TOILETS Table of Contents Abbreviationsxiii Frequently Asked Questions xv Executive Summary xvii 1. Background 1 1.1 Introduction 1 1.2 Existing guidelines 1 1.3 Focus on gender 2 1.4 Structure of advisory 3 2. Planning 4 2.1 Step I: Data collection for Need Identification 4 2.2 Step II: Design 7 2.3 Step III: Cost Estimates 12 2.4 Step IV: Source of funding 14 2.5 Step V: Contracting 15 2.6 Step VI: Operation & Maintenance 19 2.7 Step VII: Monitoring 19 3. Design and Construction 20 3.1 General design considerations 20 3.2 External elements 21 3.3 Access 23 3.4 Facilities 24 3.5 Infrastructure 27 3.6 Internal elements 29 3.7 Ventilation 30 3.8 Lighting 30 3.9 Accessories and provisions 31 3.10 Gender specific mandatory infrastructure 33 3.11 Other planning aspects 33 3.12 Norms / Design Specifications / References 34 4. Operations and Maintenance 37 4.1 Operations related activities 37 4.2 O&M staff & their responsibilities 39 4.3 Gender and differently abled specific considerations 41 4.4 Maintenance of structure 41 4.5 O&M Costs and financing 42 4.6 References for O&M 44 ADVISORY ON PUBLIC AND COMMUNITY TOILETS xi 5. Management & Sustainability 45 5.1 Understanding and planning for risks 45 5.2 User charges 45 5.3 Monitoring and reporting of service levels 46 5.4 Asset management 50 5.5 Occupational health and safety 51 5.6 User awareness creation / IEC 51 5.7 Capacity Building 52 5.8 Ensuring Sustainability 52 Annexures55 1. Gender (especially women) needs checklist for public / community toilets 57 2. Good practices 59 3. Public / Community toilets: User Feedback Format 64 4. Public / Community toilets: Inventory format 65 5. Public toilets location identification / siting 71 6. Land requirements for public / community toilets 72 7. Grouping public and community toilet projects 74 8. Comparison of various types of contracts 75 9. Essential components of Contracts 77 10. Typical O&M service requirements 79 11. Performance standards, time limits and penalties 82 12. Cleanliness Protocol for Public and Community Toilets 84 References89 xii ADVISORY ON PUBLIC AND COMMUNITY TOILETS Abbreviations AMRUT Atal Mission for Rejuvenation and Urban Transformation ATM Automated Teller Machine BIS Bureau of Indian Standards BOT Build-Operate-Transfer CAPEX Capital Expenditure CBO Community-Based Organization CSR Corporate Social Responsibility CPWD Central Public Works Department CPHEEO Central Public Health and Environmental Engineering Organisation CT Community Toilet DBFOT Design Build Finance Operate Transfer DUAC Delhi Urban Art Commission DPR Detailed Project Report EPC Engineering Procurement and Construction GI Galvanized Iron GIS Geographic Information System GOI Government of India GPRS General Pocket Radio Service IEC Information Education and Communication LED Light Emitting Diode MCGM Municipal Corporation of Greater Mumbai MFI Micro Finance Institutions MoHUA Ministry of Housing and Urban Affairs (earlier MoUD) MoUD Ministry of Urban Development (now MoHUA) MTV Mobile Toilet Van MIS Management Information System NBC National Building Code NGO Non Governmental Organisation NUSP National Urban Sanitation Policy O&M Operation and Maintenance OHT Over Head Tank ADVISORY ON PUBLIC AND COMMUNITY TOILETS xiii OMT Operate, Maintain & Transfer OPEX Operating & Maintenance Expenditure PPP Public Private Partnership PT Public Toilet RCC Reinforced Cement Concrete ROMT Rehabilitate-Operate-Maintain-Transfer SBM Swachh Bharat Mission SHG Self Help Group SWM Solid Waste Management TCPO Town and Country Planning Organisation UGD Under Ground Drainage ULB Urban Local Body URDPFI Urban and Regional Development Plans Formulation and Implementation VGF Viability Gap Funding WC Water Closet (flush toilet) xiv ADVISORY ON PUBLIC AND COMMUNITY TOILETS Frequently Asked Questions (FAQs) Q1. What is the fundamental difference between the Community Toilets and Public Toilets? Community toilets (CT) facility is a shared facility provided for a defined group of residents or an entire settlement / community. It is normally located in or near the community area and used by almost community members, whereas public toilets (PT) facility are provided for the floating population / general public in places such as markets, train stations or other public areas and used by mostly undefined users. Q2. How different is the user pattern in these toilets? Pattern of use of a CT slightly differs with that of PT. In CTs, most working men and women members use toilets between 5AM to 10AM. During noon, women use toilets and for washing clothes and usage decreases in the evening and night. In case of PTs, use pattern vary consid- erably depending on the location of such toilets. A PT located at railway station is used almost throughout the day till late evening. Likewise, such toilets located at interstate busy bus termi- nals operate all 24 hours. Whereas a PT located in a park / zoo, operates during the official time of operation of such institutions. Q3. What facilities are crucial for public toilets and community toilets? For a PT / CT facility, availability of adequate water, adequate lighting and proper cleaning are the crucial facilities over and above to the adequate number of WCs, bathing and urinal units. For CT facility area for washing clothes is equally important. Q4. What is the average cost of constructing a toilet seat/ urinal? Average cost of per WC in a PT / CT facility varies considerably depending on local schedule of rates, market rates, specifications, treatment technology for wastes and site condition. However, as per the SBM guidelines, tentative basic cost for PT / CT facility is Rs. 98,000/- per seat and urinal is Rs. 32,000/- per seat, with 40% VGF from GoI, State assistance will be atleast 1/3 of GoI’s assistance. Q5. In BOT model of managing public toilets, when can the break-even be achieved? Break-even point depends on the location of toilet facility and footfall. However, for a PT on BOT basis, break- even point is between 10-15 years typically. Q6. How can the toilets be made suitable to women, differently abled people? It is essential to have separate blocks for men and women. Number of seats /WCs should be as per the prescribed standards. There should be adequate number of enclosed baths. It is recom- ADVISORY ON PUBLIC AND COMMUNITY TOILETS xv  mended that for PT/CTs, there should be a provision for safe disposal of used sanitary napkins for women block. Proper lighting arrangement inside as well as outside the toilet facility is a prerequisite. All PT / CT facilities must have at least one unit for physically challenged person in each block- men and women. Such unit(s) should be located near the entry gate of toilet facility to minimize the travel distance by such persons. Design of such toilet should be as per the standards. Q7. How can the operators for PT/CT, connect to the public for awareness as well as for get- ting feedback on the service provided or for seeking their suggestions? Providing awareness to community should be the integral part of operation and maintenance of CTs. It will increase income of operators in terms of pay for use, in addition to increased aware- ness for health and sanitation to community members. Each PT / CT facility needs to maintain a feedback register placed at the counter of toilets, easily available to users of toilets. Operators of toilet facility should make request to users for providing comments on the kind of service they received in the toilet and any suggestion for improvement. There should be a regular meeting by ULB to review comments received from users and action taken to rectify. Q8. What are the effective ways of monitoring the maintenance of toilet facilities? Regular monitoring of toilet facility lies with the agency responsible for it. Such monitoring should be random but in a week or so. Monitoring should include aspects such as cleanliness, availability of adequate water, status of electric power points, status of minor repairs, major repairs, waste disposal system, behaviour of staff with users of toilets, level of maintenance of building etc. Monthly monitoring should be conducted by the local authority that provided land and financial support for the toilet facility. Apart from physical monitoring of the toilet facility there should be monitoring of feedbacks from the users. There should be one questionnaire containing different aspects of operation and maintenance of toilet facility and users should be requested to evaluate the performance. User feedback machines should be installed in the toilets. User friendly mobile application can also be used for monitoring purpose. Toilet facilities located at crowded sites used throughout the day should have CCTV installed at important points. CCTV will help in security aspects as well as in identification of lapses by the agency in maintenance of the toilet. xvi ADVISORY ON PUBLIC AND COMMUNITY TOILETS Executive Summary Over the past years, the Government of India and few State Governments had published several publications (guidelines, standards, manuals, norms, etc.) on ‘Public and Community Toilets’. The National ‘Advisory on Public and Community Toilets attempts to combine all the relevant information from all such earlier efforts of the Governments in a single document. Salient Features of the Advisory The Advisory attempts to compile all the earlier efforts (Guidelines, Manuals, IS codes,etc.) of the Government in the field of Public Toilets & Community Toilets The Advisory covers all the stages (planning, design & construction, O&M and management) of any toilet project, for ensuring comprehensive planning and sustainability of any infrastructure The Advisory includes relevant sections on gender (women & transgender), differently abled, elderly & children The learnings from Swachh Bharat Mission have also been captured in this advisory Structure of the Advisory The advisory is structured as: Chapter 1 : Background Chapter 2 : Planning Chapter 3 : Design & Construction Chapter 4 : Operation & Maintenance Chapter 5 : Management & Sustainability A brief summary of the key sections (chapters) of the Advisory is presented below : Planning : This section outlines all the key steps required in planning for PT/CTs. The various planning steps detailed in the Advisory are Data collection & analysis for need identification (user feedback formats, inventory formats), Design (Norms for provision of toilets - numbers/ sizing, site selection criteria, Project Report), Cost Estimates, Sources of funding for construction costs & O&M costs, Contracting, O&M and monitoring. Design & Construction : This section outlines the design considerations while planning for new PT/CT facilities. The design consideration covered in the Advisory are External elements (location, visibility, signages, display boards, aesthetic appearance, landscaping, graffiti proofing & security) Toilet access (separate entrances for men & women, toilet entry & visual intrusion) Toilet facilities (toilet cubicles, urinals, bathing area, washing area, waiting area, caretaker’s room & store room) Toilet infrastructure (water supply arrangements, water storage arrangements, plumbing, wastewater management, stormwater drainage, electricity & wiring) Toilet internal elements (walls, roofs, floors, doors & windows) ADVISORY ON PUBLIC AND COMMUNITY TOILETS xvii  Ventilation (natural & mechanical) Lighting (natural, external, internal & emergency) Accessories & Provisions (tissue dispensers, waste bins, hand wash, soap dispensers, hand drying equipment, air fresheners & sanitizers) Gender-specific infrastructure (sanitary pad vending machine, sanitary bins & disposal of sanitary pads) Other planning aspects (material selection, use of colours while painting, concealed spaces, etc.) Operation and Maintenance: This section outlines various components on O&M of PT/CT. The various items covered in the Advisory are Operation related activities (opening & closing, equipments & consumables, cleaning schedules, safety & security) O&M staff and their responsibilities Maintenance of structure (internal, external, minor repairs & major repairs) O&M cost & financing (user fee collection, revenue generation options) Management & Sustainability: This section discusses key aspects related to management of PT/ CT. The key management aspects include monitoring & reporting of service levels (including user satisfaction feedback, cleanliness protocol & performance standards), asset management (including Google maps toilet locator), Occupational Health & Safety, User awareness creation (IEC) and Capacity Building. A summary of relevant sections (related to PT/CTs) from the following references has been produced in chapters related to Design & Construction and O&M. Manual on Sewerage & Sewage Treatment Systems, CPHEEO, MoUD, 2013 Model Building Bye-laws, MoUD, 2006 SP 7 : National Building Code of India, BIS, 2016 Urban and Regional Development Plans Formulation & Implementation Guidelines, MoUD, 2014 Harmonised Guidelines on Norms and Standards for Barrier Free Environment for Persons with Disability and Elderly Persons, MoUD, 2016 Few examples illustrating good practices with respect to Public / Community Toilets in India are compiled in Annexure 2. With all its rich & all-inclusive content, the Advisory attempts to serve as a single resource book for government officials, private consultants & other stakeholders. With this Advisory, the ULBs will be well informed while planning for new infrastructure and also how to take care of existing infrastructure. This advisory attempts to contribute to the achievement of the Swachh Bharat Mission objectives. 1. Background This Chapter sets the context for the advisory. Brief information on earlier documents (guidelines, norms, standards) of the National and State Governments, focus on gender and the structure (outline) of the advisory is presented in this chapter. 1.1 Introduction The Government of India’s (GoI’s) Swachh Bharat Mission (SBM) was announced on Swachh Bharat Mission October 2nd, 2014 with a target of making India Guidelines, 2014 open defecation free by October 2nd, 2019, the Public Toilets are toilets which are provided for 150th birth anniversary of Mahatma Gandhi. the floating population/ general public in places Given that 12% of country’s urban households such as markets, train stations, tourist places, defecate in the open as per Census 2011, the near office complexes, or other public areas where there are considerable number of people provision of clean and well maintained PT / passing by. PTs are to be accessible to one and CT facilities requires immediate and focused all and well-connected to important areas and attention. pedestrian junctions. Swachh Bharat Mission talks about actions Community Toilets are the shared facilities provided by and for a group of residents or an required not only to increase access to entire settlement. CT facilities are used primarily toilets but also to eradicate practices of in low-income and/or informal settlements / open defecation and manual scavenging; slums, where space and/or land are constraints adoption of scientific waste management in providing individual household toilet. These are for a more or less a fixed user group. methods; facilitating appropriate behavioural changes; capacity augmentation; and creating supporting environment for private sector’s involvement. This national advisory on Public and Community Toilets has been prepared in line with these objectives in order to achieve standards of service levels. This advisory will serve as a guide to informed decision-making through the entire project cycle, for developing implementation strategies for planning, designing, operation and maintenance and management of PT / CT facilities and related infrastructure. 1.2 Existing guidelines The Government of India had published ‘Guidelines on Community Toilets’ in 1995. This guideline was the first attempt by the Government of India to capture the subject of Community Toilets in a comprehensive and exclusive manner. This guideline served as an important resource book to implementing agencies on issues related to understanding of user preferences, demand responsive designs, construction and O&M. Few State Governments like Odisha, Andhra Pradesh, Telangana, Punjab, etc. have formulated state level guidelines for CT / PTs to further achievement of SBM objectives. There are also several norms from Bureau of Indian Standards that provide directions to specific aspects related to planning of PT/CTs. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 1  A growing need to follow a systematic and evidence based approach towards toilets management is well articulated in NUSP and SBM guidelines. The use of data management, technology for accurate planning and decision-making at all stages of project planning and management has prompted the need to develop this comprehensive advisory for city planners, engineers, decision makers and operators. 1.3 Focus on gender It is well-known that of the various user groups, women and adolescent girls are the most vulnerable and adversely affected by lack of clean and accessible toilets. Poor location, inappropriate design and inadequate maintenance are the main constraints for women (and adolescent girls) to use PT / CT facilities. Since the sanitation needs of women are significantly different from those of men there is a constant need to move beyond mere provision but, integrate gender needs in the overall institutional arrangements and service delivery processes. Recognizing this, gender has been given due consideration in this advisory. A gender sensitive toilet can be defined as one which is easily accessible for women; has the provision of basic facilities such as water and electricity; is clean and adequately maintained; the design elements ensure privacy and dignity for women; is safe for women to use the facility at all times (with lighting and adequate security provisions in terms of caretakers etc.); and has provision for child care and menstrual hygiene management. Integrating menstrual hygiene needs of women is a key element for ensuring that toilet facilities are gender sensitive. Women can also play a key role in monitoring of service levels and their continued involvement can help in improving service efficiencies and in making O&M agencies more accountable. A gender needs checklist (with special focus on women) that shall be used for planning and managing PT / CT facilities is presented in Annexure 1. 2 ADVISORY ON PUBLIC AND COMMUNITY TOILETS 1.4 Structure of the advisory The advisory is structured as follows: Chapter 1 BACKGROUND Chapter 2 PLANNING Details out the various planning processes for PT / CT facilities Chapter 3 DESIGN & CONSTRUCTION Details different aspects related to designing & constructing new toilets and retrofitting existing ones Chapter 4 OPERATION & MAINTENANCE Details out various activities that need to be carried out to ensure efficient O&M of toilet facilities Chapter 5 MANAGEMENT & SUSTAINABILITY Details key aspects related to management of PT / CT facilities ANNEXURES All Annexures related to above chapters are presented in this section. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 3 2. Planning This Chapter details out the various planning processes for PT / CT facilities. The various planning steps include data collection for need identification, design of toilet facilities, preparing cost estimates, contracting process for construction and O&M planning for sustainable management of PT / CT facilities. It is envisaged that this step-by-step process will help the municipal officials in systematic and robust planning of PT / CT facilities. Traditionally, revenue wards have been considered as the primary unit of planning. Given the diverse locations of PT / CT facilities, it is essential to differentiate micro level planning (focus on toilet facilities, on technical and operational aspects) and macro level planning (focus on city wide planning and management). A step by step process of planning should be followed to comprehensively approach the solutions, minimize risks of failures at every stage and avoid reiterations of the processes. Few good practices in planning and management of PT / CT are presented in Annexure 2 Key steps in planning for Public Toilets / Community Toilets Step I : Data collection for need identification Step II : Design Step III : Cost Estimates Step IV : Source of funding Step V : Contracting Step VI : Operation & Maintenance Step VII : Monitoring 2.1 Step I: Data collection for Need Identification It is important that PT / CT facilities are viewed and understood from two sides - the demand side (user related) and the supply side (infrastructure and institution related). An integrated assessment provides the extent of requirement of toilet service provision. User understanding is essential while creating new toilets as well as improving service levels for existing toilet facilities. Key learning areas include siting appropriate location for toilets; selecting toilets for service improvements; understanding user catchment and usage patterns; improving the infrastructure and facilities in each toilet; cost implications and revenue generation potential among others. 2.1.1 Demand side data For PTs, locations generating continuous visiting by people like tourists’ places, public gathering places, railway stations, bus stands, markets etc. (refer Table 2.1 for details on toilet categories) need to be identified through a spatial analysis. The following key information needs to be collected. 4 ADVISORY ON PUBLIC AND COMMUNITY TOILETS TABLE 2.1: CATEGORIZATION OF PUBLIC TOILETS Typical hours of Typical User Revenue Type of toilet Typical Location Typical users operation charges potential Type 1 Bus stands Tourists, 24 hours Per use High Transit Area Railway stations Locals, revenue toilets Metro stations Travelers Bus stops Fuel stations Taxi / auto stands Roads / walkways / intersections Type 2 Commercial areas Office goers, Minimum 12 Per use or - Shoppers, hours (toilets at free usage Institutional Markets*, Shopping malls Tourists, offices may be (depending Area toilets Education institutions Travelers, open 24 hours on the Hospitals / Healthcare Locals, depending on the location and centers Business operational hours institution) of the institution) Offices Choultries / Dharamshalas Theatres Convention centers Hotels / restaurants Marriage halls City infrastructure** Type 3 Parks Children, 8 to 12 hours Per use Low Public Space Playgrounds Adults, (mostly during revenue toilets Locals, the day) Recreational areas Pilgrims, Parking areas Tourists Religious places Historical places Type 4 Slums Families with 24 hours Per use or Low Community Low income areas children Monthly revenue toilets Pass Type 5 Functions Organizers, 8 hours (or Free usage - Event linked Fairs Visitors, Patrons depending on the toilets duration of the Exhibitions event) Note: * Wholesale markets dealing with vegetables / grains / other commodities / warehouses / truck terminals / cold storage facilities ** Municipal Zone or ward offices / water supply or sewerage infrastructure / SWM infrastructure or transfer stations / ATMs / Open spaces ADVISORY ON PUBLIC AND COMMUNITY TOILETS 5  Number of persons gathering Duration and timing of gathering Gender based differentiation Willingness to pay for toilet usage User preferences on type of toilet, other services For planning of CTs, following data needs to be captured (Refer Annexure 3 for more details of inputs to be captured from user) Number of families staying and potential users Gender and age-wise category of users Daily usage pattern Peak time load Facility utilized / needed (urinal, WC, bathrooms etc.) Waiting time to use the toilet facility User preference for type of toilet, other services 2.1.2 Supply side data The supply side assessment is aimed at mapping the existing infrastructure (location, capacity to handle demand, level of service, etc.) so that the gaps could be identified as well as new infrastructure can be suitably planned. Typical data to be collected are: Location(s) of existing PT/CTs Gender-wise toilet seats (Men / women / children / differently abled / transgender), urinals, baths, Facilities provided (child care room, hand wash, changing room, caretaker provisions, etc.) Level of cleanliness Availability of water, electricity Wastewater disposal mechanism and solid / menstrual waste collection service User charges collected for different uses Measurements and drawings Technical capacity of the ULB Administrative capacity of ULB (manpower supply) Financial capacity of ULB Contract management capacity of ULB A GIS based inventory of existing facilities is best suited for archival, spatial and non-spatial analysis. The asset inventory could be devised using details provided in Annexure 4. 2.1.3 Data analysis Data to be used for planning PT / CT facilities in the city needs to be analysed by integrating the demand and supply database. While demand side input on location would indicate the location where the toilets need to be provided, supply side input provides the number of existing toilets in the vicinity which could be retrofitted to be made more usable. This will enable the 6 ADVISORY ON PUBLIC AND COMMUNITY TOILETS  authorities to identify and site locations for new toilets construction. Another important assessment is the footfall assessment in the vicinity of potential locations. People count undertaken while designing shopping malls, traffic studies will help identifying potential people likely to visit / use the toilet. The assessments also help calculate the number of units required for each type of user as per norms and potential neighbourhood location. This calculation will help arrive at land requirements or conversely based on land available what proportion of users can be provided with services. Alternately, if additional land is available around existing toilets, additional handling capacity can also be worked out through refurbishment. In addition, gaps in number of toilets and services level can be combined at city level to quantify overall city requirement and commitments. These identified gaps would indicate the areas in which the city needs to focus on for better planning and management of the toilet facilities. In addition, the demand side input can also help calculating potential revenue possible from user fees, other revenue sources, cash flows for management of toilet(s). Such assessments are important to evaluate the possibilities of ULB managing the newly created assets or formulate alternative operational models. Annexure 5 provides detailed inputs on decision-making required while siting PT / CT facilities. 2.2 Step II: Design There exists a close relationship between design and management. Innovative design components can not only ensure ease of management but also reduce operation and maintenance costs. Besides catering to the basic need for a toilet facility, design choices should be such that they allow for easy cleaning and management, have high resistance to vandalism, and have low maintenance requirements. Design and material choices need to ensure that the life requirement of the structure can be utilized. The toilet design must allow for universal access and ease of use. The design must adequately address the different sanitation needs of special user groups including, women, children, old, infirm and the differently-abled. 2.2.1 Categorization of Toilets To ease planning efforts by cities, it is important to categorise different types of toilets so that they can be planned & constructed based on the user needs as well as local conditions. Toilets can be categorized on the basis of locations and user types. The toilets have been categorized primarily into 5 types based on the location of the facility in relation to its usage (Table 2.1). The type of infrastructure and facilities provided for each type have also been arrived from various guidelines and presented in Table 2.2. They are categorized as mandatory / recommended / optional based on past sector experience and operational convenience. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 7  8 TABLE 2.2: INFRASTRUCTURE AND FACILITIES REQUIRED IN VARIOUS CATEGORIES OF TOILETS Men Women Trans- Different- gender Waiting Child Caretaker Type of ly abled unit circu- Wash- Hand- Hand- care /storage toilet Indian Western Bath Indian Western Bath unit (refer lating ing area Urinal wash + wash + wash + (refer room WC WC WC WC footnote) space Mirror Mirror changing foot- room note) Type 1 Manda- Manda- Mandatory Manda- Recom- Manda- Manda- Manda- Recom- Recom- Manda- Recom- Manda- Recom- - Transit Area tory tory tory mended tory tory tory mended mended tory mended tory mended toilets Type 2 Manda- Manda- Mandatory Manda- Optional Manda- Manda- Manda- Optional Optional Manda- Option- Manda- Optional - Institutional tory tory tory tory tory tory tory al tory Area toilets Type 3 Recom- Manda- Mandatory Manda- - Recom- Manda- Manda- - - Manda- Option- Manda- Optional - Public Space mended tory tory mend- tory tory tory al tory toilets ed Type 4 Manda- Manda- Optional Manda- Manda- Manda- Manda- Manda- Optional Manda- Recom- Recom- Recom- Recom- Manda- Community tory tory tory tory tory tory tory tory mended mended mended mended tory toilets Type 5 Optional Manda- Mandatory Manda- - Option- Manda- Manda- - Optional Recom- Option- - Optional - Event linked tory tory al tory tory mended al toilets Foot note: 1. Mandatory- Defined as per norms and guidelines already available in CPHEEO Manual / URDPFI Guidelines / IS Codes. 2. Recommended- To be provided based on demand and space availability, but guidelines are not available. 3. Optional- To be provided based on local conditions / demand for such facilities/infrastructure. 4. Blank cells- Facility or service not required. 5. Differently abled unit- Unisex / separate for men or women as per local conditions. Whether to be integrated into the main toilet unit design or separately provided to be decided based on local conditions and space availability. 6. Transgender unit- Subject to local conditions and demand 7. Single toilet units (like E-toilets) are covered under Type 1 & 3 toilets above. Suitable guidelines / norms to be adapted if this is the preferred option over a toilet facility. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 8. Standalone Urinal facilities as an option are covered under Type 1, 2, 3, 5 toilets above. Suitable guidelines / norms to be adapted if this is the preferred option over a toilet facility. 2.2.2 Norms for provision of toilets The norms for the number of WCs, urinals, bathrooms and standard sizes of WCs, bathrooms, urinals and washing area in PT/CT are presented in Table 2.3 to 2.6. The norms are in line with the Guidelines for Swachh Bharat Mission (Urban), 2014. IS 1172:1993 lays down the sanitation requirements in specific urban areas i.e. Railway stations, markets, office buildings, factories, restaurants, etc. These norms are also in line with the ‘Model Building Bye-laws’, 2017, MoUD. TABLE 2.3: NORMS FOR SANITARY FACILITIES IN PUBLIC TOILETS (Source: CPHEEO Manual on Sewerage and Sewage Treatment, MoUD, 2013) NO Sanitary Unit For Male For Female 1. Water Closet One per 100 persons up to 400 persons; Two for 100 persons up to 200 persons; for over 400 add at the rate of one per over 200 add at the rate of one per 100 250 persons or part thereof. persons or part thereof. 2. Ablution Taps One in each W.C. One in each W.C. 3. Urinals One for 50 persons or part thereof. Nil 4. Wash Basins One per W.C. and urinal provided One per W.C. provided Note i) It may be assumed that two-thirds of the number are males and one- third females ii) One water tap with drainage arrangements shall be provided for every 50 persons or part thereof in the vicinity of water closet and urinals. *At least 50% of female WCs may be Indian pan and 50% European WC TABLE 2.4: NORMS FOR COMMUNITY TOILET (Source: Guidelines on Swachh Bharat Mission-Urban, GoI, 2014) Toilet Seats Bath units Urinal units Clothes washing Area One seat for 35 men 4 to 5 sq. meters per 10 toilet seats; One unit per 50 users One unit per 200 – 300 users One seat for 25 women Min. 1.5 m x 1.2 m TABLE 2.5: SIZE OF TOILET CUBICLE, BATHROOM, URINAL & WASHING AREA (Source: Guidelines on Community Toilets, GoI, 1995) Description Optimum (mm) Minimum* (mm) Toilet cubicles 900 x 1200 750 x 900 Bath rooms 1050 x 1200 900 x 1050 Urinals (divided into units by partition walls) 575 x 675 500 x 600 Washing area 1750 x 1500 1200 x 1500 Note: *In case of space constraint the minimum sizes may be adopted. However, it has been observed that the minimum dimensions, which are found acceptable for individual household toilet units, are sometimes not being accepted for community toilet cubicles, be- cause while a user is willing to bear the discomfort in his own premises in exchange of other conveniences, he or she is not willing to use a confined space in a community toilet due to odour and hygiene issues and thus is susceptible to reverting to defecating in the open. In addition to urinals for men, there should be provision of urinals for women also, which can be used by them for low or no charges. In the absence of urinals for women, women use toilets even if they use it just for urination and pay the user fee for usage of toilet which is higher than the user fee for usage of urinals, this means a much higher cost for women for accessing urination places. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 9  TABLE 2.6: SANITATION REQUIREMENTS FOR VARIOUS LOCATION TYPES (Source: IS 1172:1993) 10 Location for PT WC for Men WC for Women Urinal for Men Railway station, bus station and 3 for first 1000 persons and 4 for first 1 000 persons and 4 for every 1000 persons and seaports (Junctions & intermediate 1 for every additional 1000 persons or part stations) 1 for every additional 1000 persons 1 for every additional 1000 persons thereof 4 for first 1000 persons and 6 for first 1000 persons and Railway station, bus station and 5 for first 1000 persons and 1 for every seaports (Terminal stations) 1 for every subsequent 1000 persons or part subsequent 2000 persons or part thereof 1 for every subsequent 1000 persons or thereof part thereof Not less than 2 and Adequate provision of water-closets shall be Fruits and vegetable markets Not less than 2 for every 50 persons an additional one for every 50 persons made 1 for 7 to 20 persons 2 for 21 to 45 persons 3 for 46 to 70 persons Office Buildings 1 for every 25 persons or part thereof 1 for every 15 persons or part thereof 4 for 71 to 100 persons From 101 to 200 persons add at the rate of 3 percent For over 200 persons, add at the rate of 2.5 percent 1 for 1 to 15 persons 1 for 1 to 12 persons 1 for 7 to 20 persons. 2 for 16 to 35 persons 2 for 13 to 25 persons 2 for 21 to 45 persons. Factories 3 for 36 to 65 persons 3 for 26 to 40 persons 3 for 46 to 70 persons. 4 for 66 to 100 persons 4 for 41 to 57 persons 4 for 71 to 100 persons. 1 per 200 persons up to 400 persons; and 1 per 100 persons up to 200 persons, and Art Galleries, Libraries and Museums for over 400 persons, add at the rate of 1 per for over 200 persons, add at the rate of 1 per 1 per 50 persons 250 persons or part thereof 150 persons or part thereof 1 for 50 seats up to 200 seats; and 1 for 50 seats up to 200 seats; and Restaurants for over 200 seats, add at the rate of 1 per 100 for over 200 seats, add at the rate of 1 per 1 per 50 seats ADVISORY ON PUBLIC AND COMMUNITY TOILETS seats or part thereof 100 seats or part thereof  A CT should have all the facilities like bathing cubicle, washing clothes, toilet for children and disposal for used sanitary napkins. While planning for number of seats, in addition to daily average footfall, the ULB should also take into consideration the peak loading factor. Peak loading factor i.e., the number of users using a toilet at peak periods in a day, will have significant impact on the services and hence, toilets need to be designed for peak hour demand (to handle maximum load at a time). For example, PTs around railway stations have continuous all day demand, whereas those using CTs are at specific periods in a day for example, between 6 am to 10 am and 6 pm to 10 pm. The underlying sense for planning is a maximum waiting period of 5-10 mins to avoid queuing outside the facility. (The time 5-10 mins is indicative and based on user perception, as there are no norms or guidelines for the same). CPHEEO / SBM recommends PTs & CTs are required to be located in reasonable vicinity (1 km for PT & 0.5 km for CT) of dependent users. 2.2.3 Site Selection Identification of the project sites is a pre requisite for provision of PT / CT facilities. In case of CTs, undertaking a survey of the area to identify households who can be provided with individual household toilets and the rest (those without space for own toilets) can be served through a CT. In case of PTs, potential areas with daily floating population need to be identified in a town. Such areas may be market places, bus stands, railway stations, court compounds, parks etc. Even in some areas if PTs are available, its adequacy needs to be assessed. For detail assessment for potential new sites Annexure 5 may be referred to. Based on the type of demand, typical toilet unit size, and required facilities toilet projects can be conceived on the following lines: Construction of permanent new toilets / urinals Rehabilitation of an existing toilets (working / defunct) Conversion of a urinal to a toilet Deployment of temporary toilet / urinal The above choices are governed by land availability, site layout and alignment and available finances, etc. Upgradation of existing infrastructure is preferred prior to creation of new infrastructure. Indicative land requirements for toilets is indicated in Annexure 6, for reference. Some of the typical field cases regarding for PT/CT are: There could be site conditions wherein sufficient space is not available. In such cases smaller facilities with fewer units (1 men and women toilet), either urinals / toilet units can be installed. In cases where land alignment is not suitable, modular / prefabricated structures, etc. can be used. In cases where, full-time deployment of manpower is not possible, self-cleaning toilets could be an option. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 11  When land is not available but continuous demand is high or for a limited period, mobile toilet vans (MTV) could be an option. During events and in case of CTs for a temporary period, MTV could be an option. In many cities MTVs are available on daily payment basis. Such toilets are also installed by ULBs for slum areas where adequate space for constructing CTs is not available. Mobile toilet vans (MTV) – are temporary toilets / urinals (5-10 WCs/urinals) mounted on wheels. There is one sludge tank of required volume below the WCs and on chassis of the van. It is equipped with water storage and wash hand facilities. Such MTV is installed at required site. After the sludge tank is filled or is about to fill, it is moved to the site where sludge is disposed. Normally sludge is removed at manhole of nearby sewer network. After removing sludge is it put again at the site. For cleaning purpose, one cleaner is attached with the system with cleaning materials. The system is more suitable for short gathering and functions. An example of: Mobile Toilet Van 2.2.4 Project Report A well-structured Project Report (also called DPR) for planned PT/CT should be prepared with sufficient details to ensure approval, and subsequent project implementation in a timely and efficient manner. The survey information collected forms the basis for preparation of the Project Report. The guidelines on planning, design & construction, O&M and management will be of help in preparing the Project Document. The recommended typical contents of the Project Report for PT / CT is provided in Table 2.7. Table 2.7 TYPICAL CONTENTS OF PROJECT REPORT FOR PT/CT 1. Background 2. Field Data and Analysis (Information which forms the basis / need for the project) 3. Design & Construction (including site maps, Design, Drawings & Bill of Quantities) 4. Cost Estimates (Land, Construction & O&M) 5. Sources of Funding (Financial contribution from various sources, User charges, Cost Recovery, Cross-subsidy) 6. Contracting (Roles & Responsibilities, Contracting type) 7. Operation & Maintenance (Staff requirements, cleaning schedules, consumables, etc.) 8. Monitoring (monitoring and reporting process, roles and responsibilities ) 2.3 Step III: Cost Estimates There are three major costs involved in developing PT / CT facilities – land cost, construction cost and O&M cost. For the benefit of decision makers, typical cost heads for construction works as well as the O&M works have been provided in the Table 2.8 and 2.9. 12 ADVISORY ON PUBLIC AND COMMUNITY TOILETS TABLE 2.8: TYPICAL COST HEADS FOR CONSTRUCTION CONSTRUCTION Item 1. Structural Cost, including associated components Civil – sub-structure elements, super- structure (walls, roof, flooring, plastering & other necessary civil structures) Procurement charges for fibre-reinforced plastic structure / modular / pre-fabricated structures / e-toilet, etc.) Plumbing Labour – civil, plumbing, electrical Bore well, pumping equipment, sump & overhead tank Ramps, hand rails, safety gate, etc. Painting and related aspects Structures above single storey, caretaker/store room if any Sewer connection / Septic tank where sewerage systems do not exist Rain-water harvesting, storm water drainage arrangements Landscaping / horticulture / gardening Monitoring panels 2. Fittings / fixtures Doors – wooden, metal, PVC, incl. associated privacy & safety accessories Sanitary Fittings (water closet / urinals / taps / floor trap / grating / wash basins) Ventilation fittings, including exhaust fans Other accessories (soap tray / liquid soap dispenser / buckets / mugs / waste bins / mirrors / towel rail etc.) Electrical and Lighting fittings Display boards, storage cabinets, racks Solar Panels Inverters / generators (if faced with frequent power outages) Advertisement boards & related accessories incl. electrical connection where required 3. Service Connections Water supply Sewerage Electricity 4. Other items Signage, incl. direction signs, distance markers, sign boards IEC items – wall painting, posters, public messaging, etc. 5. Overheads (upto 10% of above) ADVISORY ON PUBLIC AND COMMUNITY TOILETS 13 TABLE 2.9: TYPICAL COST HEADS FOR O&M OPERATION & MAINTENANCE Item 1. Manpower (monthly) Supervisor Caretaker Cleaner 2. Water charges (monthly) 3. Electricity charges (monthly) 4. Waste disposal / treatment charges (monthly) Sewerage / Septic tank Solid waste Any other (sanitary waste) 5. Consumables / cleaning supplies (monthly) Liquid soaps, phenyl / disinfectant, bleaching powder, dilute acid, cleaning material, floor cleaners, air fresheners, napkins 6. Cleaning equipment (quarterly) Sponges, scraping sheets, brooms, brushes, floor wipers, gum boots, gloves, tools for removing choke, dusters 7. Replacement of accessories (quarterly / half yearly) Buckets / mugs / soap trays / waste bins / uniform / identity card 8. Minor repairs and maintenance 9. Monitoring, telephone/mobile, registers, complaint books 10. Incidentals and other Overheads (~10% of above) 11. Taxes and other statutory compliances Note The above lists of components are recommended for all PT / CT irrespective of the funding support. 2.4 Step IV: Source of funding 2.4.1 Funding for Construction costs ULBs have been predominantly using own funds for creating PT / CT facilities. Presently opportunities have been created for ULBs to access and appropriately use a mix of centrally sponsored schemes (SBM), state government support and own funds. All public and community toilets constructed under SBM must have a minimum 5 year maintenance contract. When multiple toilet projects are combined and funds are found insufficient, cities can explore PPP modes with long concession periods. Some alternative mechanisms for accessing the construction costs may include: Grant subsidies from Government, donor agencies Loans (MFIs / SHG federations / banks) CSR support Levying a separate ULB ‘Cess’ for PTs 14 ADVISORY ON PUBLIC AND COMMUNITY TOILETS 2.4.2 Funding O&M costs O&M costs includes staff costs, cost for electric supply, water supply, sewage disposal; cleaning equipment, consumables supplies and repairs (refer Table 2.9 for details). O&M costs should be generally met completely by user charges wherever possible, a principle advocated by MoHUA generally for all infrastructure projects. The idea is to make toilet operations financially sustainable. Some options for meeting the revenue shortfall could include: Allowing potential advertisement revenue Small-scale vending of toiletry items Subsidies for certain O&M cost heads Reimbursements for repairs from time to time In cases where prefabricated facilities are installed, separate equipment / structure related maintenance costs from toilet operations costs Attaching revenues from commercial areas & other infrastructure towards O&M of toilet facility 2.4.3 Grouping/Clustering Typically, facilities which attract higher footfalls will have a tendency to generate higher revenues from advertisements and vice versa. Hence, ULBs could consider grouping few commercially attractive toilets with toilets having less revenue potential to increase the overall attractiveness of the projects package, thereby making overall services financially feasible and a viable business model. The obvious risk in such an approach is to prevent the operator from maintaining the profitable ones while under-servicing and neglecting the rest. This makes monitoring of service levels across all toilet locations a critical function. Grouping could be attempted based on spatial location, revenue potential, type of projects (new construction / rehabilitation), etc. Other benefits of grouping include fewer project packages to outsource, availability of limited service providers in the city, administrative convenience, etc. Different grouping options of projects prior to commissioning are detailed in Annexure 7. 2.5 Step V: Contracting It is the responsibility of the ULB to provide public sanitation services. Project preparation for PT / CT facilities requires multi-disciplinary skills such as technical, social, financial and contracting. Importantly, a clear hierarchy of staff and responsibilities based on institutional capacities needs to be defined. When such skillset is not available in-house, the ULB is recommended to seek external help from NGOs/CBOs and consultants. A critical aspect of management is the ability to decide the extent of private sector participation and providing supporting business environment to them. The level of engagement of private sector could be for: Providing manpower services for O&M Construction / rehabilitation / retrofitting activities Financially investing into construction ADVISORY ON PUBLIC AND COMMUNITY TOILETS 15  Common issues with PT / CT projects are related to poor quality of construction (poor choice of materials, poor workmanship & poor supervision) and lack of ownership by operator. Often, construction is outsourced to a local contractor and O&M given to a different operator. In such cases, the operator pays minimal attention to routine maintenance and repairs while awaiting ULB involvement. The resultant poor maintenance causes user dissatisfaction and disuse of facilities. ULBs should explore alternative arrangements and choose the most appropriate option that will ensure good quality of construction and proper use of facilities constructed. The possible arrangements emerging are: Single agency handling construction and O&M Construction by CBO / NGO under ULB guidance Construction and operation by operator (operator finds own contractor), with separate contracts / financing arrangements for each activity ULB procures and install pre-fabricated structures to avoid construction related quality issues ULB procure and provide mobile toilets to avoid construction issues This step is critical and should be aligned with the overall project package, operations and business model formulated and financial budgets / outlays available with ULB. The decision will have a bearing on the nature of contractual or concessionaire agreement with operator. The various contracts entered upon reflects the operational plan a particular project is designed for (Annexure 8 provides a comparison various types of contracts) Typical contents of various contract types have been provided in Annexure 9. Sample/Model RFP documents for contracting public / community toilets can be found in the knowledge repository at www.swachhbharaturban.in. 2.5.1 Service contracts (SC) This contract type is applicable when toilet structure is already constructed and requires only O&M services. These contracts are simple outsourcing contracts for manpower services from an operator as against a pre-defined monthly fee and renewed from time to time. The ULB retains the ownership of the facilities and is responsible for investments, repairs and maintenance of the facilities and other cost items outlined in Table 2.9 through its own staff and processes. These are normally applicable to toilets under Type 1 in Table 2.1. The performance parameters are limited to timely availability of staff and if needed rewards are based on a fixed plus variable component (or deduction for lack of performance). The revenue risk of this model lies with the ULB. Normal procurement evaluation will be based on the least cost to the ULB. 16 ADVISORY ON PUBLIC AND COMMUNITY TOILETS 2.5.2 Operate, Maintain & Transfer (OMT) contracts This contract type is applicable when toilet structure is already constructed and requires only O&M services. The contracts are usually shorter in term and related to the life of the asset. The ownership remains with ULB, however the revenue risks and rewards are borne by the contractor. The ability to charge for services or revenue augmentation possibilities is available with operators. Generally, repairs and maintenance works are borne by the operator irrespective of quality of construction, as agreed in the contract. The period of contract can be a single time step (3 to 5 years) or can be innovated to extension based on performance (3 years plus extendable annually based on performance). Since revenue generation option is available with operator as a support, normal procurement evaluation will be based on the highest premium paid to ULB OR the least subsidy sought from the ULB. In cases where projects are packaged as a group, high footfall toilets could be evaluated on highest premium and low footfall toilets on the least subsidy. Under such differentiated procurement, the ULB can cross-subsidize earnings from one package to the expenditure to be incurred in other packages. 2.5.3 Rehabilitate, Operate, Maintain & Transfer (ROMT) contracts This contract type is applicable when toilet structure is available and is in need for rehabilitation / retrofitting prior to O&M services. Rehabilitation can be defined as making improvements to the toilet without dismantling the structural frame while reorganising internal spaces. Investments on the asset rehabilitation / retrofitting are borne by the private operator. With a proper rehabilitation plan, rehabilitation process can be carried out parallel to toilet operations without completely shutting down the toilet. The selection of contractor for rehabilitation can be done by operator or ULB and is mutually agreed upon. The idea is to make operator responsible for quality of work and consequently the repairs and maintenance. Operator is also responsible for repairs, maintenance works, re-investments and daily operations. Contracts are generally medium term allowing operator to recover the investment (rehabilitation cost and O&M cost). The period of contract can be a single time frame of min. 5 to 10 years or based on performance (3 or 5 years, extendable annually based on performance). The contract period should be worked out for each project site. In case toilets are clustered/grouped, a combined financial viability needs to be organized and a common contract period should be arrived at. At the end of the term, the contract is reviewed and extended or the facilities are handed over to the owner/government. Since revenue generation option is available with operator, normal procurement evaluation will be based on the highest premium paid to ULB OR the least subsidy sought from the ULB OR overall contract period. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 17  In cases where projects are packaged as a group, toilets having similar rehabilitation costs can be grouped along with high footfall toilets and could be evaluated on highest premium and vice versa. Under such differentiated procurement, the ULB has to be clear on the quantity of rehabilitation upfront prior to selection of operator. In some cases, the ULB undertakes rehabilitation on its own and hands the asset / group of assets and follows an O&M contract process. This could be time consuming and depending on the number of assets, could also lead to closure of toilets during rehabilitation. 2.5.4 Build, Operate & Transfer (BOT) contracts This contract type is applicable when a new toilet structure is to be constructed and ULB hands over the land to the operator prior to construction and O&M services. Investments on the asset construction is completely borne by the private operator. The model is based on the designs provided by ULB and operator finances, constructs and operates accordingly, in which case it is called a BOT. Sometimes instead of construction, installation of a pre-fabricated toilet could be an option. Alternately, the operator could be asked to design the toilet within a standard framework, monitored and technically advised by ULB, in which case it is called DBFOT contract. Operator is also responsible for repairs, maintenance works, re-investments and daily operations. These are generally long term contracts to allow the operator to recover the investment for both Construction cost and O&M cost. The period of contract can be a single time step (>10 years) followed by performance based extensions. The contract period has to be individually worked out for each project site (before aggregation, if required) and heavily dependent on the cost of construction and footfall. At the end of their term, the contract is reviewed and extended or the facilities are handed over to the government. Other aspects are similar to a ROMT contract. 2.5.5 Contracts for installation of pre-fabricated toilets (MC-Maintenance contracts) This contract type is applicable when a new toilet structure is to be installed (coin operated or normal toilets or mobile toilets) prior to operations and maintenance services. Given that construction is a time consuming process, ULBs sometimes procure prefabricated systems and install them with minimal construction (normally for leveling, connections, etc.). When specifications are clearly defined, the engagement is a goods procurement contract / goods plus services contract. Depending on the pre-fabricated type (material / technology / style), a maintenance contract is separately entered with product vendor independently by ULB or operator depending on who procures products on pre-defined specifications. Maintenance can be for civil, mechanical, electrical parts of the toilet. In case of mobile toilets, maintenance of the complete structure is outsourced. The ULB will enter into a separate operations contract (SC / OMT) with a separate operator. 18 ADVISORY ON PUBLIC AND COMMUNITY TOILETS  This type of arrangement is slightly risky if ULB does not have a dedicated management team, since liability of poor service is dependent on 2 different contracted entities and co- ordination is a difficult process. 2.5.6 Contracting for community toilets This contract is similar to all above contracts, except the end user being a defined community of a smaller footfall, could be interested in taking up some responsibilities. Instead of a private agency, the community themselves (SHG / NGO / CBO on their behalf) could choose to take up O&M activities. This ensures there is a feeling of belonging and services are fairly accessed across various economic backgrounds. Sometimes, personnel from the community or identified by the responsible group for this service could be used to provide cleaning services, similar to a service contract. Where multiple such toilets are there, a framework arrangement is also possible. The costs for O&M could be borne by the user community (monthly household passes / pay by use) and additionally subsidized by ULB, where required. Linking to a PT closest to the community, normally within 0.5 km distance can also be explored. 2.6 Step VI: Operation & Maintenance Operations and maintenance of PT / CT is one of the weaker areas of management and is often evident from user surveys / complaints from users. Poor O&M results in reduced usage and often people resort to open defecation and urination. Based on the toilet category, it is important to frame an appropriate O&M plan for the project. This would include detailing on toilet operation hours, cleaning cycles, equipment and consumables required, appropriate staffing (caretakers / cleaners), attending to repairs (minor and major), user charge collection, monitoring and complaint redressal, awareness creation, etc. These subjects are presented in detail in Chapter 4. Annexure 10 provides typical O&M service requirements and Annexure 11 indicative performance standards and penalties. 2.7 Step VII: Monitoring In outsourced arrangements, the ULB is free from managing day to day operations, but the role shifts to being supervisory in nature. In the absence of strict supervision and monitoring by ULB, the operator is normally under no to pressure as per pre-agreed performance parameters outlined in the contract. Simple and effective complaints reporting mechanism can provide good feedback to ULB and cause it act against the contractor to remedy the situation. The monitoring mechanism could be devised both from self-reporting and inspection perspectives. Annexure 12 provides information on Cleanliness Protocol for PT/CT which ULBs can use. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 19 3. Design and Construction Design and Construction of PT / CT facilities must take consideration of diverse sanitation needs of different users. It is crucial that designs, technology and material choices support sustainable O&M practices, subsequently increased usage and better achievement of health and environmental benefits. This chapter discusses different aspects related to designing and constructing new toilets. 3.1 General design considerations Public and Community Toilets should provide clean, safe, accessible, convenient, and hygienic facilities to the public at a level of privacy adequate to perform necessary personal sanitary functions. This section outlines the design considerations while planning new PT / CT facilities. The key design considerations are accessibility, external structure, internal design, infrastructure, facilities and accessories. While all aspects need to be mandatorily designed for, their relative importance is governed by local conditions and user preferences. 3.1.1 Gender considerations As women and girls face greater problems in use of toilets, their needs require more weightage for sanitation improvements. Two key considerations controlling toilet usage are size of the toilet facility (i.e. number of seats) and its location. Aspects like safety and privacy are central to toilet design. 3.1.2 Location considerations Location is of utmost importance in ensuring that toilet facilities are accessible and maximizes opportunities for utilization. PT / CT facilities should be located within reasonable walking distance of the ‘activity generating’ areas (refer Table 2.1 for categories of type of public toilets) as indicated in SBM. ULBs should ensure that all the users of the Community Toilets should have access to the Community Toilet within 500 m from their settlement / habitation and all commercial areas should have public toilets within a distance of 1 km. 3.1.3 Number of toilet facilities / units Depending upon the magnitude of footfall and its type, it is to be decided whether a single toilet facility in a particular location or multiple toilet facilities in nearby locations meets the needs of user catchment as per norms. Land availability also effects this An example of: E-toilet close to catchment (@ bus stand) decision. 20 ADVISORY ON PUBLIC AND COMMUNITY TOILETS 3.1.4 Soil The nature of the soil often influences the structure foundation and stability. Toilets constructed on marshy / land filled areas / sandy soils often require suitable foundation (National Building Code, Govt. of India). Soil characteristics also influences the design of water sumps, plumbing connections to water supply and sewerage. 3.1.5 Water table While ground water table level does not have much bearing on the external design consideration, it is an important consideration for treatment / disposal of waste-water generated in toilets. In water logged areas, plinth levels should be sufficiently raised to prevent entry of water into closets. 3.1.6 Terrain and topography The topography of the region impacts the construction of the toilets as access is to be provided from multiple sides. In conjunction with soil and water table levels, services planning will require detailed attention and design. If on-plot / non-networked solutions are used, the designs become more complicated and often increase structure costs. For ex. location of certain sites below the road level or sewer invert level would pose an issue with regards to water drainage. 3.2 External Elements Accessibility is a key attribute for ensuring that toilet facilities are used by all. Accessibility is defined in terms of location and visibility of the toilet facility (signage to guide users to locate toilets location). 3.2.1 Location and visibility PT facilities should be located close to heavy footfall generating areas for the convenience of women, children, aged and differently abled. Toilet facilities should not be located close to places deemed unsafe for women like liquor shops, areas without street lighting or walking access, etc. Whereas locations for CTs shall be such it can be accessed with a reasonable walking distance with women in mind. Adequate consideration should be given to providing a clearly defined, accessible and safe pedestrian path to the toilet facility, including ramps. The path must be well lit to ensure that the user’s personal safety is not compromised, particularly for women and adolescent girls. The toilet facilities must be located in places that it is highly visible from a distance. To improve visibility of the An example of: Highly visible entrance facility, some options include: ADVISORY ON PUBLIC AND COMMUNITY TOILETS 21  Locate near walkways, footpaths, vehicle parking lots, roads and bustling streets with the entrance door facing the busiest areas and visible from most angles. Bright facades must be used to enhance visibility. Ensure that the surrounding vegetation (shrubs or trees) do not cover the toilet facility. As far as possible follow uniform colour codes and standard nomenclature for easy recognition. 3.2.2 Signage and display boards Appropriate direction signs ensure that users are aware of the location of the toilet facilities and distance to access them. Signage close to / front of toilet could also indicate type of facilities (including toilets for women, differently abled, child care room, etc.) available in the facility. Common locations for display of direction signs are main junctions, busy areas and road margins. The signage must use suitably sized fonts in dark colours against a contrasting light colour background so that it can be easily seen. Legible universal signage of a man, woman and person in a wheelchair should be used at the entrance and passage ways. Reflecting material shall be used to make signs visible at night. Within the toilet facility premises display boards indicating the type of facilities available telephone numbers of maintenance agency, helpline numbers, user charges, toilet operation timings, responsible ULB staff details must be put up. These should be preferably located next to light source and the text used shall be in red colour on light yellow or green background for night visibility. Other types of messaging like proper use of toilets, health benefits can also be displayed within the facilities. 3.2.3 Aesthetic appearance The external façade of the toilet facility should be aesthetic and pleasing to the eye. The local art, cultural and heritage elements should be incorporated, wherever possible. This is likely to increase acceptance among users. The walls of the PT / CT facilities can be used for advertisements. Alternately, displaying public awareness messages on safe sanitation and hygiene practices using visuals and images, works best. An example of: Toilet with aesthetic advertisements An example of: Health related messaging on toilet wall 3.2.4 Landscaping / Horticulture / Gardening Where possible to locate, small potted plants or landscaping can be designed in front of the toilets. Excess water from cleaning or overflows can be suitably directed towards the plants. 22 ADVISORY ON PUBLIC AND COMMUNITY TOILETS  External landscaping can also be used to deter parking of vehicles near the toilet (auto / taxi stands), high pedestrian movement, high vehicular movement, etc. that causes discomfort or safety hazard for toilet users. Potted plants inside the toilets contribute to ambience. 3.2.5 Graffiti proofing The external walls shall be so designed to avoid minimize opportunity for graffiti and sticking of posters. 3.2.6 Security and restricted access During periods of toilet closure, entry and exit doors, windows should be securely locked. Deadbolts and locks help prevent access to any toilet infrastructure inside the toilet and consequently chance of vandalism. It is import to design toilets which do not offer unregulated access for the caretaker / cleaner from his usual place of operation. In single storied buildings, the critical access to the roof should be curtailed and should only be accessible through ladders under the control of the caretaker. Access shall be restricted to all areas not intended for public occupancy or not used by fixtures. 3.3 Access 3.3.1 Separate sections for men and women The toilet facilities must have separate entrances for men and women which lead them to their respective sections of the facility. This design component is essential to ensure privacy and safety for women. The design must also include a waiting area for women where they can queue up in case the WCs / bathing areas are occupied. It is preferred to create access so that men avoid crossing the women section of toilet. 3.3.2 Toilet entry and visual intrusion The entrance to the toilet facility must be designed such that it allows easy access for people. Design and layout of the toilet facility should consider needs of women, small children, aged, infirm and differently abled. Simple design elements to increase accessibility are ramps, lower elevation and plinth heights, height of steps, etc. The entry, passages and cubicles to PT / CT facilities shall be so considered and designed to allow entry and exit without making physical contact with surface like walls, doors or people. Occupants in waiting areas shall not have visual access to those inside the toilet. Toilets, cubicle, mirrors etc. are generally planned to view away from the line of sight of the main entrance. ADVISORY ON PUBLIC AND COMMUNITY TOILETS 23 3.4 Facilities The internal design considerations are the most crucial for ensuring acceptability and usage. The designs shall consider diverse sanitation needs of different user groups (women, children, aged and infirm, differently abled and transgender persons) without compromising safety and privacy at all times. 3.4.1 Toilet cubicles The number of units for WCs / urinals / showers provided in a facility would depend upon the location, number of users and land availability. (Refer Section 2.2.1 for norms for PT / CT facilities). Appropriate mix of Indian and western closets should be provided and of suitable dimension. An example of: Well Designed Toilet unit Indian toilet closet pans should be of standard design and made of ceramic or an equivalent material allowed by standards. 20mm traps with water seal should be used, which require only 2 litres of water to flush excreta (CPHEEO 2013). Traps of over 50 mm with water seals must be avoided to avoid loss of water during flushing. All western toilets should preferably be wall hung and fitted with manual or automatic flushing device. The fixture should be concealed to deter vandalism. Toilets should be fitted with An example of: Prefabricated western toilet variant drum roll toilet paper dispensers adjacent to the water tap. Hooks (double hooks) at convenient height should be affixed behind toilet doors. When space allows a platform or foldable shelf could be installed in the toilet for putting personal items. Doors and cubicle partitions should be tightly fitted so as to avoid gaps and openings. Wherever possible, all such cubicle partitions should extend to within 5 cm (2 inches) from the floor. Partitions between cubicles should extend to at least 2134 mm (7 feet) above the floor level. An ablution tap coupled with hose and a spring-loaded nozzle should be installed in all toilets. Floor trap should be provided within the toilet where it is fitted with an ablution tap, bucket and mug. The flooring of WC cubicles should be properly graded towards the floor trap so as to keep the floor as dry as possible. Where possible, customized squatting pans requires to be planned for children, preferably in the women’s section of the toilet facility. Half height door help mother to open the door from outside and additional door fixtures at half the height of the normal doors, should be planned for. This would also help access for certain differently abled users. 24 ADVISORY ON PUBLIC AND COMMUNITY TOILETS 3.4.2 Toilets for differently abled and special needs While working out the number of units, one of the units shall be designed for differently abled (with all facilities to cover different types and degrees of disability) men or women in their respective blocks. Harmonised Guidelines on Norms and Standards for Barrier Free Environment for Persons with Disability and Elderly Persons, 2016, GoI clearly advice the norms and specifications of different toilet elements to be provided. For example to support people using wheel chairs, addition