Performance Audit on Cleanliness and Sanitation in Long Distance Trains in Indian Railways, Ministry of Railways

A performance audit of cleanliness and sanitation in long distance trains, covering 2018-19 to 2022-23. It examines budget and expenditure, external washing at coaching depots, en-route and on-board cleaning, quick watering arrangements, bio-toilets and mechanised laundries, with joint inspections and a survey of 2,426 on-board passengers. It follows an earlier audit reported in 2013.

Audit period: 1 Apr 2018 — 31 Mar 2023
Presented: 30 Mar 2025

Findings

Complaints about coach cleanliness rose 229 per cent — from 69,950 in 2019-20 to 2,42,431 in 2022-23 — after the Rail Madad complaint app was introduced in July 2018.
“Mobile Application for Desired Assistance During travel (Rail Madad) was implemented in July 2018. Gradual increase in awareness among passengers led to surge in complaints since implementation of Rail Madad. The complaints related to coach cleanliness increased by 229 per cent during 2022-23 (2,42,431) as compared to the year 2019-20 (69,950).”Executive Summary
In joint inspection of 24 automatic coach washing plants, eight — 33 per cent — were not working because of breakdown or repairs; 1,32,060 coaches had to be washed under manual contract instead, at ₹2.58 crore.
“Due to infrastructural constraints, washing of 1,32,060 coaches was done externally through the Mechanised Coach Cleaning Contract after incurring expenditure of ₹2.58 crore. During joint inspection of 24 ACWPs with the Railway Officials, it was observed that eight (33 per cent) ACWPs were not in operation due to breakdown or repair works.”Executive Summary
The Clean Train Stations scheme could not deliver its intended benefits because the administration did not enforce contract conditions or deploy the resources needed to clean within the 10 to 15 minute halt.
“The Clean Train Stations (CTS) scheme was introduced for mechanised cleaning of sensitive areas of the coaches such as bio-toilets, doorway areas and vestibules during the halt of trains at en-route stations. The intended benefits, however, could not be fully derived due to failure of the Railway Administration in enforcing contract conditions by deploying required resources to ensure cleanliness and sanitation within the stipulated 10-15 minutes halt time at Clean Train Stations.”Executive Summary
In joint inspections of 29 clean train stations across 12 zones, cleaning of toilets and other areas was limited, machines were used less than required and manpower fell short, with shortfalls in official inspections contributing.
“During joint inspections in 29 CTS across 12 zones, audit observed limited cleaning of toilets and other areas, shortfall in usage of machines and deployment of manpower. The shortfall in inspections by the nominated railway officials was one of the factors contributing to the deficiencies such as deployment of less manpower and machinery.”Executive Summary
₹9.62 crore of penalties was recovered from on-board housekeeping contractors in a test check of 73 contracts across 32 coaching depots, for shortfalls in manpower and machinery and for not using the specified cleaning agents.
“A test check of 73 contracts related to OBHS services of the selected 32 Coaching Depots in 16 zones revealed that penalty of ₹9.62 crore was recovered from the contractors on account of deficiencies such as shortfall of manpower and machinery, non utilisation of specified cleaning agents, etc.”Executive Summary
Quick watering arrangements were in operation at 81 of 109 identified stations as of March 2023, with delays of two to four years at the other 28.
“Audit observed that out of the 109 stations identified for making provision for QWA, facilities for quick watering were in operation at 81 stations (74 per cent) as on 31 March 2023. At 28 stations across nine zones, there was delay in setting up of QWA ranging from two to four years as of March 2023 for reasons such as fund constraints, slow progress of work by contractor, shelving/shifting of work, etc.”Executive Summary
1,00,280 complaints about no water in coach toilets and wash basins were reported in 2022-23, and in 33,937 of them — 33.84 per cent — the fix took longer than the expected timeline.
“A total of 1,00,280 complaints regarding non-availability of water in toilets and wash-basins in the coaches were reported over IR during 2022-23. In 33,937 cases (33.84 per cent) the time taken for addressing the issue exceeded the expected timeline.”Executive Summary
Monitoring did not stop contractors manipulating the attendance system, and the audit also found discrepancies in police verification and shortfalls in scheduled inspections.
“The existing monitoring and internal control mechanism could not prevent manipulations in the attendance system by the contractual agencies, discrepancies in conducting police verification, shortfall in conducting the scheduled inspections and constraints of water availability.”Executive Summary
In a survey of 2,426 passengers on 96 trains, dissatisfaction with bio-toilets was 50 per cent or more in five zones and below 10 per cent in two; 89 per cent of toilet-cleaning complaints were addressed within the stipulated time.
“A detailed survey was conducted in respect of 2,426 on-board passengers in 96 selected trains. It was observed that the position of bio-toilets is better in AC coaches compared to that in non-AC coaches. The percentage of dissatisfaction amongst the surveyed passengers was higher (50 per cent and above) in five zones and lower (below 10 per cent) in two zones. Significant number of complaints (89 per cent) related to cleaning of toilets in trains were addressed within the stipulated time.”Executive Summary
The audit records good practice too — the laundry at Kankaria depot on Western Railway ran economically and cleanly, using a high-efficiency thermic fluid heater, closed-loop hot oil circulation and water recycling through effluent treatment.
“During the joint inspection, Audit observed that BOOT Laundry at Kankaria Depot of WR had been operating in an economical, effective and environment friendly manner. The laundry adopted certain best practices such as high efficiency thermic fluid heater, closed loop circulation of hot oil for efficient drying of linen at the ironers and recycling of water after washing of linen in Effluent Treatment Plants.”Executive Summary

Fact-checks citing this report

Lacks contextRailways: We have made all efforts to make the experience of rail journey safe, smooth, clean and satisfying and have achieved great results. We will continue the pace of work in this regard.

Performance Audit on Cleanliness and Sanitation in Long Distance Trains in Indian Railways, Ministry of Railways

Findings

Complaints about coach cleanliness rose 229 per cent — from 69,950 in 2019-20 to 2,42,431 in 2022-23 — after the Rail Madad complaint app was introduced in July 2018.

“Mobile Application for Desired Assistance During travel (Rail Madad) was implemented in July 2018. Gradual increase in awareness among passengers led to surge in complaints since implementation of Rail Madad. The complaints related to coach cleanliness increased by 229 per cent during 2022-23 (2,42,431) as compared to the year 2019-20 (69,950).”Executive Summary

In joint inspection of 24 automatic coach washing plants, eight — 33 per cent — were not working because of breakdown or repairs; 1,32,060 coaches had to be washed under manual contract instead, at ₹2.58 crore.

“Due to infrastructural constraints, washing of 1,32,060 coaches was done externally through the Mechanised Coach Cleaning Contract after incurring expenditure of ₹2.58 crore. During joint inspection of 24 ACWPs with the Railway Officials, it was observed that eight (33 per cent) ACWPs were not in operation due to breakdown or repair works.”Executive Summary

The Clean Train Stations scheme could not deliver its intended benefits because the administration did not enforce contract conditions or deploy the resources needed to clean within the 10 to 15 minute halt.

“The Clean Train Stations (CTS) scheme was introduced for mechanised cleaning of sensitive areas of the coaches such as bio-toilets, doorway areas and vestibules during the halt of trains at en-route stations. The intended benefits, however, could not be fully derived due to failure of the Railway Administration in enforcing contract conditions by deploying required resources to ensure cleanliness and sanitation within the stipulated 10-15 minutes halt time at Clean Train Stations.”Executive Summary

In joint inspections of 29 clean train stations across 12 zones, cleaning of toilets and other areas was limited, machines were used less than required and manpower fell short, with shortfalls in official inspections contributing.

“During joint inspections in 29 CTS across 12 zones, audit observed limited cleaning of toilets and other areas, shortfall in usage of machines and deployment of manpower. The shortfall in inspections by the nominated railway officials was one of the factors contributing to the deficiencies such as deployment of less manpower and machinery.”Executive Summary

₹9.62 crore of penalties was recovered from on-board housekeeping contractors in a test check of 73 contracts across 32 coaching depots, for shortfalls in manpower and machinery and for not using the specified cleaning agents.

“A test check of 73 contracts related to OBHS services of the selected 32 Coaching Depots in 16 zones revealed that penalty of ₹9.62 crore was recovered from the contractors on account of deficiencies such as shortfall of manpower and machinery, non utilisation of specified cleaning agents, etc.”Executive Summary

Quick watering arrangements were in operation at 81 of 109 identified stations as of March 2023, with delays of two to four years at the other 28.

“Audit observed that out of the 109 stations identified for making provision for QWA, facilities for quick watering were in operation at 81 stations (74 per cent) as on 31 March 2023. At 28 stations across nine zones, there was delay in setting up of QWA ranging from two to four years as of March 2023 for reasons such as fund constraints, slow progress of work by contractor, shelving/shifting of work, etc.”Executive Summary

1,00,280 complaints about no water in coach toilets and wash basins were reported in 2022-23, and in 33,937 of them — 33.84 per cent — the fix took longer than the expected timeline.

“A total of 1,00,280 complaints regarding non-availability of water in toilets and wash-basins in the coaches were reported over IR during 2022-23. In 33,937 cases (33.84 per cent) the time taken for addressing the issue exceeded the expected timeline.”Executive Summary

Monitoring did not stop contractors manipulating the attendance system, and the audit also found discrepancies in police verification and shortfalls in scheduled inspections.

“The existing monitoring and internal control mechanism could not prevent manipulations in the attendance system by the contractual agencies, discrepancies in conducting police verification, shortfall in conducting the scheduled inspections and constraints of water availability.”Executive Summary

In a survey of 2,426 passengers on 96 trains, dissatisfaction with bio-toilets was 50 per cent or more in five zones and below 10 per cent in two; 89 per cent of toilet-cleaning complaints were addressed within the stipulated time.

“A detailed survey was conducted in respect of 2,426 on-board passengers in 96 selected trains. It was observed that the position of bio-toilets is better in AC coaches compared to that in non-AC coaches. The percentage of dissatisfaction amongst the surveyed passengers was higher (50 per cent and above) in five zones and lower (below 10 per cent) in two zones. Significant number of complaints (89 per cent) related to cleaning of toilets in trains were addressed within the stipulated time.”Executive Summary

The audit records good practice too — the laundry at Kankaria depot on Western Railway ran economically and cleanly, using a high-efficiency thermic fluid heater, closed-loop hot oil circulation and water recycling through effluent treatment.

“During the joint inspection, Audit observed that BOOT Laundry at Kankaria Depot of WR had been operating in an economical, effective and environment friendly manner. The laundry adopted certain best practices such as high efficiency thermic fluid heater, closed loop circulation of hot oil for efficient drying of linen at the ironers and recycling of water after washing of linen in Effluent Treatment Plants.”Executive Summary