An average can hide a great deal. According to the 2011 Census, 70.6 per cent of urban households in India had access to piped water [1]; but only around 62 per cent of those used treated piped water [2]; and almost 13 per cent of urban households continued to practice open defecation [3]. Such statistics give a comforting impression of progress at the national level. But they tell us nothing about where such progress is lacking. This policy approach views such deficiencies as shortages in pipes, toilets, and wastewater facilities. In this blog post, I will try to demonstrate why such framing is inadequate. It becomes clear from research that in addition to the physical deficiency, there exists an institutional issue as well. Municipalities differ widely in terms of the things they can do in a legal sense, the amount of resources available for spending, and even in the availability of personnel to manage constructed infrastructure. Such inequality is just inequality of capabilities at the household level.