Innovative approaches in Service delivery and Poverty

Reduction-APUSP experience-Original presentation has been modified for Internet use.

Somesh Kumar, IAS

Project Co-ordinator, APUSP

APUSP : An Overview

• An Innovative Reform Project

• A partnership between DFID, Govt. of U.K and Dept. of MA&UD, Govt. of Andhra Pradesh.

• Aims to build lasting municipal reforms.

• Major service improvements for the poor in the town.

• Part of state government’s drive towards poverty reduction.

• Introduces concept of challenge fund

Why is APUSP needed ?

• Increased pace of urbanization.

• Growth of class 1 towns: • 20 in 1981• 35 in 1991• 45 in 2001

• About 75% of urban population (15.4 m) live in class 1 towns in 2001.

• Inadequate civic services to meet demands.

• Widespread and growing urban poverty

• Limited local government capacity to plan and respond to challenges.

Project Goal and Funding

• Sustained reduction in vulnerability and poverty of Urban Poor in Andhra Pradesh

• Poor in Class I towns benefit from improved access to more appropriate and sustainable services

• Rs 745 Crores (£ 94m) grant fund from DFID. Overall project Rs. 1407 Crores

• 7 years duration

• Covers about 2.2 m poor (1991 Census) in 32 Class - I towns

Salient Features

• A process oriented project

• Reforms and improved municipal performance

• Primacy for participatory approaches

• Encouraging community initiatives

• Preparation of Comprehensive Municipal Action Plan for Poverty reduction (CMAPP)

• Capacity building of municipalities and CBOs to articulate needs of poor

• Performance based fund releases

APUSP : What is new?

• Priorities identified by the poor

• Town wide approach to poverty reduction

• Demand driven

• Emphasis on reforms and system improvement for sustainability and O&M

• Strengthening of CBOs and CSOs

• Design builds on lessons learned from Slum Improvement Projects (SIPs)

Three Complementary Components

Reforms leading to improved Municipal

Performance (C1)

Rs.120Crores

Funding forenvironmentalservices for the

Poor (C2) Rs. 525 Crores

Strengthening

Of CSOs

(C3)

Rs 100 Crores

C1 : Municipal Reforms

• Specific Reform Areas• Revenue Improvement

• Streamlining tax structure

• Better asset management

• Expenditure control

• Updating accounts / audit

• Institutional Development• Human Resource Development

• Improved systems and methods

• Management Information Systems

• Improved municipal responsiveness

• Service delivery improvements• Participatory planning• Community participation in decision making• Civil Society, CBOs and NGOs

participation

C2 : Environmental Infrastructure

• Water Supply• Storm Water Drains• Roads• Solid Waste Management• Street Lighting• Sanitation• Funding Pattern

• In poor settlements (65%) : on-site

• Upto 35% linked infrastructure : off-site

C3 : Strengthening Civil Society

• Better understanding of the needs of the poor• Create channels to influence municipal decision making• Give voice to people’s priorities• Build advocacy for improved services• Stimulate local willingness and

capacity• Stimulate poverty targeted

initiatives from CSOs.• Plan and implement community-

based projects• Participatory Poverty Assessments

(PPAs)• Participatory Micro Level Planning

(PMLP)

• CMAPP (Comprehensive Municipal Action Plan for Poverty Reduction)

• Poverty Focus and Targeting

•Poor Settlement Matrix

•Urban Poverty Cell

•Convergence of Anti Poverty Programme

•Poverty profiling and data

• Participatory Processes

•CMAPP prepared through participatory process

•Stakeholders involvement – committee, working groups and especially the poor and marginalised

•Participatory Micro level Planning at settlement level

• Strengthening of Municipalities / Corporation

•34 MIPOs

•33 MAFAs

•130 Community Organisers

•Project supports towns

•Call down consultants in 9 disciplines for towns

•Project Level Consultancy Support

Innovative Features of APUSP

• Major innovation

• Participatory process

• High involvement of stakeholders particularly poor and women

• Ownership of towns

• Engagement of chairpersons/mayors/councilors, MPs, MLAs and others

• Recognized as a ‘best practice’ under Good Governance Campaign

Comprehensive Municipal Action Plan for Poverty Reduction

(CMAPP)

Item Basic MAPP CMAPP

Reforms Simple Complex

Components C1 and C2 C1, C2 and C3

Convergence Weak High

Process New Established

Document Bulky Sleek and usable

Innovation MatrixMoU, Reforms indicators, MCR

Ownership of town

Low High

Evolution of CMAPP

• 1st Cycle – 32 towns• CMAPP builds over Basic MAPP• Further Strengthened over Basic MAPP

Basic MAPP

• Prepared for all 32 towns

• High Consensus

• High Involvement

• Town Vision

• Reforms and infrastructure development

• High Participation of political leaders – Ministers, MPs, MLAs, Chairpersons, Mayors and Councilors

Proddatur Vision Statement Proddatur is a Major Town in the Cuddapah District and main business centre in the Rayalseema Region. It needs means of self employment, training in developmental skills, facilities for good health and education. The Town requires Integrated New Drainage System and all the main channels lined and all the sub lanes be properly linked, developed with good and wide roads, foot paths, free of encroachments and needs drinking water for every part of town. People should be enlightened about all the aspects of development schemes, their participation in development activities and in Municipal Administration for its transparency, strong and good cooperative governance.

Matrix

• Matrix prepared based on poverty and infrastructure

deficiency

• Poverty Criteria

• BPL Population

• SC/ST Population

• Infrastructure Deficiency Criteria:

• Water supply

• Roads

• Drains

• Poor settlements in the town ranked in the Matrix

• Street lighting

• Sanitation

• Flooding

Project Management Structure

Committees and Working Groups

• Involvement of various stakeholders in CMAPP

• Institutionalisation of participatory processes

• Constitution of committees and groups• Municipal reforms committee (MRC)

• Municipal task force (MTF)

• Working group 1 (WG1)

• Working group 2 (WG2)

• Working group 3 (WG3)

• Active involvement of committees and groups in preparation as well as implementation of CMAPP

MRC and MTF

MRC• Policy and strategic support for CMAPP

• Preparation of CMAPP

• Monitoring of APUSP

• Constitution• Mayor/Chairperson as head

• Ward members and others as members

• Not exceeding 15 members

MTF Carry out day to day activities Support various committees in

preparation of CMAPP Monitoring of APUSP Constitution :

• Commissioner as head• Heads of sections as members• Work under guidance of MRC

Working Groups 1, 2 and 3

WG1

• To prepare proposals for

Municipal Performance

Improvement

• Monitor reforms

• Members : Mayor /

Chairperson, Ward

Members, Technical &

Finance Officials, Town

Knowledgeable and

others. (15 Members)

WG2

• Ranking all notified

slums in the town and

then to prioritise poor

settlements.

• Monitor C2 works

• Ward members,

officials, CDS,

representatives, town

knowledgeables and

others. (15 Members)

WG3

• Prepare social development

plan under CMAPP

• Review and monitor

implementation, develop pro

poor orientation in Municipal

decision making etc.,

• Mayor / chairperson, MLAs,

ward members, CDS

president, NHC conveners,

Private sector representatives

officials (15 members).

CMAPP – Key Features

• Each town prepare action plan called Comprehensive Municipal Action Plan

(CMAPP)

• Incorporates Challenge Fund Concept I.e. no automatic entitlement to Project

funds and performance based funding

• Ownership of programmes by the ULBs including C3

• Integration of C3 with C 1 and C2 and management with APUSP

• Participatory Micro-Level Planning covering non-infrastructure needs of poor

CMAPP

• Medium term rolling plan for three years – detailed for the first cycle and indicative for subsequent cycles

• Integrated with the annual budget from 2005-06

• Active role for regional officers - RDMA, SE- PH, RD-TP in the Project

• First cycle of CMAPP during 2003-04 covers only notified slums as

per matrix

• Coverage of non-notified slums from next cycle

• Guidelines for inclusion of non-notified slums cleared and piloted

• Convergence of 3 components and other schemes, programmes etc.

Components of CMAPP

Three components of CMAPP are:

• Municipal Reforms Action Plan (MRAP)

• Municipal Infrastructure Action Plan

(MIAP)

• Social Development Action Plan (SDAP)

• Baseline data collection• MPC in Basic MAPP• MRC, MTF, WG – I, II & III

• Training to Municipal and Community Teams• HHS survey, Data entry, Data validation &• corrections, Generation of reports

• CMAPP orientation • Group discussions• Annucmt. of MRC, MTF, WGs• Orientation on PMLP

• PMLP in selected poor settlements • Preparation of line estimates• Preparation of Action Plans on Health, Edun.,Livelihood, SHGs, Vulnerability

• Preparation of C1 (reforms), C2 (infrastructure), C3 (SDAP) proposals though WG – I, II and III

• Finalization of C1, C2, C3 proposals by MRC with the Participation of members of working groups & others

• Preparation of Document as a cooperative effort of Municipal staff • Consultation with Commissioner / CP etc.• Documentation preparation through MTF

• Field appraisal in C1, C2, C3• Necessary corrections• Council approval• EC approval

• Preparation of Sub project reports• Memorandum of Understanding(MoU)• Approval and release of funds

HOUSE HOLD

SURVEY

PREPARATORY STAGE

PARTICIPATORY MICROPLANNIN

G PROCESS

CMAPP ORIENTATIO

N

PREPARATION

OF C1,C2,C3 PROPOSALS

CONSULTATIVE

WORKSHOP

APPRAISAL AND

COUNCIL APPROVAL

PREPARATION OF DRAFT DOCUMENT

MOUIMPLEMENTATION & RELEASE OF

FUNDS

startnexr cycle

CMAPP Cycle

CMAPP Process

Preparatory Steps

MAPP Review

Orientation and Review Workshop Poverty Survey PMLP

Reform Proposals

Infrastructure Proposals

Social Development

Proposals

Stake holder's Consultative Workshop

Draft ReportField Appraisal

Revised Draft Report

Council Approval

E.C. Endorsement

MOU Implementation

Next Cycle

MPC

Minimum Performance Criteria

• Eligibility for CMAPP initiation• Achievement of 70% of target revenue increase in

simple RIAP• Initiated 3 simple IDAP initiatives and demonstrate

measurable positive outcomes• 40% of physical progress of combined C2 on-site and

off-site to quality standards• Work orders issued for 70% of on-site and off-site

works• One self procured C1 equipment package

commissioned and operational

Serial No.

Stage No. of Towns

1 Approved 19

2 Appraised 7

3 Weak Towns 6

Salient features

• Advance planning

• Data collection

• Parallel processing

• 4 multi disciplinary teams

CMAPP Progress

Component

Proposals

Amount APUSP Town Others

C1 504 40.05 20.78 17.43 1.84

C2 426 116.11 107.07 8.33 0.71

C3 853 83.62 19.86 6.80 56.96

Total 1783 239.78 147.71 32.56 59.51

Rs. in Crores

CMAPP Break up : 23 Towns

• All 32 Basic MAPPs prepared

• Expenditure (in Rs. Crore)

C1 47.60

C2 87.07

C3 2.78

Total 137.45

Basic MAPP : Progress

Project Management

• New institutional structure finalised• Engagement of Resource persons in 9 disciplines

for towns• 34 MIPOs placement and training• 33 MAFA’s engagement in project towns• Imprest created at APUFIDC to save time• Involving Regional Officers (RDMAs, SEPHs,

RDDTPs)• Online empanelment of consultants for towns

C1 : Progress

• Monthly performance review meetings on status of C1,C2 & C3 on the first Monday every month.

• Status of APUSP as the first item of agenda in Council meetings

• 3305 municipal staff trained on various issues

• 173 years of Annual Accounts completed during the Basic MAPP period

• 38 years of Audit done completed during the Basic MAPP period

C1 : Progress

• Reform Indicators- online system• Reform Sequencing Matrix- finalised• MOU with the Municipalities on Reforms• Notification of Non-notified Poor settlements

Guidelines and piloted• Urban Planning Guidelines• Grading based on reforms from now onwards

Perspective Plans

• Revenue improvement action plan

• Systems improvement plan

• Financial operating plan

• Social development action plan

• Critical infrastructure investment plan

• Operation and maintenance plan

• General town plan

• Livelihood promotion action plan

• Capacity building plan

• Communication strategy

C2 : Progress

INDICATORS AS ON JAN 2003 AT PRESENT

NO. AMOUNT NO. AMOUNT

EC Approved 1198 123.75 1253 128.75

Technical sanctions 887 83.07 1236 120.21

Works completed 107 6.49 944 73.62

Works under progress at advanced stage

387 19.21 248 39.36

UCs submitted 4 towns 2.20 31 towns

66.57

Tender stage 393 57.37 23 5.68

Amount Released to Towns

31 towns

19.99 31 87.07

Rs. in Crores

Infrastructure Provided- Basic MAPP

Roads and Drains 674 KMs Rs.96.38 crores

Water Supply 270 KMs Rs.28.15 crores

Others Street lighting and Solid

waste management

Rs.6.37 crores

Total Rs.130.90 crores

7 lakh population benefitted from 454 poor settlements

C2 : Progress

• Regular monitoring at project level and weekly reporting by municipalities through E-Mail

• PMIS operationalised, refined and grading of towns done• O&M guidelines issued• APUSP Eng.Teams visiting 100% of works• Analysis of 3rd party QA Reports at project• 86 % of UC’s received against releases• Guidelines in use

• Procurement of equipment• Packaging of works• Photography ( before & after interventions)• O & M Plan

C3 : Progress

• C3 brought to the project fold with new thinking• Institutional support

• APMAS • Action-Aid• Nirantara

• Strengthening CBOs by integrating municipal schemes with Banks and line departments.

• Gender strategy finalized

• BASIX

• SPARC

• DRF(Tulasi)

C3 : Progress

• Poverty survey and software developed in house• Completed in 2013 poor settlements in 32 towns• 180 CD staff positioned and trained in SHG

empowerment, PRA, PMLP• Livelihood promotion officers for towns• Bank finance support officers for towns• PMLP completed in 454 poor settlements• Special drive for SHG in 878 settlements• Two phases special drive conducted

Poverty Survey Form

Strengthening existing SHGs and coverage of left over poor in SHGs

Total No.of Poor settlements taken up 878

Total No.of Households 275386

No.of Households covered under SHG 117309 (42.60 %)

No.of Households uncovered under SHGs 158077 (57.40 %)

Existing groups 8197

No.of New groups formed 2504

No.of groups CRI done 5463

No.of groups for which Bank Account opened

1224

(Special drive in 2 phases)

Strengthening SHGs

• Major drive• Grading as per critical rating index• Orientation • Training of COs and TPOs• Identification of book keeper, animator etc.,• System for monitoring

• UPADHI- Urban Programme for Advancement of Household Income

• Livelihood Project for Rs.155 crores sanctioned• 1 lakh poor families to be covered in one year.• Programme initiated in 16 towns• Support from TULASI and America India

Foundation

UPADHI

MIPOs : A Major Achievement

Packages developed by MIPOs• Municipal Online System.• House Hold Poverty Survey offline tool with

reports.• Package to enter 18 Formats data.• Project Management Information System.• Reform Indicators• Self Help Group offline package.• Tour and Task monitoring system

Municipal Online System

A step towards e-municipality

MOS Services

The Core Services offered by the system under each section are

• Engineering Section• Revenue Section• General Administration• Town Planning• Public Health and Sanitation• Urban Poverty Alleviation Cell

Reports

Based on the Input taken from above Forms the following report can be generated Reports based on Group Rating Municipality Wise Reports Ward Wise Reports Slum Wise Reports Bank Wise Reports Activity Wise Reports Vulnerability Wise Reports

Hon’ble Chief Minister’s Comments

• High impact on GoAP policies

• CMAPP process – a major influence

• Government Order

• World Bank and other agencies

• GOI : Best Practice

• Community Organisors for all 117 towns

• 3rd Party Quality Assurance for Government works

• 300 Crore AP Urban Infrastructure Structure Development

• Notification of non-notified settlements – APUSP Guidelines

• Poverty Survey for all towns – 117 using APUSP pictorial survey formats and software

• MIPO’s for all 117 towns

APUSP Influences Urban Policies

Other Major Initiatives

• MCR (Mid Cycle Review) for better implementation• Model settlements in each town• Regular Newsletter and communication• Online PMIS & CED• Revamping and strengthening of UPA cell• 1st e-municipality in 30 days and rollout in 117 ULBs

later• Procurement reforms for ULBs• Rs. 155 crores livelihood development project with

Rs. 20.00 crores from APUSP• Self reliance and intensive engagement

• Adilabad • Alwal • Dharmavaram

• Nalgonda • Rajendranagar • Serilingampally

•Srikakulam • Tadepalligudem •Yemmiganur

• Kapra • Uppal kalan

11 towns newly included

APURMS Project

• New World Bank Project called APURMS (Andhra Pradesh Urban Reforms and Municipal Services) at advanced stage

• Estimated outlay Rs.1200 crores

• All Municipalities / Corporations

• City wide infrastructure

• Planning process launched

Reforms – slow process

• Capacity of the towns

• Institutionalization of revamped C3

• Livelihood project

• Flow of funds

• Inclusion of 11 new towns

• Support and cooperation of DFID as earlier !

Challenges Ahead

Thank You For Thank You For

AttentionAttention