2 Allahabad Draft Report

CRISIL Risk and Infrastructure Solutions Limited
Ministry of Urban
Development, Government
of India
Capacity Building for Urban

Development
Rapid Baseline Assessment

Allahabad City
Draft Report
October 2013
Certification
Report Prepared by CRISIL Infrastructure Advisory Team
Report Reviewed by Brijgopal Ladda
Report Validated by Request for validation has been sent to nodal

1
officer
1
Once the certificate is received from the ULB, the same shall be submitted to CBUD Cell
[ii]
Abbreviations
ADA Allahabad Development Authority
AJS Allahabad Jal Sansthan
ANN Allahabad Nagar Nigam
ARV Annual Rent Value
BSUP Basic Services for Urban Poor
CAA Constitution Amendment Act
CAGR Compounded Annual Growth Rate
CRIS CRISIL Risk and Infrastructure Solution
DEAS Double-Entry Accounting System
DIC District Industries Centre
DLB Director of Local Bodies
DPC District Planning Committee
DPR Detailed Project Report
DUDA Department of Urban Development
EPSP e-Procurement Service Provider
ETIM Electronic Ticket Issuing Machine
EWS Economically Weaker Section
FAS Finance and Accounting Software
GIS Geographic Information System
HOD Head of the Department
IMG Integrated Management Group
IVRS Interactive Voice Response System
JICA Japan International Cooperation Agency
JNNURM Jawaharlal Nehru National Urban Renewal Mission
LIG Low Income Group
LPCD Litres per Capita per Day
MLD Million Litres per Day
[iii]
MPC Metropolitan Planning Committee
NMAM National Municipal Accounts Manual
NRW Non-Revenue Water
PPP Public-Private Partnership
PWD Public Works Department
RWH Rainwater Harvesting
SLNA State Level Nodal Agency
STP Sewerage Treatment Plant
SUDA State Urban Development Department
SWM Solid Waste Management
TCPD Town and Country Planning Department
TPD Tons per Day
UFW Unaccounted-for Water
ULB Urban Local Body
UPJN Uttar Pradesh Jal Nigam
UPPCB Uttar Pradesh Pollution Control Board
UPSIDC Uttar Pradesh State Industrial Development Corporation
UPSRTC Uttar Pradesh State Roadways and Transportation Corporation
[iv]
Contents
Certification ........................................................................................................................................... ii
Abbreviations ....................................................................................................................................... iii
List of Tables ....................................................................................................................................... vii
List of Figures ...................................................................................................................................... ix
1. Project Background ...................................................................................................................... 1
1.1 CBUD Project .......................................................................................................................... 1

1.2 Rapid Baseline Assessment ................................................................................................... 1
1.3 Brief Approach and Methdology .............................................................................................. 2
1.4 Methodology ............................................................................................................................ 2
2. Executive Summary ...................................................................................................................... 4
2.1 General information ................................................................................................................. 4

2.2 Municipal governance ............................................................................................................. 4
2.3 Municipal Financial Management ........................................................................................... 8
2.4 Urban service delivery ........................................................................................................... 11
2.5 Urban planning ...................................................................................................................... 15
2.6 Key issues ............................................................................................................................. 16
2.7 Capacity building ................................................................................................................... 18
3. Brief city profile and growth ...................................................................................................... 20
3.1 Brief city profile ...................................................................................................................... 20

3.2 Population trends .................................................................................................................. 20
4. Urban Governance ...................................................................................................................... 22
th
4.1 Status of 74 CAA ................................................................................................................. 22
4.2 Status of MPCs and DPCs .................................................................................................... 23
4.3 Functions, roles, and responsibilities of Urban Local Body (ULB) and parastatals .............. 23
4.4 Assessment of human resource development at ULB .......................................................... 24
4.5 Assessment of trainings programmes ................................................................................... 25
4.6 Status of e-governance implementation and the support required therein ........................... 25
4.7 Indicators ............................................................................................................................... 28
4.8 Key findings/observations ..................................................................................................... 28
4.9 Capacity building areas ......................................................................................................... 28
5. Municipal Financial Management .............................................................................................. 29
5.1 Administration of finances at ULB ......................................................................................... 29

[v]
5.2 Reform implementation ......................................................................................................... 29
5.3 Municipal finances ................................................................................................................. 30
5.4 Key issues ............................................................................................................................. 33
6. Urban Service Delivery ............................................................................................................... 34
6.1 Roles and responsibilities of ULB and parastatals................................................................ 34

6.2 Water supply ......................................................................................................................... 34
6.3 Sewerage .............................................................................................................................. 35
6.4 Solid waste management ...................................................................................................... 37
6.5 Storm water drainage ............................................................................................................ 38
6.6 Roads and streetlights .......................................................................................................... 39
6.7 Housing and infrastructure for the urban poor ...................................................................... 40
6.8 PPP exposure ....................................................................................................................... 40
7. Urban Planning ........................................................................................................................... 42
7.1 Urban planning functions ...................................................................................................... 42

7.2 Status of master plans and land-use plans ........................................................................... 42
7.3 Existing practice for planning process .................................................................................. 43
7.4 Status of key reform implementation .................................................................................... 43
7.5 Key takeaways and concerns ............................................................................................... 43
7.6 Recommendations for effective implementation of planning process................................... 43
8. Annexure...................................................................................................................................... 44
8.1 List of References ................................................................................................................. 44

th th
8.2 List for officials met during 6 - 8 May 2013 ....................................................................... 44
8.3 Minutes of the key meetings ................................................................................................. 45
8.4 Qualitative questionnaire ....................................................................................................... 48
8.5 Quantitative questionnaire .................................................................................................... 65
Disclaimer ............................................................................................................................................ 83
[vi]
List of Tables
Table 1: Population growth ...................................................................................................................21
Table 2: Indicators .................................................................................................................................21
th
Table 3: Status of 74 CAA...................................................................................................................22
Table 4: Roles and responsibilities of ULB and parastatals .................................................................23
Table 5: Category-wise manpower strength .........................................................................................25
Table 6: e-Governance reforms ............................................................................................................25
Table 7: Indicators .................................................................................................................................28
Table 8: Municipal finances – Revenue Account ..................................................................................30
Table 9: Municipal Finances – Capital Account ....................................................................................30
Table 10: Property tax DCB statement (in Rs. Lakhs) ..........................................................................31
Table 11: Key municipal finance assessment indicators ......................................................................32
Table 12: Roles and responsibilities .....................................................................................................34
Table 13: Service-level indicators – Water supply ................................................................................35
Table 14: Service-level indicators – Sewerage .....................................................................................36
Table 15: Service-level indicators – SWM ............................................................................................37
Table 16: Service-level indicators – Storm water drains .......................................................................38
Table 17: Land use ...............................................................................................................................42
Table 18: ULB Key contacts..................................................................................................................65
Table 19: ULB Profile ............................................................................................................................65
Table 20: Land use breakup .................................................................................................................65
Table 21: Financial Status.....................................................................................................................66
Table 22: DCB Statement of Property Tax ...........................................................................................66
Table 23: Sources of water supply ........................................................................................................67
Table 24: Details of Treatment Plant ....................................................................................................67
Table 25: Storage reservoirs .................................................................................................................67
Table 26: Distribution ............................................................................................................................67
Table 27: Connection Details ................................................................................................................68
Table 28: Annual tariff for metered and unmetered connections ..........................................................68
Table 29: O&M Expenses [for both Water Supply and Sewerage] (in Rs. Lakhs) ...............................69
Table 30: Demand Collection Balance Statement for Water Charges [for both Water Supply and
Sewerage] (in Rs. Lakhs) ......................................................................................................................69
Table 31: Cost Recovery [for both Water Supply and Sewerage] ........................................................70
Table 32: Service level benchmarking ..................................................................................................70
[vii]
Table 33: Capacity Augmentation under JnNURM (in Rs. Lakhs)........................................................70
Table 34: Proposed Projects .................................................................................................................70
Table 35: Current system ......................................................................................................................71
Table 36: Capacity of STPs ..................................................................................................................71
Table 37: Service Charges....................................................................................................................71
Table 38: Capacity Augmentation under JnNURM (in Rs. Lakhs)........................................................71
Table 40: Service Level Benchmarking ................................................................................................72
Table 41: Current SWM service ............................................................................................................73
Table 42: Infrastructure for transportation of waste ..............................................................................73
Table 43: Details of Disposal/landfill sites .............................................................................................73
Table 44: Tariff structure .......................................................................................................................73
Table 45: O&M expenses (in Rs. Lakhs) ..............................................................................................73
Table 46: Cost Recovery (in Rs. Lakhs) ...............................................................................................74
Table 47: Initiatives taken under JnNURM (in Rs. Lakhs) ....................................................................74
Table 49: Service level benchmarking ..................................................................................................74
Table 50: Present system .....................................................................................................................75
Table 51: Initiatives taken under JnNURM ...........................................................................................75
Table 53: Details of Roads ....................................................................................................................76
Table 54: Investment in projects including those under JnNURM ........................................................76
Table 56: Staffing Pattern (Available, but in different format) ...............................................................76
Table 57: Training requirement .............................................................................................................76
Table 58: Status of mandatory reforms under JNNURM (Report available) ........................................79
Table 59: Status of optional reforms under JNNURM ..........................................................................80
[viii]
List of Figures
Figure 1: Allahabad ...............................................................................................................................20
Figure 2: Organization structure of ANN ...............................................................................................24
[ix]
Ministry of Urban Development
1. Project Background
With growing population in urban areas in India, tremendous pressure has been put on key urban
services and service delivery mechanism at city/town level. In order to overcome these issues at ULB
level, Government of India (GoI) had launched Jawaharlal Nehru National Urban Renewal Mission
(JNNURM) to augment the capacity building of ULBs by implementing the projects and reforms
across the selected ULBs in India.
While there has been good progress in implementation of reforms at policy level at state and central
level. However, Institutional strengthening and capacity buildings initiatives are yet to be initiated in
most of the ULBs. Further, the service levels are not up to the mark in most of the ULBs. The need of
the hour is to focus on capacity building aspects at ULB level to improve the service delivery
mechanism and enhance the revenue improvement measures to make the ULBs self-sustainable.
1.1 CBUD Project

In order to give an impetus to reforms under JNNURM, the MoUD and Ministry of Housing and Urban
Poverty Alleviation (MoHUPA) had launched a new project called “Capacity Building of Urban
Development” (CBUD). The project had been launched with support from The World Bank. The
project has following three components:
1. Capacity Building for Strengthened Urban Management. This component is aligned with
the infrastructure and governance sub-mission of JNNURM and will thus support technical
assistance across the several urban management topics.
2. Capacities Building for Effective Urban Poverty Monitoring and Alleviation. These
capacity building initiatives are aligned with the basic services to the urban poor sub-mission.
They reflect the need for building information systems, sharing experiences, and designing
strategies on urban poverty alleviation.
3. Implementation Support. This component will support a national Project Management Unit
(PMU) for providing overall technical and managerial support during the implementation of the
Programme. The PMU will have a critical role in promoting and support the project.
Under the CBUD project, MoUD had initiated various studies such as preparation of CDPs, CSPs,
training needs assessment, transport related studies, reduction of non-revenue water related studies,
city and zonal support studies etc. In particular, the study on Rapid Baseline Assessment precedes all
these studies.
1.2 Rapid Baseline Assessment

In order to provide a baseline for project implementation & broadly identify the capacity gaps and
training needs, MoUD initiated the whole process with a Rapid Assessment of the status of the ULBs
selected for participation in the CBUD project.
The Rapid Baseline Assessment has majorly two-fold objectives,

 Firstly to set up a baseline of the 30 cities. This baseline would be helpful for MoUD to
monitor the progress in the city under the CBUD programme in mid and long term and
 Secondly to identify the capacity gaps in implementing the reforms and service delivery
benchmarks and identifying areas of intervention and the support to be provided to utilities.
Rapid Baseline Assessment - Allahabad City – Draft Report [1]

The study targeted to cut across the four major interrelated aspects mentioned below:
1. Municipal Financial Management;
2. Municipal Governance;
3. Urban Planning and Land use; and
4. Urban Service Delivery.
To undertake this study, MoUD appointed CRISIL Risk & Infrastructure Solution Limited (CRIS) as
consultant to carry out rapid assessment for 30 selected ULBs across the county. As part of the study,
CRIS followed the scope of work as defined in the ToR.
1.3 Brief Approach and Methdology

The progress of implementation of the reforms and poverty alleviation programmes were taken into
consideration while studying each of the ULBs to gain an understanding on the quality and efficiency
of Urban Management mechanisms and to further propose interventions to enhance the ULBs
performance.
The four Functional Areas are interrelated and have significant impact on each other. Each of these
Functional Areas was dealt individually before they were integrated to realize the overall Goal of the
Project. A ‘Part-to-Whole’ approach was adopted to ensure clarity of tasks and activities proposed to
strengthen each of the Functional Areas. The flowchart below illustrates the overall framework
adopted to achieve the goal of the assignment at hand.
Figure 1-1: Rapid Baseline Study – Process mapping
Assessment of
Municipal
Governance
system
Assessment of Interventions leading to Assessment of

Urban services enhanced capacity of Municipal
delivery system urban management Financial
systems System
Assessment of
Urban planning
and land use
1.4 Methodology
The following in brief step by step actions were taken to prepare the Rapid Baseline Report at City
Level
 Kick off meeting with MoUD
[2] Rapid Baseline Assessment - Allahabad City – Draft Report

 Desk Research
 Questionnaire formulation (qualitative and quantitative)
 ULBs/ parastatals visit and detailed discussion and data collection
 Report preparation, expert review
 Submission of the draft report to MoUD and City

2. Executive Summary
2.1 General information

Sr. No. Particular Details
1 Name of the City Allahabad
1. Tourism
2 Key Economic Drivers 2. Pilgrimage activities
3. Educational institutions
4. Utensil, cloth, and cycle market
3 Total Population (2011) 1,216,719 persons
4 Total Slum Population 429,674 persons
5 Decadal Growth Rate (2001-11) 12%
6 Area of the Urban Local Body (ULB) 164 sq km
7 Density 7,419 persons per sq km
8 Literacy Rate 86.50%
9 Sex Ratio 858 females per 1000 males
2.2 Municipal governance

General Information
Sr.
Particular Details
No.
1 Year in which the ULB was constituted/formed 24-01-1959
2 No. of wards 80
The elected body is in place,
3 Whether a local body is in place elections were held in the year
2012.
4 No. of citizen facilitation centres in the city None
Allahabad Nagar Nigam (ANN) has
implemented both the acts under
 RTI – Uttar Pradesh Public
The ULB has implemented the following acts: Service Commission (Right to
5  Right to Information (RTI) Information) Rules – 2011
 Right to Service (RTS)  RTS - Uttar Pradesh Janhit
Guarantee Adhyadesh
implemented on 13th January
2011
 Balance sheets
 Income statement
6 The ULB discloses the following information to public  Budget copies
 Telephone directory
 Jawaharlal Nehru National
Urban Renewal Mission

Sr.
Particular Details
No.
(JNNURM) project progress
reports
7 Sanctioned staff 3920 Nos.
8 Actual staff 3142 Nos.
Uttar Pradesh Municipal
9 The recruitment of staff is governed by
Corporation Act
10 The recruitment rules were framed in the year 1959
 Administrative
 Health
 Engineering
 Accounts
11 The state has created a municipal cadre for  Audit
 Licence
 Tax
 Garden
 Lighting
No
Does the ULB have a training curriculum and any However, a training needs
12
budget allocation for training assessment report and calendar
has been prepared.
th
Transfer of Functions (As Part of 74 Constitution Amendment Act (CAA)
Sr. Status of transfer and the name

12th Schedule Functions
No. of the agency/s responsible
Allahabad Development Authority
1 Urban planning including town planning
(ADA)
2 Regulation of land-use and construction of buildings ADA
3 Planning for economic and social development ADA
4 Roads and bridges ANN
Jal Nigam and Jal Sansthan
5 Water supply - domestic, industrial, and commercial
(ANN)
Public health, sanitation, conservancy, and Solid Waste
6 ANN
Management (SWM)
7 Fire services Police Department
ANN in consultation with the State
8 Urban forestry, protection of environment and ecology
Forest Department
Safeguarding the interests of weaker sections in the District Urban Development
9
society including the handicapped and mentally retarded Authority (DUDA) and ANN
10 Slum improvement and up-gradation DUDA and ANN
11 Urban poverty alleviation DUDA and ANN
Provision of urban amenities and facilities - parks,
12 ANN
gardens, and playgrounds
13 Promotion of cultural, educational, and aesthetic aspects ANN

Sr. Status of transfer and the name

12th Schedule Functions
No. of the agency/s responsible
Burials and burial grounds, cremations, cremation
14 ANN
grounds, and electric crematoriums
15 Cattle pounds, prevention of cruelty to animals ANN
16 Vital statistics including registration of births and deaths ANN
Public amenities including street lighting, parking lots, bus
17 ANN, ADA, and PWD
stops, and public conveniences
18 Regulation of slaughterhouses and tanneries ANN
Status of e-Governance Services
Module Status Remarks
 Property tax software has been integrated with the

Corporation’s website for online payment. Citizens can
also view their outstanding bills through the website, the
property tax demand notices are automated and are
system generated,
 All property tax records have been digitized and property
Delayed, Work tax data base is integrated with GIS database.
Property tax
in Progress
 However the property tax software is not yet integrated
with the Accounting Module, this integration would be
done once Finance and Accounting Software (FAS) is
developed- this activity is being undertaken at the state
level, for which vendor selection process for the
development of e-governance module shall be initiated
shortly.
 Double-entry accounting system has been implemented.

 Tally is being used as standalone accounting software. At
the state level, the vendor selection process for the
Delayed, Work development of e-governance modules, such as FAS,
Accounting
in Progress shall be initiated shortly.
 The integration of Jal Sansthan accounts with ANN is
underway and subsequently the accounts of Jalkal will be
integrated with the ANN accounting system.
 Public can download new water/sewage connection forms

from the website: www.allahabadjs.in.
Water supply and In Progress  All data has been computerized. Computerized bills and
other utilities receipts are being issued. All municipal zonal offices are
connected for billing & collection system, however, online
payment has not yet been enabled.
 The module is implemented since Nov 2006.

 Online registration can be done. However, online
Birth and death Implemented issuance of birth and death certificates requires digital
registration signature. The system is not in place presently.
 Digitization of archives for birth and death registration has
been completed.
Citizen’s
grievance Completed  The module has been operational from 23rd May 2010.
monitoring Both web and window based application is being used.

Module Status Remarks

Currently, window based registration or SMS based
complaints are lodged, which are directly fed into the
module after generating a complaint ID.
 Employee payroll system has been implemented. Details

Personnel In progress regarding employee salary, pension, PF, and bonus are
management maintained by using this software. The service book
with delay
system information system has been developed, and all data has
been entered.
Procurement and monitoring of projects
 Vendors can only download tender documents from the

e-Procurement In progress website; complete e-tendering process is not available as
it requires state-level initiatives.
 Monitoring of projects is being done by the Performance

Monitoring and Evaluation System (PMES) System of
Project/ward Ministry of Urban Development (MoUD) for JNNURM
In Progress projects only.
works
 This software has been developed by UP Electronics and
monitoring is done by computerized database.
 Building plan approvals are provided manually by the

Allahabad Development Authority (ADA).
 Presently there is no such system. This has to be
Building plan In progress developed at state level.
approval
 The software for issuance of NOCs has been developed
by UP Electronics, and computerized NOCs are being
issued.
Health programmes
In progress  Food and trade licences are issued manually. Data entry
Licences
is done in Excel.
 SPML is involved in door to door collection under the

supervision of ANN and provides MIS as and when
Solid waste In progress required.
management
 Efforts are being made to establish online systems. Billing
has been computerised.
Particular Brief Details

Status of
The citizen’s charter has been prepared. The charter provides timelines for delivery
Citizen’s
of key services.
Charter
ANN discloses information on its website from time to time. Balance sheets, income
Public
statements, and budget copies have been uploaded on the website. Also, the
Disclosure
progress reports related to JNNURM projects have been uploaded on the website.
Grievance Web based application is being used to register grievance. Currently window
Redressal registration or SMS based modes are used to register complaints, which are directly
System fed into the module after generating a complaint ID.

2.3 Municipal Financial Management

Existing Status – Municipal Financial Management
Sr.
Particular
No.
1 The accounting system in the ULB is Double-entry accounting system
Balance sheets has been prepared up to
2 2010-11
the year
Valuation of assets has been completed up
3 2010-11
to the year
The asset register is managed on a real-
4 Intermittent
time/intermittent basis
Double-entry accounting system is
5 Intermittent
practiced on real-time/intermittent basis
The ULB has adopted the municipal codes
of National Municipal Accounting Manual
6 NMAM
(NMAM)/state accounting codes/others, if
any
Account codes are linked with budget
7 No
codes (Yes/No)
Ledgers and other statements are
8 Intermittent
maintained on real-time/intermittent basis
Budget planning is done based on past
9 Past year’s data
year’s data/actual requirements
Yes, discussions are held with Head of the
Budget is prepared through a consultative
10 departments and elected representatives while
process with various stakeholders
formulating the budget
Details of specific training programmes are not
available. However, trainings have been provided
to officials in double-entry accounting system.
Trainings that have been provided to the
11 Couple of personnel from the Accounts
staff for the new accounting system
Department are working with the Field Level
Consultant (FLC) and are given on-the-job
training.
12 The ULB follows post/pre audit Post audit
14 The accounts have been audited till 2008-09
 A separate budget code for services to the

15 The ULB has urban poor
 Earmarked 25% of the development fund
16 Does the ULB has exposure to DEBT The ULB has no borrowing exposure.
Details of specific training programmes are not

The officials have undergone following available. However, many trainings have been
17
trainings provided to officials on double-entry accounting
system, e-governance, etc.
Existing Status - Municipal Finance

Sr.
Particular Details
No.
The ULBs has been assigned- municipal credit
1 B+
rating of
Over the past four years, the revenue account has
2 Deficit in two years
been in surplus/deficit
 68% - grants, contributions, and

subsidies
3 The key source of revenue receipts for the ULB is
 26% - tax revenue
 4% - non-tax revenue
 86% - Establishment expense

4 The key area of municipal expenditure is
 12% - O&M expense
The ULB levies property tax based on Annual Rental
5  Unit area method
Value/unit area method
 Water and sewerage - 2007

6 The following taxes were last revised in the year  SWM - 2010
 Property tax - 2010
 Water and sewerage taxes – on the

7 User charges are determined on the basis of basis of property tax
 Property tax – Unit area method
Municipal Financial Indicators
Sr.
Indicators Value
No.
Own revenues as a proportion of total revenue receipts
1. 32%
(Total income – Rs. 87.94 crores; Own revenues – Rs. 28.23 crores)
Per capita own revenues
2. Rs. 232
(Own revenues – Rs. 28.23 crores; Population - 1,216,719)
Non-tax revenues as a proportion of own revenues
3. 13%
(Non-tax revenue – Rs. 3.78 crores; Own revenues – Rs. 28.23 crores)
Per capita property tax demand
4. Rs. 189
(Demand – Rs. 23 crores; Population - 1,216,719)
5. Coverage for property tax net ~100%
Property tax collection performance
6. 90%
(Demand – Rs. 23 crores; Collection – Rs. 20.76 crores)
Water charges collection performance
7. 73%
(Demand – Rs. 53.51 crores; Collection – Rs. 39.07 crores)
Operating ratio (revenue expenditure/revenue receipts)
8. 0.98
(Income – Rs. 87.94 crores; Expenditure – Rs. 85.83 crores)
Per capita O&M expenditure
9. Rs. 86
(O&M expenditure – Rs. 10.46 crores; Population -1,216,719)
Salary as percentage of revenue income
10. 84%
(Salary – Rs. 73.90 crores; Income – Rs. 87.94 crores)
Salary as percentage of revenue expenditure
11. 86%
(Total expenditure – Rs. 85.83 crores; Salary – Rs. 73.90 crores)
12. Staff per 1000 population 3.22

Sr.
Indicators Value
No.
(Staff – 3,920)
Debt servicing coverage ratio (≤1.50) - (OS + DS/DS)
13. No debt
(Average for the past five years)
14. Debt service ratio (Max 25%) - (Debt/revenue income) No debt
Institutional arrangement
Key Infrastructure Planning and Construction/

Sr. No. O&M
Services Design Implementation
UP Jal Nigam, Jal UP Jal Nigam, Jal Kal

1 Water Supply Jal Kal
Kal (small projects) (small projects)
UP Jal Nigam, Jal Kal

UP Jal Nigam, Jal UP Jal Nigam, Jal
2 Sewerage (small projects),
Kal (small projects) Kal, ANN, DUDA
DUDA
UP Jal Nigam, Jal Kal

UP Jal Nigam, Jal UP Jal Nigam, Jal
3 Storm Water Drains (small projects),
Kal (small projects) Kal, ANN, DUDA
DUDA
Solid Waste
4 ANN ANN ANN
Management
Urban Transport –
5 UPSRTC UPSRTC UPSRTC
City Bus Service
6 Street Lighting* ANN, ADA, PWD ANN, ADA, PWD ANN, ADA, PWD
Preparation of
Master
7 ADA, TCPD ADA
Plan/Development
Plan
Urban Poor DUDA, ADA, ANN, ANN, Jal Sansthan,

8 DUDA, ADA, ANN
Settlements UP Jal Nigam UP Jal Nigam
DUDA – District Urban Development Authority, ANN – Allahabad Nagar Nigam, ADA – Allahabad
Development Authority, UPSRTC – Uttar Pradesh State Road Transportation Corporation, TCPD –
Town and Country Planning Department
*in their respective jurisdiction

2.4 Urban service delivery

Functions, Roles, and Responsibilities
Other Information
Sr.
Particular Details
No.
The ULB has prepared infrastructure The master plan has been prepared for water supply
1A
master plan for; and sewerage sectors by ADA
The ULB has prepared CSP in the
1B  2011
year
 Water Supply - Augmentation of water supply

system in Allahabad
 Sewerage – underground network and treatment
plants
DPR prepared for following
2A  Drainage- Storm water drain network in
infrastructure services Allahabad
 Solid waste Management- Implementation of
solid waste management system, which includes
door to door collection, transportation, treatment
and disposal.
The ULB is looking forward to support ULB needs training on the implementation of projects
2B as the DPRs have been prepared for most of the
the preparation of the DPR for
sectors.
Following are the safeguard (social
and environmental) measures the ULB Normally environmental aspects are not considered
3
takes while planning for developmental while planning projects
projects
 Service Level Benchmarks (SLB) –Have been
formulated
 Information System Improvement Plan (ISIP) -
4A The ULB is aware and has put in place
Not yet prepared
 Performance Improvement Plan (PIP) - Not yet
prepared
 To improve the SLB indicators, projects were

undertaken under JNNURM for water supply,
sewerage, SWM and storm water drains
 Water supply – source augmentation,
enhancement of storage capacity and treatment
capacity and metering
The ULB has taken initiative for
4B following to increase the performance  Sewerage – underground network and treatment
plants
of SLB indicators
 SWM – door-to-door collection, transportation,
treatment and disposal
 Storm water drains – underground drainage
network
 Under the provision of BSUP, the basic
infrastructure like road, light, water supply, sewer

Sr.
Particular Details
No.
line provided to urban poor to improve the social
environment
 GIS mapping was undertaken, which lead to
increase in number of properties under tax net
The ULB has an internal legal
5 department to deal with contractual Yes
issues (yes/no)
The service delivery departments have Details of specific training programmes are not
6
attended following trainings/workshops available.
 ANN signed a contract with M/s SPML Infra

Limited to undertake collection, transportation,
treatment, and disposal of municipal solid waste.
The ULB is planning or has experience
 ANN has signed a contract for the construction
7 of undertaking following on the PPP
and operation of a bus shelter in Allahabad city.
 Other initiatives which have been undertaken by
ANN are electric crematorium, public toilets, park
beautification etc.
Service Delivery Indicators
Sr. MOUD
Indicator Value
No Benchmark
Water Supply Services
Coverage of water supply connections
1 (Total no. of connections – 151,093; Total no. of properties 73% 100%
206,784)
Per capita supply of water
2 253 LPCD 135 LPCD
(Total water supply – 308 MLD; Population – 1,216,719)
Extent of metering of water connections
3 (No. of metered connections – 1,230; Total connections – 1% 100%
151,093)
Extent of Non-Revenue Water
4 40% 20%
(As per estimates of ANN)
5 Continuity of water supply – No. of hours of supply 10 hours 24 hours
Data not
6 Efficiency in customer complaint redressal 80%
available
Data not
7 Quality of water supplied 100%
available
Cost recovery in water supply services
(Income – Rs. 39.07* crores and Expenditure – Rs. 48.32*
8 81% 100%
crores
*for both water supply and sewerage)
Efficiency in collection of water supply related charges
9 73% 90%
(Collection – Rs. 39.07 crores; Demand – Rs. 53.51 crores)
Sewerage and Sanitation
Data not
1 Coverage of toilets 100%
available
Coverage of sewerage network services
2 20% 100%
(No. of connections – 40,000; No. of properties - 206,784)

Sr. MOUD
Indicator Value
No Benchmark
Collection efficiency of sewerage network
3 (Sewerage collected – 211 MLD; Sewerage generated - 250 85% 100%
MLD)
Adequacy of sewerage treatment capacity
4 (Sewerage treated – 211 MLD; Sewerage generated - 250 85% 100%
MLD)
Data not
5 Quality of sewerage treatment 100%
available
Extent of reuse and recycling of sewerage
6 (The treated sewerage is not of reusable grade. Hence, it is 0% 20%
discharged in water bodies.)
Extent of cost recovery in sewerage management
(Income – Rs. 39.07* crores and Expenditure – Rs. 48.32*
7 81% 100%
crores
Data not
available
Efficiency in collection of sewerage related charges
9 73% 90%
Solid Waste Management
Household-level coverage of SWM services
1 (D-t-D coverage in properties 103,000; Total no. of properties 50% 100%
206,784)
Efficiency of collection of municipal solid waste
2 80% 100%
(Waste collected – 400 TPD; Generated – 500 TPD)
3 Extent of segregation of municipal solid waste 0% 100%
4 Extent of municipal solid waste recovered 100% 80%
5 Extent of scientific disposal of municipal solid waste 100% 100%

Extent of cost recovery in SWM services
(User charges collected from October 2011 till date are Rs. Data not
6 100%
2.08 crores. Amount of tipping fee paid to the operator is not available
available as the ULB has not been paying tipping fee on time)
Data not
available
Data not
8 Efficiency in collection of SWM related user related charges 90%
available
Storm Water Drainage
Coverage of storm water drainage network
1 25% 100%
(Total length of drains – 585 km; Road length – 2,357 km)
Data not
2 Incidence of water logging/flooding Zero
available
Roads and Transportation
Road length per capita
1 2m -
(Total road length – 2,357 km; Population - 1,216,719)
Proportion of surfaced roads
2 (Total road length – 2,357 km; Surfaced and semi-surfaced 97% -
road length – 2,277 km)
Data not
3 O&M cost per kilometre of road (Rs. per km) -
available

Projects Envisaged in CDP and Sanctioned Projects
Estimated
Sanctioned cost Physical Financial
Sr. Projects envisaged cost
under JNNURM Progress- % Progress- %
No. under CDP (Rs.
(Rs. crores) (Till March 13) (Till March 13)
crores)
1 Water Supply 243.00 248.84
Allahabad water
A 89.69 94% 90%
supply Part-I
Allahabad water
B 159.15 84% 78%
supply Part-II
Sewerage and
2 574.21 338.26 60% 71%
sanitation
Roads and
3 1178.50 - - -
transportation
4 Storm water drainage 355.00 - - -
Solid waste
5 28.00 30.41 70% 87%
management
Basic services for the
6 602.31 - - -
urban poor
7 Tourism and heritage 122.00 - - -
Environmental
8 14.60 - - -
aspects
9 Others 6.00 - - -
Total 3123.62 617.51 77%
Status of Projects under JNNURM/UIDSSMT/BSUP/IHSDP
Approved Expenditure Amount

Cost (till Mar 13) Physical released
Sr. No. Project
Progress
(Rs. crores) Rs. Crores
Water Supply Component of
1 89.69 80.65 94% 44.84
Allahabad City
Water Supply component of
2 159.15 124.22 84% 71.61
Allahabad City (Part-II)
3 SWM 30.41 26.60 70% 13.68
4 Sewerage 338.26 241.16 60% 109.93
Total 617.51 472.63 240.08
Urban Poor
Sr.
Particular Details
No.
Does the city have a separate department for
1 addressing the issues of and implementing No
programmes for the urban poor
Slum mapping is underway as a part of the
2 Mapping of slums
slum free city program
3 Status of Slum Free Action Plan under Rajiv Slum free city report is being prepared.
Awas Yojna (RAY)
4 Broad initiatives for urban poverty alleviation  Central and state governments are running

Sr.
Particular Details
No.
an employment scheme, Swarna Jayanti
Shahari Rozgar Yojana
 Availability of loan of Rs. 2 lakhs for
starting a business and skill enhancement
2.5 Urban planning

Sr.
Particular Details
No.
Agency responsible for preparing
1 ADA
master plan
Is the master plan of the city
2 prepared? If yes, till what planning Yes; 2021
period?
Is DPC in place? In case yes, District Planning Committee (DPC) is functional from
3
please give details. year 2008.
Metropolitan Planning Committee (MPC) was to be
constituted by 2012 after the ANN and State Assembly
elections, but this is yet to happen. Provision for the
Is MPC in place? In case yes,
4 creation of MPCs has been made in the Nagar Nigam
please give details
Act. As per section 57A, in every metropolitan area, an
MPC will prepare the draft development plan for the
metropolitan area as a whole.
 ADA has prepared the building byelaws and

uploaded the same on its website. In addition, GoUP
revised the Building Byelaws in year 2008 and the
ADA adopted the byelaws in order to streamline the
approval process. Mitigation measures for fire,
earthquake, etc., have also been incorporated in the
building byelaws.
 The process to streamline the approval process is
underway. The time limit for building plan approval
has been capped at 30 and 90 days for residential
and commercial buildings, respectively. ADA also
Status of key urban planning related specified that building sanctions have been given in
5 a majority of cases as per the time limit specified in
reforms
the building byelaws. Further reduction is only
possible upon implementation of the MIS system of
all offices bearing NOC on building permission.
 ADA has made provision in the building byelaws for
rainwater harvesting within the region. It is
mandatory for a building with area more than 300 sq
m to get building plan approved from ADA.
 20% (twenty percent) of the saleable land and plots
are being reserved for housing projects for the
Economically Weaker Section (EWS) and Low
Income Group (LIG) categories, to be developed by
the ADA. A government order has been issued

Sr.
Particular Details
No.
stating that such provisions should be followed by
private developers also.
6 List of Training Data not maintained
2.6 Key issues
2.6.1 Municipal governance

 It is observed that in Allahabad there are many agencies that are involved for provision of
services delivery, and there is lack of coordination among them, which is the major reasons for
delay in the implementation of reforms.
 Allahabad Nagar Nigam has implemented various standalone IT modules, however it will be a
challenge for them to integrate all these standalone modules as per framework designed at the
state-level. In addition there few more obligatory standalone modules like building plan approval
system etc. that are yet to be implemented.
 Dissemination of information with regard to the citizen’s charter is absent, and is also not
displayed anywhere within the ULB or at citizen facilitation centres of ANN.
 ANN is facing severe capacity constraints both in terms of availability of manpower and skill set to
monitor and maintain the e-governance modules that have already been implemented.
 An institutional mechanism for training and handholding support is required.
2.6.2 Financial Management

 It is observed that the financial capacity of ANN is weak, and it would difficult for ANN to fund any
new projects. Currently also the share of ANN’s component for JNNURM projects is funded by the
state government.
 There is no planned effort to enhance own sources of revenue resources
 Due to lack of relevant training programmes, most of the officials lack basic understanding of the
accrual based accounting system.
 There is no systematic approach for the preparation of budget and forecast of
income/expenditure.
 Self-assessment for commercial buildings is yet to be implemented.
 Arrear collections of the property tax is very low.
2.6.3 Service delivery

Water supply
 Distribution network in most areas is old and need replacement.
 Inadequate storage capacity, particularly in the extended areas of the city.
 Non-revenue water is high at about 40%.
 Metering is almost absent in Allahabad.

 Due to political resistance, revision of user charges is delayed and cost recovery is
very low.
 The finances of Jal Sansthan are weak.
 Jal Sansthan, which was earlier an independent body, is now a part of ANN, thus
Institutional-level issues need to be addressed..
 A common account is maintained for water supply and sanitation.
Sewerage
 The existing sewerage collection system is old and dilapidated.
 Coverage of the sewerage network is very low.
 Slums are not covered by the sewerage network.
 There is a need to refurbish the existing sewerage treatment plants.
 No separate account is maintained for sewerage, it’s part of water supply operations.
 Involvement of multiple departments (Jal Sansthan, Jal Nigam and ANN) causes co-
ordination issues.
 Availability of land for the construction of Sewerage Treatment Plants (STP) is an
issue.
Solid waste management
 Willingness to pay user charges is low.
 Due to fund flow constraints at ANN, the tipping fee is not being paid to the
concessionaire.
 ANN does not maintain a record of the total demand of user charges, cost recovery,
etc.
Storm water drainage and roads
 The existing drainage network is inadequate.
 In monsoons the sewerage system also acts as storm water drainage, thus
substantial quantity of silt and debris is drained into the sewer system, which is
detrimental to its life and efficiency.
 Also the increased inflow of storm water into the sewerage treatment plan cause
flooding and hydraulic overloads on the system.
Urban poor
 The population and household data pertaining to slums is old and information on
service in these slums is not available.
 Slow pace of the household survey is leading to delays in the formulation of an area-
specific comprehensive policy for service to the urban poor and creation of database.
 Lack of coordination between DUDA and ANN in forming a comprehensive
development policy for the urban poor.
 Inadequate staff in the district DUDA office. Currently the programmes under DUDA
in Allahabad are being managed by a project officer and an engineer.
2.6.4 Urban planning

 Due to lack of planning to improve the old city area and due its economic activity, it is
observed that there are illegal encroachments. And unorganized parking.
 There exist interdepartmental issues.

 Low political will to address issues pertaining to planning

 The implementing agencies at times do not follow the master plan prepared for
utilities.
2.7 Capacity building
2.7.1 Municipal Governance

 Skill development at all levels is required for the ANN and Jal Sansthan staff. The
training modules need to be designed and conducted to improve technical skills
(including IT/computing), accounting and financial management, etc.
 Training should be provided to senior officers (e.g., Head of department (HOD),
executive engineers, sanitary officers, etc.) to help them understand legal aspects of
infrastructure projects, including training on Public Private Partnership (PPP) aspects
and special and detailed sessions for junior engineers and assistant engineers in on
drafting contracts.
 Standard operating procedures (SOP) need to be prepared for various systems and
process that are followed. These SOPs will enable the officials in field to carry out their
activities systematically.
2.7.2 Municipal Finance

 Continuous and on-job training is required for the accounts department staff particularly
for double entry accounting system (DEAS) for its better implementation (DEAS) and
some specific training modules are required in area of Asset Management and
Valuation.
 All or relevant staff members from accounts department need to undergo basic training
on the use of IT tools for day-to-day operations.
 Handholding support is required for familiarizing with concept of outcome budgeting
and its preparation.
 Handholding support is required on various aspects of accounting and financial
management like reconciliation of bank statements, survey of properties etc,
 ANN also need to be supported to undertake diagnostic studies of its finances and to
identify alternate resources to strengthen its finances.
2.7.3 Service delivery

Planning and implementation
 An institutional mechanism need to be formulated for better coordination between
DUDA and ANN for development and implementation of the comprehensive
development policy for the urban poor.
 Trainings is required in the following areas:
 Preparation for DPR, monitor the DPR outputs and improve the quality of DPRs
 Environmental aspects and their implications: this would help in effective planning of
projects
 Tendering process and procurement

 An inventory of PPP projects to be prepared to find alternate means of financing its

infrastructure requirement
Operation and maintenance
 Training in area of service level benchmarking, water auditing, and NRW to technical
staff for better service delivery
 Training to the officials of health and engineering departments in the area of safety of
employees (e.g. During cleaning of drains)
 Trainings in area of project and contract management
 Recruit to filling up the vacant positions if not possible on rolls of ANN then outsourcing
as an option for certain aspects of service delivery need to be explored.
2.7.4 Urban planning

 Recruitment of staff and training of employees
 Better co-ordination is required between various institutions namely TCPD, ADA, ANN,
and Jal Nigam.
 A forum can be developed where the heads from these institutions can gather and
discuss the concerns and issues.

3. Brief city profile and growth
3.1 Brief city profile

The city of Allahabad is among the largest cities of Uttar Pradesh and situated at the confluence of
three rivers: Ganga, Yamuna, and the invisible Saraswati. It was
founded by the Moghul Emperor Akbar in 1575 AD.
There are three distinct physical parts of the city, quite like the district
itself: (i) trans-Ganga or the Gangapar Plain, (ii) the Ganga-Yamuna
doab (confluence), and (iii) trans-Yamuna or the Yamunapar tract. All
three parts are formed by the Ganga and its tributary Yamuna, the
latter joining the former at Allahabad, the confluence being known as
Sangam. General topography of the city is plain with moderate
undulations.
Allahabad has traditionally been well known for its educational
institutions, the University, the High Court, and as a centre of
pilgrimage, intellectual and socio-political activity. The city’s economy
however has for the past many years been thriving on tertiary sector
activities.
Commerce in Allahabad features utensil markets, cloth markets, cycle markets, gur mandis, spice
markets, general merchandise, oil and ghee mandis, stationery stores, grain markets, timber/furniture
mandis, and fruit and vegetable markets.
Allahabad has locational advantages as it is well-connected with other industrial towns and important
places of the country. There is no dearth of skilled as well as unskilled labour and professionally
qualified personnel in the district. It is also a marketing centre for the neighbouring districts of eastern
Uttar Pradesh and northern Madhya Pradesh. The presence of a number of public and private
undertakings make Allahabad a promising place for setting up medium and small enterprises (MSE).
Sangam, Allahabad Fort, Patalpuri Temple and Akshaya Vat, Anand Bhawan, Swaraj Bhawan,
Khusrau Bagh, Hanuman Mandir, and the Allahabad Museum have made the city an important tourist
and pilgrim destination.
Figure 2: Allahabad
3.2 Population trends

Allahabad’s decadal population growth in 2011 was below the national average of 17.64%. Population
growth has gradually dropped down from 30% in 1991 to 12% in 2011. The population growth in
these decades is captured in the table below.

Table 1: Population growth
Census Decadal Growth

Population
Year increase Rate (%) 1,500,000
1971 513,036 82,306 19% 1,000,000

1981 650,070 137,034 27%
500,000
1991 844,546 194,476 30%
2001 1,081,622 237,076 28% 0
1971 1981 1991 2001 2011
2011 1,216,719 135,097 12%
Table 2: Indicators
No. Indicator
Demographic
1 Population density 7,419 persons per sq km
Population - 1,216,719
Area – 164 sq km
2 Decadal Population Growth Rate 2011 - 12%
3 Literacy Rate 86.50%
4 Sex Ratio 858
Male - 601,363
Female - 515,731
5 Household Information 206,784*
Slum Characteristics
6 % Slum Population 35%
Slum population - 429,674*
Source – Census 2011
*Information as per ANN estimates

4. Urban Governance
4.1 Status of 74th CAA
Out of the 18 functions mentioned under the 12th Schedule, 12 functions have already been devolved
to the ULBs. The state government has taken a stand against transferring of fire services to ULBs
because, as of today, the functional domain of fire services stretches beyond the limits of local bodies
and is being managed by the Police Department.
It was informed during discussions that the state government is considering handing over some
responsibilities to Allahabad Nahar Nigam (ANN) like planning and housing, which currently are not
under its purview. But there is no clarity as to when and how this will happen.
th
Table 3: Status of 74 CAA
Sr.
Reform Remarks
No.
Urban planning including
1. In progress
town planning Functions like urban planning, regulation of
Regulation of land-use land-use, and planning are carried out by
2 and construction of In progress ADA.
buildings
ANN has no role to play in the performance of
Planning for economic
3 In progress these functions, since the planning activities
and social development
are all handled by ADA.
The Jal Sansthan has been dissolved and
Water supply – merged with the Nagar Nigam. A detailed
5 domestic, industrial, and Completed government order dated 04.02.2010 has
commercial been issued regarding the functioning of the
Jal Sansthan.
Fire services are currently managed by the
Police Department. The discussions with
state-level officials revealed that this function
7 Fire services In progress is likely to remain with the Police Department.
On the contrary, ANN has been asked to
prepare a fire hazard response and a
mitigation plan for its jurisdiction.
ANN would perform this function in
Urban forestry,
consultation with the State Forest
protection of
8 In progress Department. Tree plantation on dividers,
environment, and
road-side land, and other available open land
ecology
is done by ANN.
Safeguarding the ANN would perform this function in
interests of weaker consultation with the Social Welfare
In progress with
9 sections of the society Department of the state, by earmarking
delay
including the physically funds; the scheme would be executed by
and mentally challenged SUDA/DUDA.
Various departments under ANN are
Slum improvement and Completed performing this function, and allocations have
10
up-gradation been made in the budgets of the local bodies.
DUDA is responsible for all slum housing

Sr.
Reform Remarks
No.
projects and for providing service
infrastructure in them.
ANN has been empowered to select
beneficiaries for special projects for the urban
housing and employment programme. ANN
Completed has also been empowered to undertake
11 Urban poverty alleviation infrastructure development in the urban poor
areas. The Commissioner has a
representation on the governing body of the
DUDA, which undertakes special projects
relating to urban poverty alleviation.
4.2 Status of MPCs and DPCs

District Planning Committees (DPC) were made functional in 2008. Metropolitan Planning Committees
(MPC) were to be constituted by 2012 after the ANN and State Assembly elections, but this is yet to
happen. Provision for the creation of MPCs has been made in the Nagar Nigam Act. As per section
57A, in every metropolitan area, an MPC will prepare the draft development plan for the metropolitan
area as a whole.
4.3 Functions, roles, and responsibilities of Urban Local Body

(ULB) and parastatals
All the municipal functions are not carried out by the ULB in Allahabad. ANN is mainly responsible for
solid waste management, street lighting, and roads, while the other functions are taken care of by
various parastatals.
The roles and responsibilities have been summarized in the table below.
Table 4: Roles and responsibilities of ULB and parastatals
Sr. Urban infrastructure Planning and Construction/

O&M
No. service design Implementation
UP Jal Nigam, Jal UP Jal Nigam, Jal Kal
1 Water Jal Kal
Kal (small projects) (small projects)
UP Jal Nigam, Jal UP Jal Nigam,
UP Jal Nigam, Jal
2 Sewerage and Drainage Kal, (small projects), Jal Kal, ANN,
Kal (small projects)
DUDA DUDA
3 Solid Waste Management ANN ANN ANN
4 Urban Transport UPSRTC UPSRTC UPSRTC
Urban Planning and Town
5 ADA, TCPD ADA
Planning
ANN, ADA,
6 Street Lighting* ANN, ADA, PWD ANN, ADA, PWD
PWD
UPPCB, UP Jal UP Jal Nigam,
7 Environment Protection UPPCB
Nigam, Jal Kal, ANN Jal Kal, ANN
8 Urban Poor Settlements DUDA, ADA, ANN ANN, Jal

DUDA, ADA, ANN,
Sansthan, UP

Sr. Urban infrastructure Planning and Construction/

O&M
No. service design Implementation
UP Jal Nigam Jal Nigam
DUDA – District Urban Development Authority, ANN – Allahabad Nagar Nigam, ADA – Allahabad
Development Authority, UPSRTC – Uttar Pradesh State Road Transportation Corporation, TCPD –
Town and Country Planning Department
*in respective jurisdiction
4.3.1 About Allahabad Nagar Nigam

ANN has been divided into 80 wards, which are grouped into five zones. In all, 80 councillors are
elected, who form the general body of ANN and work in tandem with the executive staff. The
organization structure of ANN is as follows.
Figure 3: Organization structure of ANN
4.4 Assessment of human resource development at ULB

There is a shortage of manpower in the ULB due to retirements; new recruitments have been halted.
This has led to pressure on the existing manpower to perform the same tasks, to achieve the desired
service levels and outputs.
Currently, there is no new policy to reduce the salary expenditure. However, to meet the gap at the
lowest level, ANN outsources the work of safai karamcharis and computer operators. The table below
presents the number of filled and vacant posts category wise.

Table 5: Category-wise manpower strength
Sr. Particulars Total Filled Vacant

No.
1 Centralized 108 78 30
2 Non-centralized 1237 1196 41
3 Sanitary workers 2575 2200 375
TOTAL 3920 3142 446
GoUP constituted a committee under the chairmanship of the Director of Local Bodies (DLB) in 2006
to establish norms for categorization, up-gradation, reorganization, and rationalisation of the human
resources in ULB.
The committee has already submitted its report to GoUP. The Finance Department of GoUP has
approved the recommendations of Directorate of Local Bodies (DLB). Approval from the Cabinet is
awaited. Upon approval from the Cabinet, many posts such as those of the accounting, revenue, and
IT cadres; environment engineers; and city managers shall be created at the ULB level.
4.5 Assessment of trainings programmes

Training need assessment of the staff at ANN and Jal Kal has been undertaken. ANN frequently
sends its staff members to attend trainings, but no record is maintained in this context. However, a
training calendar for future trainings has been prepared.
At the state level, trainings are regularly organized by the UP Administrative Academy & Institution of
Public Administration on subjects like urban governance, SWM, disaster management, GIS-based
utility mapping for urban planning and management, and biomedical waste management. It has also
circulated a training calendar. Several ANN officials attended these workshops.
Trainings are being provided to the accounting staff to use the newly introduced e-governance system
on an ad hoc basis, but no structured efforts are in place.
4.6 Status of e-governance implementation and the support

required therein
There has been fair progress with regard to the implementation of standalone software modules such
as the Property Tax Module, Birth & Death Module, and Personnel Information System. Initiative has
been undertaken for the development of a citizen’s grievance module. The e-procurement module
does not offer end-to-end solutions including online bid submission.
Table 6: e-Governance reforms
Sr. no. Reform Milestones Current Status
 Implemented
 The module is implemented since Nov 2006.
Registration of births and  Online registration can be done. However, online

1 issuance of birth and death certificates requires digital
deaths
signature. The system is not in place presently.
 Digitization of archives for birth and death registration
has been completed.
2 Public grievance redressal  Completed


 The module has been operational from 23rd May 2010.
Both web and window based application is being used.
Currently, window based registration or SMS based
complaints are lodged, which are directly fed into the
module after generating a complaint ID.
 Delayed, work in progress

 Property tax software has been integrated with the
Corporation’s website for online payment. Citizens can
also view their outstanding bills through the website, the
property tax demand notices are automated and are
system generated,
Property tax management,  All property tax records have been digitized and
3 including record property tax data base is integrated with GIS database.
management
 However the property tax software is not yet integrated
with the Accounting Module, this integration would be
done once Finance and Accounting Software (FAS) is
developed- this activity is being undertaken at the state
level, for which vendor selection process for the
development of e-governance module shall be initiated
shortly.

 Double-entry accounting system has been
implemented.
 Tally is being used as standalone accounting software.
4 Municipal accounting system At the state level, the vendor selection process for the
development of e-governance modules, such as FAS,
shall be initiated shortly.
 The integration of Jal Sansthan accounts with ANN is
underway and subsequently the accounts of Jalkal will
be integrated with the ANN accounting system.
 In progress
 Public can download new water/sewage connection
forms from the website: www.allahabadjs.in.
Water supply and other
5
utilities  All data has been computerized. Computerized bills and
receipts are being issued. All municipal zonal offices
are connected for billing & collection system, however,
online payment has not yet been enabled
Personnel management, i.e.,  Employee payroll system has been implemented.

6 a personal information Details regarding employee salary, pension, PF, and
system bonus are maintained by using this software. The
service book information system has been developed,
and all data has been entered.
 In progress
7 e-Procurement
 Vendors can only download tender documents from the
website; complete e-tendering process is not available


as it requires state-level initiatives.
 In progress
 Monitoring of projects is being done by the Performance
Monitoring and Evaluation System (PMES) System of
8 Project/ward works Ministry of Urban Development (MoUD) for JNNURM
projects only.
 This software has been developed by UP Electronics
and monitoring is done by computerized database
 In progress
Payment of utility bills and  Only the billing process is computerized. Bills and
9 management of utilities that receipts are being issued through the application
come under the ULBs software. All zones are connected for the billing and
collection system. However, online payment for citizens
has not yet been enabled.
 In progress
 Building plan approvals are provided manually by the
Allahabad Development Authority (ADA).
10 Building plan approval  Presently there is no such system. This has to be

developed at state level.
 The software for issuance of NOCs has been
developed by UP Electronics, and computerized NOCs
are being issued.
 In progress
11 Licences  Food and trade licences are issued manually. Data
entry is done in Excel.
 In progress
 SPML is involved in door to door collection under the
supervision of ANN and provides MIS as and when
12 Solid waste management
required.
 Efforts are being made to establish online systems.
Billing has been computerised.

4.7 Indicators
Table 7: Indicators
Indicators Inputs
The public disclosures are made by online publication of the
Public disclosures budget and tenders while there is no separate provision for
community participation.
Transparency/
The progress and project-sanctioned reports of various
Disclosure Reports
programmes are published on the websites.
Procurement Standard government procurement procedures are
procedures followed.
4.8 Key findings/observations

 Six of the 18 functions are yet to be transferred to ANN. Currently There is plan to transfer the
remaining functions to ANN.
 It is observed that in Allahabad there are many agencies that are involved for provision of
services delivery, and there is lack of coordination among them, which is the major reasons for
delay in the implementation of reforms.
 Allahabad Nagar Nigam has implemented various standalone IT modules, however it will be a
challenge for them to integrate all these standalone modules as per framework designed at the
state-level. In addition there few more obligatory standalone modules like building plan approval
system etc. that are yet to be implemented
 An online building plan approval system is yet to be developed. Further, a building plan approval
system is also required to be developed as a state-level initiative as it falls under the purview of
ADA.
 Dissemination of information with regard to the citizen’s charter is absent, and is also not
displayed anywhere within the ULB or at citizen facilitation centres of ANN.
 ANN is facing severe capacity constraints both in terms of availability of manpower and skill set to
monitor and maintain the e-governance modules that have already been implemented.
 An institutional mechanism for handholding and training is required.
4.9 Capacity building areas

 Skill development at all levels is required for the ANN and Jal Sansthan staff. The training
modules need to be designed and conducted to improve technical skills (including IT/computing),
accounting and financial management, etc.
 Training should be provided to senior officers (e.g., Head of department (HOD), executive
engineers, sanitary officers, etc.) to help them understand legal aspects of infrastructure projects,
including training on Public Private Partnership (PPP) aspects and special and detailed sessions
for junior engineers and assistant engineers in on drafting contracts.
 Standard operating procedures (SOP) need to be prepared for various systems and process that
are followed. These SOPs will enable the officials in field to carry out their activities
systematically.

5. Municipal Financial Management

5.1 Administration of finances at ULB
The Accounts Department administers the finances of ANN. The department is headed by a chief
accounts officer. The officer is usually a state government cadre officer.
 Preparation and finalization of budget
In November, the Accounts Department requests the line departments of the municipal
corporation to submit a draft budget, based on the requirements for the following year. By
January, the draft budget submitted by the line departments is finalized by the Accounts
Department and an estimated budget is prepared. Usually, the average
expenditure/revenue is taken for the last three years and a certain percentage is added
to it for arriving at the estimated budget.
 On finalization of the budget by the Accounts Department, it is sent to the Additional Municipal
Commissioner for further discussion and finalization. Thereafter, the commissioner calls a
meeting of all the line departments to discuss the estimated budget before sending it to the
Executive Committee, which is headed by the Mayor. Once cleared, the budget is sent to the
General Body of the municipal corporation. After the budget is adopted by the General Body of
the municipal corporation, it is published.
 Audit and control systems
 The municipal corporation follows a post audit of works approach.
 The audit is undertaken by an external auditor and has been completed till the year 2010-11.
 The Accounts Department prepares monthly income and expenditure statements. If the
monthly expenditure of the line departments exceeds the budgeted estimates, then a note is
sent to the respective head of the department seeking reasons for overshooting the budget.
 In October, the revised budget estimates for the year are adopted by the municipal
corporation.
 Issues with respect to manpower in the department
 Low technical expertise among department officials; most of the officials do not understand
the double-entry system and balance sheets
 Though the state government has appointed an agency to train the officials of the Accounts
Department, it has not been very helpful.
5.2 Reform implementation

 Action plan for reforms in municipal finance
 An accounting manual, prepared in line with the National Accounting Manual, should be
approved by the state government for its mandatory application at all the ULBs across the
state of Uttar Pradesh.
 Amendments to the Municipal Act may be initiated at the state level, to incorporate the
necessary mandatory provisions for introducing an external audit of financial statements of all
the ULBs by the office of the AG, Uttar Pradesh.
 The municipal corporation needs to develop a deeper understanding of outcome budgeting
and start exercising the same.
 Current status
 ANN has moved to the double-entry accounting system. The balance sheets of 2007-08 and
2008-09 have been audited. However, ANN is also maintaining the accounts on the cash-
based entry system.

 Details of the current status of all the reforms have been provided in the annexure to this
report.
 Capacity-building support
 For outcome budgeting, rigorous capacity building of staff is required.
 Training and capacity building of the accounting staff for developing a comfort level with
online systems and DEAS is needed for a smooth transition after FAS is provided.
5.3 Municipal finances

 Financial status at a glance (past four years)
Table 8: Municipal finances – Revenue Account
Items 2008-09 2009-10 2010-11 2011-12 CAGR

Actuals (Rs. Lakhs) %
Opening Balance 169 7,010* 22,835 22,800 377
Revenue Account
Income 6227.96 6277.51 8967.41 8794.66 12
Expenditure 5689.74 6427.67 9002.90 8583.37 15
Surplus/ (Deficit) 514.65 (150.16) (35.49) 211.28 (26)
Overall Status including OB. 7,010* 22,835* 22,800 24,244* 208
*Increase in closing balance reflects the effect of revaluation of assets
 Key sources of revenue and expenditure

 Revenue – Revenue grants, contributions, and subsidies contribute to 68%, tax revenue
contributes to 26%, and non-tax revenue contributes to 4% of the total income.
 Tax revenue consists of property tax, pilgrimage tax, advertisement tax, tax on animals, etc.
Property tax contributes to 93% of the total tax revenue.
 Revenue over 2008-09 to 2011-12 increased due to increase in tax income, user charges,
and grants. Correspondingly, the establishment expense during this period increased from
Rs. 42 crores to Rs. 74 crores.
 Expenditure – Establishment expense comprise 86% and O&M expense comprise 12% of
the total expenditure.
 2 (two) out of the last 4 (four) years witnessed deficits. Expenditure has been growing at a
faster rate than income. ANN needs to explore options to increase revenue base, for
instance, reducing the number of properties exempted from property tax.
Table 9: Municipal Finances – Capital Account
Items 2008-09 2009-10 2010-11 2011-12 CAGR

Actuals (Rs. Lakhs) %
Capital Account
Income 6,131 12,854 12,075 15,293 114%
Expenditure 3,517 15,805 11,442 15,423 150%
Surplus/ (Deficit) 2,614 (2,951) 633 (130)

 The increase in capital income is mainly due grants received for projects under JNNURM and
development works for Kumbh Mela
 Municipal rating
 The municipal corporation got a credit rating of B+ in 2009-10, but the municipal corporation
has zero debt on its balance sheet. So the relevance of the credit rating of the municipal
corporation is minimal.
 Budget for the urban poor
 As per sub-section (4) of Clause 139 of the Uttar Pradesh Municipal Corporations Act, 1959,
25% of the Development Fund shall be earmarked and utilized to provide and promote
services for the urban poor and the inhabitants of the slum areas.
 A separate budget code has been given for services to the urban poor.
 25% of the Development Fund of 2012-13 is allocated for facilities like water supply, drains,
roads, and street lighting. Total budget for the urban poor is Rs. 5.14 crores, and of that, Rs. 1
crore is dedicated for streetlights.
 Assessment of property tax system at ULB
 The properties are assessed through the unit area method.
 Demand-collection balance (DCB) statement
As on 2011-12, 184,244 properties in Allahabad are under the tax net, with 178,182 residential and
6,062 commercial and industrial properties. In addition, 22,540 properties are exempted. Most of the
exempted properties are religious institutions.
Table 10: Property tax DCB statement (in Rs. Lakhs)
Particular 2009-10 2010-11 2011-12 2012-13*
Demand
Arrears 473.77 322.72 207.61 223.34
Current 1326.23 1777.28 2092.39 2421.66
Total Demand 1800.00 2100.00 2300.00 2645.00
Collection
Arrears 348.29 272.36 135.63 178.98
Current 1128.99 1620.03 1941.03 2002.81
Total Collection 1477.28 1892.39 2076.66 2181.79
*till December
 Property taxation at the municipal corporation

The unit area method was adopted in 2002 for the calculation of property tax for residential
buildings. The guidance value was revised in 2010, approximately 8 (eight) years after the
introduction of the unit area method as against the provision of tax revision every 2 (two)
years. Self-assessment for the calculation of tax for residential buildings was implemented in
2002.
Migration to self-assessment systems for commercial and industrial buildings shall be effected
once rules for the same have been framed.
 Coverage enhancement
GIS mapping was carried out in April 2010 by CE Infosystems. In all, the number of properties
under the tax net after the GIS survey increased by 33,000. A complete door-to-door survey
has been conducted on the basis of the GIS maps; upcoming properties are regularly tracked
through spot surveys and the properties are assessed accordingly. Special attention is paid to

properties with areas below 100 sq m; for these properties, building permissions are not
required and no records of the same are available with ADA.
Coverage is now reported to be almost 100%. ANN’s tax administration assesses almost all
properties except the 22,540 exempted properties.
 Frequency of bill generation
Bills are issued on an annual basis. The computerized bills are generated by ANN’s own staff.
 Bill distribution and collection
Taxpayers receive bills by April end. Bills are distributed by post. If taxpayers deposit the tax
st
amount before 31 March of the following year, no penalty is imposed. 10% rebate is being
given for punctual property taxpayers.
Property tax is collected in the following ways:
 Window collection
 Door-to-door collection
 Reasons for improvement in demand and collection
 GIS mapping increased the number of properties under the tax net.
 Awareness programmes organized at the city level by nukkad nataks, daily newspapers, and
pamphlets, and also by the Nagar Nigam personnel.
 New properties have been identified through regular site visits by staff.
 Key municipal financial assessment – Indicators
Table 11: Key municipal finance assessment indicators
Sr. No. Indicators Output
Revenue generation
1. Own revenues as a proportion of total income 32%

2. Per capita own revenues Rs. 232
3. Non-tax revenues as a proportion of own income 13%
Rs. 189*
4. Per capita property tax demand
*for 2011-12
~100%
5. Coverage for property tax net
22,540 exempted properties
6. Property tax collection performance 90%
73%*
7. Water charges collection performance *For both water supply and
sewerage
Expenditure management
8. Operating ratio 0.98
9. Per capita O&M expenditure Rs. 86
10. Salary as percentage of total income 84%
11. Salary as percentage of total expenditure 86%
12. Staff per 1000 population 3.22

Sr. No. Indicators Output
Debt management
Debt overdue as a proportion of total outstanding
13. No outstanding debt
debt
14. Debt serviceability No outstanding debt
5.4 Key issues

 It is observed that the financial capacity of ANN is weak, and it would difficult for ANN
to fund any new projects. Currently also the share of ANN’s component for JNNURM
projects is funded by the state government.
 There is no planned effort to enhance own sources of revenue resources
 Due to lack of relevant training programmes, most of the officials lack basic
understanding of the accrual based accounting system.
 There is no systematic approach for the preparation of budget and forecast of
income/expenditure.
 Self-assessment for commercial buildings is yet to be implemented.
 Arrear collections of the property tax is very low

 Continuous and on-job training is required for the accounts department staff
particularly for double entry accounting system (DEAS) for its better implementation
(DEAS) and some specific training modules are required in area of Asset Management
and Valuation.
 All or relevant staff members from accounts department need to undergo basic training
on the use of IT tools for day-to-day operations.
 Handholding support is required for familiarizing with concept of outcome budgeting
and its preparation.
 Handholding support is required on various aspects of accounting and financial
management like reconciliation of bank statements, survey of properties etc,
 ANN also need to be supported to undertake diagnostic studies of its finances and to
identify alternate resources to strengthen its finances

6. Urban Service Delivery
6.1 Roles and responsibilities of ULB and parastatals

Multiple institutions are involved in providing service delivery in Allahabad. Various state- and city-
level institutions are involved. The table below shows the various agencies involved in service delivery
in Allahabad city.
Table 12: Roles and responsibilities
State-level institutions City-level institutions
 District Urban Development Agency (DUDA)

 Allahabad Jal Sansthan (AJS)
 Uttar Pradesh Jal Nigam (UPJN)
 Allahabad Nagar Nigam (ANN)
 Allahabad Development Authority (ADA)
6.2 Water supply

Jal Sansthan operates and maintains the water supply system of Allahabad and Jal Nigam is
responsible for planning, procurement, and implementation of projects. Jal Sansthan is now a part of
ANN, though it continues to enjoy a large amount of autonomy with regards to administrative and
financial functions.
Allahabad city is divided into 12 water supply zones. The water supply zones Lukerganj,
Khushroobagh, and Atala are supplied water by surface water. While Civil Lines and Kydganj zones
are partially covered by surface water. A part of Civil Lines and Kydganj zones are also covered by
ground water sources. The remaining seven zones, namely, Colonelganj, Daraganj, Rasoolbad,
Sulem Sarai, Naini, Phaphamau, and Jhunsi, are covered by tube well water supply.
308 MLD of water is supplied daily to Allahabad city. Ground water is the main source of water, which
supplies 77% of the total water supply. 23% of the water is supplied by the River Yamuna. An intake
raw water pumping station is located at the banks of the River Yamuna at Kerela Bagh, where pumps
transport water to Khusroobagh water works through pumping mains along the Nurullah Road. The
water supply per capita is 253 lpcd, which is much higher than the required norms. The high water
supply is available due to the perennial source, i.e., River Yamuna. The water supply distribution
network is 1,122 km long.
The quality of water is reported to be of acceptable standard and does not require any special
treatment other than the standard treatment like filtration followed by chlorination in the case of
surface water, and only chlorination in the case of ground water.
In slums, there are in all 1,273 public taps, 2,383 hand pumps, and 207 tube wells. In some slums,
ANN supplies water through 22 water tankers. However, there are no direct water supply connections.
Jal Sansthan estimates unaccounted water to be in the range of 30-35%. To reduce technical and
commercial losses, Jal Nigam is currently implementing two water supply projects under JNNURM.
The cost of the approved projects is Rs. 249 crores. The works include:
 Replacement of the water supply network
 Laying of raw water mains
 Laying of clean water transmission
 Construction of storage reservoirs
 Installation of water meters

The projects are expected to be completed by September 2013.

The billing and collection of user charges is carried out by Jal Sansthan. Taxes as well as water and
sewerage charges are levied on users, based on the annual rental value (ARV) of properties worked
out by ANN. Billing and collection of user charges is undertaken by Jal Sansthan’s own staff.
Key Challenges
 Distribution network in most areas is old and need replacement.
 Inadequate storage capacity, particularly in the extended areas of the city.
 Non-revenue water is high at about 40%.
 Metering is almost absent in Allahabad.
 Due to political resistance, revision of user charges is delayed and cost recovery is very low.
 The finances of Jal Sansthan are weak.
 Jal Sansthan, which was earlier an independent body, is now a part of ANN, thus Institutional-
level issues need to be addressed.
 A common account is maintained for water supply and sanitation.
Service-level Indicators
Table 13: Service-level indicators – Water supply
MOUD
Sr. No Indicator Value
Benchmark
Coverage of water supply connections
1 73% 100%
(Total no. of connections – 151,093; Total no. of properties – 206,784)
Per capita supply of water
2 253 LPCD 135 LPCD
(Total water supply – 308 MLD; Population – 1,216,719)
Extent of metering of water connections
3 1% 100%
(No. of metered connections – 1,230; Total connections – 151,093)
Extent of non-revenue water
4 40% 20%
(As per estimates of ANN)
5 Continuity of water supply 10 hours 24 hours
6 Efficiency in redressal of customer complaints Data not available 80%
7 Quality of water supplied Data not available 100%

Cost recovery in water supply services
8 (Income – Rs. 39.07* crores and Expenditure – Rs. 48.32* crores 81% 100%
Efficiency in collection of water supply related charges
9 73% 90%
6.3 Sewerage
Jal Sansthan is responsible for the operations and maintenance of the sewerage network, while Jal
Nigam is engaged in planning, designing, and construction of the sewerage system; the Ganga
Pollution Unit under it maintains the sewerage treatment plant (STP). In addition, the Health
Department under ANN in involved in the cleaning of some drains.
The sewerage master plan was prepared by the Japan International Cooperation Agency (JICA) in
2005. The overall sewerage system is divided into seven districts. Currently, the sewerage network
covers only 40% of the city, which means that the remaining households are either connected by
septic tanks, pits, or service latrines or do not have access to toilets.
In the slums, there are 5,252 sanitation flushes, which have been developed by DUDA, and 120
public toilets maintained by the Sulabh Complex. Further, development of 143 community toilets has
been proposed under the National River Basin Authority (NGRBA) scheme.
Sewerage generation in the city is estimated to be 250 MLD, and the treatment capacity against it is
211.5 MLD. Most of the installed capacity is being utilized. Projects are underway to cover the entire
city with the sewerage network and increase treatment capacity. The projects are as follows:
1. Augmentation of STP capacity by 60 MLD
2. Laying of sewer lines of 235 km
3. Renovation and construction of new sewerage pumping station (SPS)
Jal Nigam has planned to augment the sewerage network by another 750 km and increase treatment
capacity. The detailed project reports (DPR) for these projects are at various stages of approval.
ANN, with support from JICA, has planned to construct 143 community toilets, and also to renovate
and construct dhobi ghats.
Key Challenges:
 The existing sewerage collection system is old and dilapidated.
 Coverage of the sewerage network is very low.
 Slums are not covered by the sewerage network.
 There is a need to refurbish the existing sewerage treatment plants.
 No separate account is maintained for sewerage, it’s part of water supply operations.
 Involvement of multiple departments (Jal Sansthan, Jal Nigam and ANN) causes co-ordination
issues.
 Availability of land for the construction of Sewerage Treatment Plants (STP) is an issue.
Table 14: Service-level indicators – Sewerage
MOUD
Sr. No. Indicator Value
Benchmarks
Data not
1 Coverage of toilets 100%
available
Coverage of sewerage network services
2 20% 100%
(No. of connections – 40,000; No. of properties - 206,784)
Collection efficiency of sewerage network
3 (Sewerage treated – 211 MLD; Sewerage generated - 250 85%* 100%
MLD)
Adequacy of sewerage treatment capacity
4 (Sewerage treated – 211 MLD; Sewerage generated- 250 85%* 100%
MLD)
Data not
5 Quality of sewerage treatment 100%
available
Extent of reuse and recycling of Sewerage
6 (The treated sewerage is not of reusable grade. Hence, it is 0% 20%
discharged in water bodies)
Extent of cost recovery in Sewerage management
7 (Income – Rs. 39.07* crores and Expenditure – Rs. 48.32* 81% 100%
crores
MOUD
Benchmarks
Data not
8 Efficiency in redressal of customer complaints 80%
available
Efficiency in collection of sewerage related charges
9 73% 90%
*Same volume of sewerage is collected and treated. Hence collection efficiency and
adequacy of sewerage treatment capacity is the same
6.4 Solid waste management

ANN had signed an agreement for SWM with SPML for door-to-door waste and user charge collection
and transportation, treatment, and disposal of waste for a period of 30 years. ANN is now only
involved in street sweeping.
Most of the waste generated in Allahabad comprises food and other discarded waste materials such
as paper, plastic, glass, metal, rags, and packaging materials. Currently, the door-to-door collection
facility is offered by the concessionaire to half the wards. It is estimated that 500 TPD waste is
generated in Allahabad. The waste is collected in tricycles and dumped in secondary dustbins. There
are 800 CP bins and 90 DP bins. Of the waste generated, 400 TPD waste is collected and
transported to the treatment site. The vehicles make two to three trips a day. Vehicles used for
transportation include compactors, dumper placers, tippers/dumpers, and trucks.
A 300 TPD mechanical composting treatment plant and landfill has been constructed on a site area of
25 hectares. The site is located at a distance of 19 km from the city.
Currently, many sanctioned posts lie vacant. Out of 2,575 sanctioned sanitary workers, only 2,200 are
employed.
Key challenges:
 Willingness to pay user charges is low.
 Due to fund flow constraints at ANN, the tipping fee is not being paid to the concessionaire.
 ANN does not maintain a record of the total demand of user charges, cost recovery, etc
Table 15: Service-level indicators – SWM
MOUD
Benchmarks
Household-level coverage of SWM services
1 (D-t-D coverage in properties 103,000; Total no. of properties 50% 100%
206,784)
Efficiency of collection of municipal solid waste
2 80% 100%
(Waste collected – 400 TPD; Generated – 500 TPD)
3 Extent of segregation of municipal solid waste 0% 100%
4 Extent of municipal solid waste recovered 100% 80%
5 Extent of scientific disposal of municipal solid waste 100% 100%

MOUD
Benchmarks
Data
Extent of cost recovery in SWM services
not
6 (User charges collected from October 2011 till date are Rs. 2.08 100%
availabl
crores. The ULB has not been paying tipping fee on time)
e
Data
not
7 Efficiency in redressal of customer complaints 80%
availabl
e
Data
not
8 Efficiency in collection of SWM related user related charges 90%
availabl
e
6.5 Storm water drainage

Allahabad has a poor storm water drainage system. The existing drainage system covers only 40% of
the city. Storm water is drained off through a very old and incomplete underground and kachcha open
drainage system. 57 nallas/drains carry significant amount of sewerage. Out of the 57 nallas, 44
discharge into the Ganga, while 13 discharge into the Yamuna.
There are six major drains passing through the municipal area, viz., Ghaghar, Chachar, Morigate,
Allenganj, Rajapur, and Mumfordganj, which carry storm water and fall under the catchment area of
the River Yamuna. These drains carry a significant amount of water to the rivers Ganga and Yamuna
during the dry season and storm water mixed with sewage water during the rainy season.
The problem of storm water drainage remains acute in several localities. Allahpur, Tagore Town,
George Town and Hashimpur, Chaukharda, Khalasi Lines, Krishna Nagar up to Triveni Road, main
road of Ram Bagh, Talab Nawal Rai, Baghambari Road, Labour crossing, Matiyara Road, Tripathi
Colony and Nai Basti of Sohbatiabagh, Copper Road, Stanley Road, Lukerganj playground, Leader
Road, Suraj Kund, Beli Colony village, and Rajapur among others suffer from chronic water-logging
during the rainy season.
Key challenges:
 The existing drainage network is inadequate.
 In monsoons the sewerage system also acts as storm water drainage, thus substantial quantity of
silt and debris is drained into the sewer system, which is detrimental to its life and efficiency.
 Also the increased inflow of storm water into the sewerage treatment plan cause flooding and
hydraulic overloads on the system.
Table 16: Service-level indicators – Storm water drains
Sr. Indicators Formulas Output MOUD

No. Benchmark
Solid waste management

1. Coverage of storm Percentage of road 25% Zero
water drainage length covered by the Total length of
network storm water drainage drains – 585 km
network
2. Aggregate number of The number of times Data not available -

Sr. Indicators Formulas Output MOUD

No. Benchmark
incidents of water- water-logging is
logging reported in a reported in a year, at
year flood-prone points
within the city
3. Proportion of roads Pucca drain road Data not available
with pucca drains length/total road length
6.6 Roads and streetlights

The Engineering Department, headed by the Chief Engineer, constructs and maintains roads and
streetlights in Allahabad. Over 97% of the roads are surfaced, but due to the near absence of storm-
water drains and the laying of sewer networks across the city, the condition of roads remains poor.
Traffic in the city comprises mostly motorized (mainly two-wheelers and autos) and non-motorized
(cycle-rickshaws and bicycles) vehicles. The main reason for congestion in the city is unregulated
movement of cycle-rickshaws followed by two-wheelers and autos.
The Electricity Department under the Engineering Department is responsible for the installation,
replacement, repair, operation, and maintenance of streetlights in the city. There are 49,200
streetlights in working condition in Allahabad, spaced at distances of 35-50 m, as against the norm of
30 m. The streetlights mainly comprise tube rods and sodium lamps and tube lights. Almost all the
roads are illuminated by streetlights, but ANN does not have a record of roads with no streetlights.
Key challenges:
 Though most of the roads have been re-laid because of the Kumbh Mela, maintaining the roads
will be a challenge.
 The composition of traffic volume is mixed and includes a large proportion of slow-moving traffic,
mainly rickshaws.
 Carrying out a detailed assessment of spacing and energy audit to assess the power
consumption
 High energy costs for implementation of efficient automatic switching operations
Sr. Output Remarks

Indicators Formulas
No.
Roads and streetlights

Road area per Data not available
1. Road area/ULB population
capita
97% Total road length – 2357
Proportion of Surfaced road length/total km; Surfaced and semi-
2.
surfaced roads road length surfaced road length –
2277 km
O&M cost per O&M expenses (Roads Data not available
3.
kilometre of road Department)/Total road length
Street lighting Total road length/Total no. of ~48 m Total number of
4.
spacing street lights streetlights – 49,200
O&M cost per O&M expenses for street Data not available
5.
street light lighting/Total number of street

Sr. Output Remarks

Indicators Formulas
No.
lights
6.7 Housing and infrastructure for the urban poor

At the state level, the Government of Uttar Pradesh has launched several schemes for providing basic
services to the urban poor, which include security of tenure and improved housing at affordable
prices. Schemes that are being implemented are Sarv Jan Hitay Gareeb Avas (Slum Area) Malikana
Haq Yojna, Manywar (MKDBBSVY), and Shri Kanshi Ram Ji Shahri Avas Yojna. The District Urban
Development Authority (DUDA) is responsible for the implementation of such schemes. After
implementing these schemes, DUDA hands over the responsibility of providing services to ANN and
Jal Kal.
Currently, DUDA is in the process of undertaking a household-level survey. Once the survey is
complete, a database will be created. Specific service standards like water supply connections and
sewerage connections, pertaining to the urban poor, are not available with DUDA.
Under the Shri Kanshi Ram Ji Shahri Avas Yojna scheme, 1,500 houses have been constructed and
allotted to beneficiaries by DUDA. Another 511 dwelling units are under construction.
20% of the saleable land and plots are being reserved for housing projects for the EWS and LIG
categories, to be developed by ADA. Further, GoUP has issued a government order stating that such
provision of reservation should be followed by private developers also.
Key challenges:
 The population and household data pertaining to slums is old and information on service in these
slums is not available.
 Slow pace of the household survey is leading to delays in the formulation of an area-specific
comprehensive policy for service to the urban poor and creation of database.
 Lack of coordination between DUDA and ANN in forming a comprehensive development policy for
the urban poor.
 Inadequate staff in the district DUDA office. Currently the programmes under DUDA in Allahabad
are being managed by a project officer and an engineer.
6.8 PPP exposure

GoUP amended the UP Municipal Act, 1916, in September 2009 and empowered the ULBs to enter
into PPP agreements with the private sector, to implement the infrastructure projects and discharge
the services. Further, GoUP issued a government order to each ULB for the development of the
following facilities on PPP basis, viz., parking places, modernization of slaughterhouses, and an
electric crematorium.
In the past, ANN has undertaken various PPP initiatives:
 ANN signed a contract with M/s SPML Infra Limited to undertake collection, transportation,
treatment, and disposal of municipal solid waste.
 ANN has signed a contract for the construction and operation of bus shelter in Allahabad city.
 Several initiatives under PPP have been undertaken by ANN such as electric crematorium, public
toilets, park beautification, etc.


Planning and implementation
 An institutional mechanism need to be formulated for better coordination between DUDA and
ANN for development and implementation of the comprehensive development policy for the urban
poor.
 Trainings is required in the following areas:
 Preparation for DPR, monitor the DPR outputs and improve the quality of DPRs
 Environmental aspects and their implications: this would help in effective planning of projects
 Tendering process and procurement
 An inventory of PPP projects to be prepared to find alternate means of financing its infrastructure
requirement
Operation and maintenance
 Training in area of service level benchmarking, water auditing, and NRW to technical staff for
better service delivery
 Training to the officials of health and engineering departments in the area of safety of employees
(e.g. During cleaning of drains)
 Trainings in area of project and contract management
 Recruit to filling up the vacant positions if not possible on rolls of ANN then outsourcing as an
option for certain aspects of service delivery need to be explored.

7. Urban Planning
7.1 Urban planning functions

In 1967, the state government handed over the responsibility of preparing the master plan of the city
and village employment department to ADA. The first Master Plan – 1991 was approved by the state
government in 1973. To meet the needs of the growing city, the Master Plan 2001 was approved by
the state government in 1995.
The master plan of Allahabad is prepared by the Town and Country Planning Department, Allahabad.
ADA, which was constituted in 1974, is responsible for the implementation of the master plans, along
with the development of new areas and provision of housing and the necessary infrastructure. ANN is
not involved in the planning, preparation, or implementation of master plans.
7.2 Status of master plans and land-use plans

The existing urban setting and growth trends of Allahabad can be classified into three main
categories:
 The old city consists of Chowk, Ghantaghar, Bans Mandi, Katghar, Kotwali, Gaughat, etc. This
also includes certain areas, though not contiguous but with similar character, like Daraganj,
Bairhana, and Katra.
 The new city (conceived during the British rule and thereafter) includes Civil Lines, Mumford Ganj,
Ashok Nagar, and Cantonment.
 The outer growth areas (satellite towns and ribbon developments) along major corridors include
Phaphamau, Jhunsi, Naini, Bamrauli, Manauri, etc.
Currently, the Master Plan 2021 is in use. As per this master plan, the total area under planning
jurisdiction is 30,917 hectares. The projected population for this master plan is 20.50 lakhs. The
recreational land use covers a significant portion of land use, which is due to inclusion of ground for
Kumbh Mela as part of recreational area.
Table 17: Land use
Land use Area covered (in hectare)

Type of land 2001 2021
Residential 7622.24 11164.48
Commercial 545.43 746.20
Industrial 1217.81 1722.89
Recreational 2531.48 4953.45
Administrative 1871.09 2624.50
Transportation 2434.80 3736.3
Government and semi-government 571.24 1179.78
Public utilities 1660.53 690.05
Other land use 3234.51 4099.73
Total 21689.13 30917.38

7.3 Existing practice for planning process

The master plan is prepared by the Town and Country Planning Department in-house. The draft
master plan once prepared, is put in the public domain for discussion. Elaborate discussions are held
on all the issues raised by all stakeholders. Once the issues are discussed, the master plan is sent to
the state government for approvals.
7.4 Status of key reform implementation

 ADA has prepared the building byelaws and uploaded the same on its website. In addition, ADA
has taken key initiatives and streamlined the approval process for building plans within the region.
Mitigation measures for fire, earthquake, etc., have been incorporated in the building byelaws.
 The process to streamline the building approval process is underway. The time limit for building
plan approval has been capped at 30 and 90 days for residential and commercial buildings
respectively. ADA also specified that building sanctions have been given in a majority of cases as
per the time limit specified in the building byelaws. Further reduction is only possible upon
implementation of the MIS system of all offices bearing NOC on building permission.
 ADA has made provision in the building byelaws for rainwater harvesting requirements within the
region. It is mandatory for a building with area more than 300 sq m.
 20% (twenty percent) of the saleable land and plots are being reserved for housing projects for
the EWS and LIG categories, to be developed by the ADA. A government order has been issued
stating that such provision of reservation should be followed by private developers also.
7.5 Key takeaways and concerns

 Due to lack of planning to improve the old city area and due its economic activity, it is observed
that there are illegal encroachments. And unorganized parking.
 There exist interdepartmental issues.
 Low political will to address issues pertaining to planning
 The implementing agencies at times do not follow the master plan prepared for utilities.
7.6 Recommendations for effective implementation of planning

process
 Recruitment of staff and training of employees
 Better co-ordination is required between various institutions namely TCPD, ADA, ANN, and Jal
Nigam. A forum can be developed where the heads from these institutions can gather and
discuss the concerns and issues

8. Annexure
8.1 List of References

 City Development Report, Allahabad Nagar Nigam, 2006
 Allahabad Master Plan
 Reform Appraisal Report, Uttar Pradesh, CRISIL Risk and Infrastructure Solutions Limited,
2013
 Allahabad Financial Statements – Income and expenditure statement and balance sheets for
the years 2007 to 2012
 JNNURM Quarterly Progress Reports, March 2013
8.2 List for officials met during 6th - 8th May 2013
SN Name of person met Designation and department Contact details
1. Mr. R V Singh Municipal Commissioner, ANN 7408422303
2. Mr. Pradeep Kumar Additional Municipal Commissioner, ANN 7408422307
3. Mr. R B Singh General Manager, Jal Sansthan 9415217668
4. Dr. P K Singh Municipal Health Officer, ANN 7408413158
5. Mr. Sanjay Chauhan Executive Engineer, ANN 9412100520
6. Mr. J P Madi Executive Engineer, Jal Nigam 9473942674
7. Mr. G C Dubey Executive Engineer, Jal Nigam 9473942661
8. Mr. Sanjeev Pradhan Environment Engineer, ANN 7408422379
9. Mr. T N Mishra Accounts Officer, ANN 9839271953
10. Mr. R K Dwivedi HR Officer, ANN 7408422389
11. Mr. Ganguly Town Planner, ADA 9838556309
12. Mr. M Tripathi IT Officer, ANN 7408422342
13. Ms. Pratibha Srivastava Project Officer, DUDA -
Associate Planner, Town and Country

14. Mr. Katiyar -
Planning, Allahabad

8.3 Minutes of the key meetings

Place/Location Municipal Commissioner’s Chamber, Allahabad Nagar Nigam
Date of the th
6 May 2013
Meeting
1. Mr. R V Singh, Municipal Commissioner, ANN

2. Mr. Pradeep Kumar, Additional Municipal Commissioner, ANN
Participants
3. Mr. Rahul Sethi, CRISIL
4. Mr. Varun Gupta, CRISIL
 CRIS team gave an introduction to the Capacity Building for Urban
Development (CBUD) initiative of MoUD, CRIS’s appointment for rapid
baseline assessment study of 30 cities including Allahabad
 The objective and the study areas to be covered under the study were
Discussion discussed.
Points  Mr. Kumar shared the contact details of the persons to be contacted for the
study
 Discussions were held with Mr. Singh and Mr. Kumar on municipal governance
aspects
 In addition, discussions were held to understand the taxation system in the
ULB
Place/Location Health Department, Allahabad Nagar Nigam
Date of the th
6 May 2013
Meeting
1. Dr. P K Singh, Municipal Health Officer, ANN

2. Mr. Sanjeev Pradhan, Environment Engineer, ANN
Participants
Discussion baseline assessment study of 30 cities including Allahabad
Points  Discussions were held to understand the solid waste management system in
Allahabad, including the project structure of the concessionaire appointed for
solid waste management system
 Key issues were discussed and capacity needs identified
Place/Location Accounts Department, ANN
Date of the th
6 May 2013
Meeting
1. Mr. T N Mishra, Accounts Officer, ANN

Participants


Points  Discussions were held with Mr. Mishra to understand the accounting system
prevalent in ANN.
 During the discussions, Mr. Mishra highlighted the issues plaguing the
department and challenges faced by the department employees in their day to
day work
Place/Location DUDA, Allahabad
Date of the th
7 May 2013
Meeting
1. Ms. Pratibha Srivastava, Projects Officer, DUDA

Participants 2. Mr. Rahul Sethi, CRISIL
 Discussions were held with Ms. Srivastava to understand the current status of
Discussion services in urban poor areas and the status of housing projects being
Points undertaken
 During the discussions, it was found that DUDA office does not have latest
status of service levels in urban poor. In addition, the population and
household data available with DUDA was dated.
 However, CRISIL was informed that slum free city report under Rajiv Awas
Yojna is being prepared.
Place/Location Allahabad Development Authority
Date of the th
7 May 2013
Meeting
1. Mr. Ganguly, Town Planner, ADA

Participants 2. Mr. Katiyar, Associate Planner, Town and Country Planning, Allahabad
Points  Discussions were held with ADA officials on the existing status of urban
planning in Allahabad and the role ADA and Town and Country Planning play
in planning of city
 In addition, the officials highlights the key issues in urban planning

Place/Location Allahabad Nagar Nigam
Date of the th
8 May 2013
Meeting
1. Mr. Sanjay Chauhan, Executive Engineer, ANN

Participants
Discussion Development (CBUD) initiative of MoUD, CRIS’s appointment for rapid
Points baseline assessment study of 30 cities including Allahabad
 Discussions were held with Mr. Chauhan to understand the roads,
transportation and street lighting sectors in Allahabad.
 During the discussions, Mr. Chauhan highlighted the key issues in these areas
Place/Location Allahabad Nagar Nigam
Date of the th
8 May 2013
Meeting
1. Mr. R K Dwivedi, HR Officer, ANN

Participants
Points  Discussions were held with the HR officer to understand the HR policies and
rules and training needs of the officials.
 He also shared his view on the challenges faced by the officials in their day to
day work
Place/Location UP Jal Nigam, Allahabad
Date of the th th
7 and 8 May 2013
Meeting
1. Mr. J P Madi, Executive Engineer, Jal Nigam

Participants
2. Mr. G C Dubey, Executive Engineer, Jal Nigam
Discussion  Discussions were held with Mr. Madi and Dubey to understand the water
Points supply and sewerage system of Allahabad.
 The details of the ongoing works were shared with CRISIL. In addition, data
with regard to the sewerage system was also shared.
 Jal Nigam officials shared their view on the issues faced by them while
planning, financing and executing the projects

Place/Location Jal Sansthan, Allahabad
Date of the th
7 May 2013
Meeting
1. Mr. R B Singh, Jal Sansthan

Participants

Points  Mr. Singh shared data with regard to the water supply system of Allahabad. In
addition, he also shared details of tax collected.
 Thereafter, discussions were held with Mr. Singh to understand the issues
plaguing the sector.
8.4 Qualitative questionnaire
8.4.1 Municipal Financial Management

Query
Please narrate the various steps adopted for preparation and finalization and monitoring of budget and
the stakeholders involved at each stage
 The Budget is passed by the month of March whereby the process of preparation is started in the month of
November
 In November, the Accounts Department requests the line departments of the Municipal Corporation to submit
a draft budget based on the requirements for the following year.
 By January, the draft budget submitted by the line departments is finalized by the Accounts Department and
an estimated budget is prepared.
 Usually, the average expenditure/revenue is taken for the last three years and a certain percentage is
added to it to arrive at the estimated budget
 On finalization of budget by the Accounts Department, it is sent to the Additional Municipal Commissioner,
ANN for further discussion and finalization.
 Thereafter, the Commissioner, ANN calls a meeting of all the line departments to discuss the estimated
budget before sending it to the Executive Committee, which is headed by the Mayor. Once cleared, the
budget is sent to the General Body of Municipal Corporation.
 After the budget is adopted by the General Body of Municipal Corporation, it is published
Please provide key principles/ policies adopted internally or as per municipal act for financial planning at
your ULB
1. The budget is prepared as per Uttar Pradesh Municipal Corporation Act, 1959. All proceedings of the ULB
are as per this Act
Please highlight if there any issues with respect to manpower in your department
1. Low technical expertise among department officials –Officials are not well versed with double-entry system,
in spite of extensive trainings being provided
2. There is shortage of skilled manpower
What has been the level of computerization in financial management and revenue administration?
1. The ULB maintains the digital copies of books of accounts for both accruals based and cash based
2. The accounts department has computer operators to maintain the cash based accounts. However, the
accruals based books are maintained by the external CA.
Has the ULB implemented Accounting Reform? if yes, then
Has the balance sheet for latest financial year in place.

1. The balance sheet and income statement till the year 2011-12 has been prepared.
Have the balance sheets being audited by an external auditor. Year of commencement of external audit of
financial statements.
 The audit is undertaken by an external auditor and has been completed till the year 2008-09
What are the different types of financial statements generated

 Balance sheet
 Income statement
 Cash based accounts (income and expenditure)
 Budget
Is the accounting module software interconnected with all other modules as per e-governance reform
 No. Tally is being used as standalone accounting software. At state level, vendor selection process for the
development of E- Governance Modules such as Finance and Accounting Software (FAS) and other
modules would be initiated shortly.
Have all the departments being provided training and handholding for use of Double Entry Accounting
System
 The accounts department is being provided training
 Two personnel from accounts are working with the FLC and getting on-the-job training
What were the key challenges faced by ULB in implementing the accounting reform - Asset valuation,
change management (manpower related), technology adoption etc.
 Outcome budgeting is yet to be initiated
 Training and capacity building of accounting staff for developing a comfort level with online systems and
DEAS is needed for an easy shift after the FAS is provided
Are the ULB officials able to understand and interpret balance sheet and is the system being utilized in
day to day decision making
 Mostly not. The officials are dependent on the CA to understand the financial statements
What are the key benefits ULB has obtained after migration to double entry accounting system
 The ULB is not able to reap benefits after migration to double entry accounting system as officials are able to
interpret or appreciate the double entry accounting system
What is the basis being adopted for budgeting expenditures for the forthcoming year
 Average of last three years is taken and a certain percentage is added to it to arrive at the estimated budget
Is there a monitoring system in place to monitor revenues and budget expenditures on a regular basis
 The Accounts Department prepares monthly income and expenditure statements. If the monthly expenditure
of the line departments exceeds the budgeted estimates, then a note is sent to the respective head of the
department seeking reasons for overshooting the budget.
Does ULB take into account the benefits (outcomes for eg. no. of households connected with water
connections by laying a pipeline etc.) that are created due to investments made in the project?
 Such factors are not looked into in depth.
Is there a separate budgeting practice for urban poor? If yes, what %age of the total budget? Is it
earmarked as a separate budget head or scattered across the budget?
 As per sub-section (4) of Clause 139 of the Uttar Pradesh Municipal Corporations Act, 1959, 25% of the
Development Fund shall be earmarked and utilized to provide and promote services for the urban poor and
inhabitants of the slum areas.
 A separate budget code has been given for services to the urban poor. Head No. 4-11 have been kept for
this specific purpose
Is the ULB planning to adopt a separate budget head for urban poor? Is the ULB prepared for the same?
What issues does it foresee? What support is required?
 Already done
What is generally the practice adopted for recording assets. Are the assets recorded centrally or at
departmental level?
 Departmental level
Is the information related to assets updated as and when they are created?
 No. it is updated intermittently
Do you also use GIS as a system for asset management?

 No
Is there an audit of asset register?

 Yes
Do you follow pre-audit or post-audit of works
 Post audit
In case, post audit is followed, till what year post audit is completed
 2008-09
Has the ULBs finances being rated by any certified Rating Agency. If yes, what was the purpose of this
rating?
 Yes
Has there any measures being taken up by ULB in case the rating of finances is in poor grade?
 The Municipal Corporation got a credit rating in 2009-10 of B+, but the Municipal Corporation has zero debt
on its balance sheet. So the relevance of credit rating to the Municipal Corporation is minimal
What are the key revenue streams? Do you think the ULB is able to realize the revenue potential in the
area of property tax, advertisement revenues, development charges etc.)?
 Revenue grants, contributions, subsidies contribute to 68%, tax revenue contributes to 26% and non-tax
revenue contributes to 4% of the total income
 There is potential to increase the property tax demand as over 10% of the properties in the city are
exempted from property tax

Over the years, what are the steps/efforts taken to enhance revenues?
 Enhanced the number of properties under tax net
 GIS mapping and casual updating of properties under tax net
 Special attention is paid to properties with areas below 100 sq m; for these, building permissions are not
required and no records of the same are available with ADA
 Awareness programs are organized at city level by nukkad nataks, Daily News Papers, Pamphlets and also
by Nagar Nigam personnel .
What have been the bottlenecks/hindrances in revenue enhancement measures?

 Lack of political support to increase tariffs
Any strategy to arrest leakages

 There are no such strategies
Is there a policy on increase in taxation rates in property tax on a regular basis? If yes, is the ULB able to
revise the tax as per schedule? If not what are the bottlenecks?
 Yes
 Public and political resistance for upward revision of guidance values would be an area of concern
Has ULB explored revenues through land development? If yes, please explain the land development
models?
 No
Has the ULB in past or in present raised funds through Municipal Bonds. If no, is the ULB aware of the
procedure and process of raising funds through Municipal Bonds?
 No. They are not aware.
Has the ULB forecasted its revenues for the next 5-10 years? Please discuss the same.
 No.
Please suggest what nature of trainings or capacity building measures you think should be useful for
your department in meeting day to day challenges?
 ANN has prepared the list of trainings required to the officials based on TNA.
 For understanding and appreciating the benefits of double entry accounting system, frequent trainings need
to be provided. Short duration trainings are not sufficient to meet this task
 Skilled manpower to maintain accounts
What control measures are being put in place to manage the various expenditures?
 The Accounts Department prepares monthly income and expenditure statements. If the monthly expenditure
of the line departments exceeds the budgeted estimates, then a note is sent to the respective head of the
department seeking reasons for overshooting the budget
Is there regular monitoring of expenditures? Are there any memos issued in case the expenditures
exceed the planned ones?
 Yes there is regular monitoring. Monthly expenditures reports are prepared.
Do you have ring fencing for capital budgets?

 No
What are the policies with respect to sinking fund?

 There are no policies
Please explain the system of property tax followed by your ULB?
 The unit area method was adopted in 2002 for calculation of property tax for residential buildings. Guidance
value was revised in 2010, approx. 8 (eight) years after the introduction of the unit area method as against
the provision of tax revision every 2 (two) years. Self-assessment for calculation of tax for the residential
buildings was implemented in 2002.
 Migration to self-assessment systems for commercial and industrial buildings shall be done once rules for
the same have been framed
What is the estimated billing potential of property tax? What are the key reasons for not being able to bill
and collect the realize potential?
 The ULB has not prepared the estimated billing potential. As per them, they have achieved ~100% coverage
baring the exempted properties (22,540)

What is the frequency of conducting surveys to identify un-authorised properties? In past, per year how
many properties have been found out of tax net?
 Casual assessment is carried out. There is no defined frequency. Last GIS mapping was carried out in 2010.
In all, the number of properties under tax net after GIS survey increased by 33,000
Are there separate officials for assessment, billing, distribution, collection, vigilance and hearing?
 No.
What is the frequency of issuing of bills to tax payers?

 Annually
Is the billing system computerized?

 Yes
What is the method of distribution of bills? Is it door to door through your staff or through post/ courier
or outsourced to private agency?
 Bills are distributed by post and door to door through own staff.
By when all the bills are distributed to tax payers?

 Tax payers receive bills by April end.
After issuance of bills, within how much time the users are required to pay without any penalty?
 If tax-payers deposit the tax amount before 31st March of the following year, no penalty is imposed
Any schemes/initiatives to enhance property tax revenues? (incentives/penal system)

 10% rebate is being given to the punctual property tax-payer
What is the Property tax collection process – door to door/online/collection centers?

 Window collection
 Door to door collection
 Online
If your collection ratios has improved in past, what do you think where the key reasons for improvement?
 Better accessibility
 Tax rebates for depositing tax in time
 Awareness programmes are organized at the city level by nukkad nataks, daily newspapers, and pamphlets,
and also by the Nagar Nigam personnel
95%
90% 90%
90%
85%
82%
80%
75%
2009-10 2010-11 2011-12
Has your ULB undertaken GIS mapping of properties? What is the progress on the same? What are key
hindrances ULB is facing in implementing/ managing this reform?
 Yes. It was completed in 2010

8.4.2 Urban Service Delivery
Query
Planning
Do you think, there is adequate technical/ managerial capacity with ULB for project planning? What are
the gaps in the system according to you? (Issues could be related to funds, manpower, technology,
decision making, process etc).
 No. There is lack of manpower in the ULB and parastatal agencies
 There is lack of coordination between departments (eg. Jal Nigam, ANN, Jal Sansthan)
Are you aware of similar projects planned and implemented in other cities? Have you visited any of these
cities?
 Yes.
Does ULB have any plans in place to meet the infrastructure gaps? Was the CDP for your city being
prepared; if yes, do you think the CDP prepared address the project planning related aspects? Any
suggestions in this area?
 The CDP has specified specific projects for each of the sectors. Some the projects envisaged have been
implemented as planned
What support do you envisage in planning of projects? Support from ULB, state and centre
 The funds and manpower to plan and implement the projects are not sufficient. The ULB would like more
support from the centre and state
What is generally the process followed from conceiving a project to its implementation? Across the
project cycle, where do you think are the key bottlenecks and according to you, how this can be
resolved?
 Projects conceived are need based and implemented on availability of grants. Generally, a project is
conceived by Jal Nigam on its own or by a demand made by councilors, ULB or Jal Sansthan. The role of Jal
Sansthan is paramount here as it operates the facilities and so is more aware of the needs of the sector.
 The DPR is prepared by Jal Nigam (for water supply, sewerage and SWM projects) and ULB (for roads,
health, SWM and lighting projects). The DPRs are prepared by external consultants.
 The DPRs are then sent to the respective sponsoring agency for approval. Once approved, the project is
awarded to contractor for implementation.
 Bottlenecks –Lack of availability of land, administrative delays, lack of funds.
What steps have been taken in the past to resolve/reduce these issues?
 None
While planning of projects do you envisage/ enumerate the improvements in SLB indicators? If no why?
 Yes
What is the level of participation with CBOs/SHGs and or NGOs/Civil Society groups in planning the
development works?
 Identifying projects while preparing CDP was the first such initiative
Financing
In what manner, ULB has financed its past projects?

 The projects are financed only through central, state government or multilateral grants
If financing of projects is through bonds, borrowing from Banks, through funding agency like (World
Bank, ADB etc.) or through pooled financing, PPPs etc. in such cases is the department fully aware of the
financing procedures? What are the key areas of knowledge support you require in this area?
 The ULB and parastatals get grants from government.
Has there been any trainings in past on project financing?

 No
Has there been any training on contract preparation?

Query
 No
Is there a legal cell/ official in ULB to examine the adequacy of contracts?

 Yes, but not all contracts are vetted by the legal cell due to lack of staff.
Does the ULB have the right to award concessions or enter into contractual agreements with the private
sector to essentially deliver municipal services? What are the statutory permissions it needs to do so?
 Yes. GoUP amended the UP Municipal Act, 1916 in September 2009 and empowered the ULBs to enter into
PPP agreement with private sector to implement the Infrastructure projects and discharge the services.
 State level approval for the projects is necessary
PPPs - Have any of the urban service delivery projects being planned or underway on PPP?
Mention the key PPP projects implemented in the past with details such as contractual structure,
performance parameter and issues faced by the ULB.
 ANN signed a contract with M/s SPML to undertake collection, transportation, treatment, and disposal of
SWM. Though the contract was signed by ANN, the state government provided support to sign the contract.
 Some other projects - Electric Crematorium, Traffic Signals through Solar Light, Public Toilets, Bus shelters
/Traffic Post, Parks Beautification, Cyber Citizen Points
What is the role of the private sector in service delivery and the potential of public-private partnership
(PPP) in the development and management of infrastructural services?
 Two contracts have been signed – SWM and bus shelters
 Other projects are being developed
What is the approach adopted by the ULB in implementing PPP Projects?

 There is no such structured approach adopted for implementing PPP projects
 Projects implementation approach adopted is ad hoc
Does ULB have adequate know-how on contract management of PPP Projects?

 No. Contract preparation and management skill is lacking.
What are the key issues in planning, procurement and implementation of PPP Projects
 Lack of skill and manpower
 The quality of contracts is poor
 Project officers appointed are mostly engineers. They do not have much knowledge on legal matters
What kind of support do you envisage for implementation of PPP Projects

 Separate cells are required for monitoring project implementation.
Implementation
What kind of support is required for project implementation?

 Financial support, technical knowhow and additional manpower. The existing staff is burdened by additional
projects.
During implementation of projects under JNNURM/ funded schemes of your state, how frequently the
review meetings are organised to mitigate and resolve the issues?
 Regular meetings were held at Commissioner level with various departments including Jal Nigam.
 In addition, monthly meeting is called by Commissioner to monitor the progress of various projects at ULB
level
Have the execution team been provided any trainings in the area of project management or use of
software for project management?
 No.
Are there any issues related to manpower planning, technical capacity of team etc.?
 Yes. Manpower is not planned along with the project. The same manpower is deployed on additional
projects. Technical skill sets need to be improved to adapt to changing technology

Query
What are the key reasons for poor service levels?
 Limited capacity to cater to the growing needs of the city
 Lack of adequate number of skilled staff
 Jal Sansthan has limited number of staff to address O&M issues
Do you have any operational guidelines for O&M of projects? If yes, are they followed and monitored; if
no, do you think this should be helpful?
 No. All the followed processes are ad hoc.
If your ULB has not been able to meet the O&M cost recovery as per reforms -
What is the plan of action you have devised?

 Projects being implemented under JNNURM will improve the service standards
What according to you are the various areas of curbing expenditure or increasing revenues?
 Increasing revenue – metered connections, implementation of volumetric tariff, limit the number of exempted
properties, annual tariff escalations, revising the guidance rates as planned.
 Curbing expenditure – reduce UFW, increase the number of outsourced employees, identify and limit
wasteful expenditure
What according to you are the key hindrances in achieving this reform?
 Lack of political will and public pressure
Are there tariff policies for charging for service delivery? Are these policies in line with the O&M cost
incurred on services?
 The tariff policies are to be framed by state government.
 O&M cost incurred is not the parameter for framing user charges. It is more of escalation over the already
set rates.
Land for the project

Has ULB made reservations for land required for the projects in future?
 Yes. However, still there are issues with respect to availability of land.
What suggestions you would like to make to ease out the process of land acquisition.
 Proper rehabilitation and compensation at market rates should be given to the affected party
Service Level Benchmarks (SLB)
Please explain the awareness of the ULB with respect to Service Level Benchmarks (SLB)
 The ULB and parastatals are fully aware of the SLB parameters. But the grade of calculation of SLB is
lowest.
Was any survey being done with respect to SLB?

 No
What is the institutional mechanism put in place to ensure that the data reliability of SLB indicators is
highly reliable?
 There is no mechanism
Are you aware of “Information Systems Improvement Plan (ISIP)” and Performance Improvement Plan
(PIP)
 No
Water Supply Services –
How do you plan to reduce the non-revenue-water in the system? What measures ULB has taken in past
towards this and what has been the success achieved?
 The JNNURM projects underway will reduce NRW as revamped distribution network is being laid and meters
being installed

Query
What is ULBs exposure to 24x7 system of water supply? Has there been any training in this area?
 The Jal Nigam and Jal Sansthan are aware of 24X7 system. However, training has not been provided in this
aspect
How is the water system managed; do you have water districts? How do you rate the accountability of
the current system of administration of water supply?
 Allahabad is divided into 12 district zones
 The water supply system is operated and managed by Jal Sansthan. ULB has no role in the administration of
the system.
What are the key challenges you consumer interface i.e. in the area of metering, billing and collection?
 Water bills on flat rates are issued.
 Collection efficiency is over 73%
 Willingness to pay is low
What key changes you would suggest to improve the service delivery in water supply area in your ULB?
 Regular technical trainings of staff members
 Additional manpower to cater to the growing need
 Improving the cost recovery
 Implementing metered billing system
 Frequent escalation of user charges to match costs
Sewerage Services/ SWM –
What is your exposure to technologies in the treatment area? How do keep yourself update with the
latest cost effective technologies?
 Though it is the mandate of Jal Sansthan to operate STP. However, due to lack of technical know how Jal
Sansthan officials are not able to operate STPs. STPs are being run by Jal Nigam.
 The senior officials are aware of the latest technologies in the area.
What are the key challenges you face in service provisioning in this area?
 Existing sewerage system is very old and dilapidated.
 Coverage of sewerage network is very low.
 There are no sewerage connections in the slums.
 There is a need to refurbish the existing treatment plants. The quality of the treated waste is not of reusable
grade. So, it is discharged in water bodies.
 A separate account for sewerage is not maintained.
 Involvement of multiple departments causes co-ordination issues.
 There is an issue of availability of land for construction of STPs. For construction of STPs, Jal Nigam
acquires lands and transfers the titles to ANN
JNNURM requires the cities to frame byelaws related to reuse and recycling of waste water, so as to
conserve water resources. Is there any byelaw pertaining to reuse of recycled water?
 Yes. However, the grade of treated water is of poor quality. So it is not being used for reuse purpose and is
being released in water bodies.
JNNURM requires the cities to take sufficient steps towards promoting the use of rain water harvesting
systems in cities by making it mandatory for building permission, with a long term objective of
promoting conservation of water and ensuring sustainability of water resources? Is there any legislation
for making Rainwater Harvesting mandatory in buildings?
 Yes
What is the status on reforms in the area of waste management? What are the key hindrances in
implementing these reforms?
 All the reforms in SWM are in progress.
 Implementing complete door to door coverage will be gradually achieved
 Willingness to pay user charges is low. Public and political pressure needs to be over come
Housing and infrastructure for Urban Poor
What are the key challenges in implementing projects for urban poor, especially with respect to provision

Query
of housing and infrastructure?
 Availability of reliable household data
 Allocation of land is the biggest challenge, followed by the availability of funds.
Has the ULB formulated and adopted a comprehensive policy on providing basic services to all urban
poor.
 ULB is providing services to urban poor. But there is no comprehensive policy for the same.
To what extent, slums have been rehabilitated in your city?

 DUDA has constructed 1500 pucca housing units for the urban poor
Do you have a separate department to handle the issues of urban poor?

 No
Please provide Citizen’s Charter formulated by the ULB
Whether the Charter lays out service delivery standards to enable consumers to understand what they
can expect from service providers?
 The charter prepared by the ULB has not been on the website. The citizen charter prepared by Jal Sansthan
lists down the how a new connection will be issued, service delivery standards and the redressal time.
What is the current mechanism to record citizen’s satisfaction levels and their voice in day to day urban
management
 There is no mechanism to record citizen’s satisfaction levels
Please provide details of the grievance redressal mechanisms along with precise timeframe (number of
days) within which the service provider / utility are obliged to respond and redress consumer grievances.
 For water supply and sewerage related complaints, Jal Sansthan has put provided time to respond on their
website
Whether there is involvement of consumer organisations, citizen groups, and other stakeholders in the
formulation of the Citizens’ Charter and setting service standards.
 Not involved
Does ULB involve citizen’s in project planning and obtains feedback on services provided by it? If yes,
then how, please narrate with examples
 No
Query
Please provide the status of various e-governance modules, including inter-connectivity (between
departments, zonal offices etc.) of modules at your ULB and how the entire process was managed?
 Only Public Grievance Redressal module is fully operational. Currently window registration or SMS based
complaints are lodged which are directly fed into the module after generating a complaint id
 All other modules are in progress with delay
Has the ULB prepared ‘Municipal E-governance Design Document (MEDD) and Business Process
Reengineering (BRP)?
 MEED has been prepared
 The preparation of BPR is in progress
Have all the departments being provided training and handholding? Any gaps in the training?
 Training provided to staff persons in E Governance Software for the functionality by M/S UPCL, Lucknow.
What are the key challenges you have faced/ facing in implementing e-governance?
 Integration of standalone modules with state level framework will be a major challenge
 Many obligatory standalone modules such as SWM, Finance and Accounting Software (FAS) Project
management system and utility software for water supply is yet to be implemented.

Query
 ANN is facing adverse capacity constraints in monitoring service levels for the E- Governance modules
which are already implemented. n addition to that, there irieste level showcasing success stories by ULBs.he
vendor developing the state level E- GoveDPR.585858Further only one contractual position of IT
Coordinator exist in ANN who is responsible for E- Governance implementation and its operations. His
responsibilities also include resolving hardware related and networking related issues. However such issues
can be resolved by outsourcing or recruiting network/hardware engineer.
 Recent transfer of Jal Sansthan into the ANN leading to non-development of Water supply & utility modules
 Building plan approval system is yet to be developed. Further development of Building Plan approval system
is also required as a state level initiative as it falls under the purview of District Development Authority for
each mission cities.
 Absence of platform at state level showcasing success stories by ULBs and also absence of mechanism to
replicate the best practices in other ULBs.
 Institutional mechanism for Handholding and training is required. Further, it appears that issues of installing
appropriate institutional mechanisms for hand holding, training and inculcation of skills within the ULB for E
Governance have not been fully resolved. It must be realised that unless the mechanisms for such catalytic
action are institutionalised, E Governance may see many hurdles
If the e-governance modules are not implemented; is you ULB aware of complete process of
implementing the same. What is the support that ULB require for this? Under what timeframe this could
be implemented?
 Yes the ULB is aware of the same.
 The ULB is not equipped in terms of infrastructure and manpower to implement the modules at a full-fledged
level. No initiative has been taken to appoint IT staff
How is the feedback from the users (ULB department officials and citizens) on e-governance services?
 No feedback taken
To what extent citizens use the e-governance services? For eg. in case of out of total no. of tax payers,
how many tax payers pay their bills online?
 Data in this regard is not maintained.
What do you think are the key benefits of implementing e-governance system?
 The officials are not able to realize the benefits of e-governance due to low awareness.
What is the Institutional structure (in terms of planning and development) of the ULB. Explain the
Jurisdiction of these agencies – Physically and Functionally
 Role of ULB - ANN is mainly responsible for planning and development of solid waste management, street
lighting, roads, cleaning of drains, collection of property tax, O&M of internal sewers, construction and
maintenance of community toilet and management of ghats while other functions are taken care of by
various parastatals.
 The planning and development of projects for water supply, sewerage and SWD is done by Jal Nigam. The
role of ULB in planning of these projects is limited to project conceptualization.
 Jal Nigam – the function of the department is -
 To maintain the STP
 To collect water on all the Ghats and transfer to STP
 To plan and construct all infrastructure related to water supply and sewerage
 To drill tube wells and hand pumps in the city preparation, execution, promotion and financing
schemes for water supply and sewage disposal
 To review and advise on the tariff and charges of water in the areas of Jal Sansthan and ULB
 To assess requirement of materials and arrange for their procurement and utilization
 To establish state standards for water supply and sewerage services
 To perform all functions not stated herein which were being performed by the Local Self Govt.
Engineering Department before the commencement of the act
 To review annually the technical, financial, economic and other aspects of water supply and
sewerage system to Jal Sansthan/ULB
 To establish and maintain a facility to review and appraise the technical, financial, economic and
other pertinent aspects of every water supply and sewerage scheme in the state
 To operate, run and maintain any water works and sewerage system if and when directed by the
State Govt. on such terms and conditions and for such period as may be specified by the State
Govt.
 Jal Sansthan – functions of the department are as follows -
 Draw water from the River and from tube wells

Query
 Provide water supply and undertakes operation and maintenance of water supply network
 Undertakes operation and maintenance of sewerage network (Except STP)
 Construct new water supply and sewer lines at micro level
 Solely authorized to collect taxes and user charges for water supply and sewerage
 Redressal of complaints regarding its services Installation of new hand pumps, tube wells etc, in
certain rare cases, with help of MP and MLA LAD funds
 Allahabad Development Authority - ADA undertakes all the activities related to land use, zoning,
development, implementation of DCRs, and providing building permission. It also prepares DP with the help
of Town and Country Planning Department for the city at an interval of every 10 years. It also has to make
sure that all regulations and building bylaws are being adhered to
 District Urban Development Authority – DUDA is primarily involved in the provisioning of urban infrastructure
in slum areas and construction of dwelling units. Its functions are -
 Execute various government schemes for urban development and employment generation
 Create urban infrastructure, including water supply
 Undertake tasks related to urban infrastructure to generate local employment
 Construct community toilets and link it to sewer lines etc.
 Sewers are laid according to plan made by Jal Nigam
Are there a multitude of agencies undertaking the same kind of functions? Explain, if there are any
Overlapping of policy, regulation and operational roles. Is there an overlap in the responsibilities and
activities of public service agencies? Are their objectives and activities complementary or conflicting?
What mechanisms exist for interagency coordination? Is there any process to streamline this
overlapping? If yes, what are the steps taken?
 There are no major overlaps in the provisioning of services. Except that community toilets are constructed by
both ULB and DUDA.
 Coordination between the departments is an issue. For eg. Cleaning of main drains is the responsibility of Jal
Sansthan and picking up of this waste is the responsibility of Health Department, ANN. So often by the time
waste is picked up by ANN, most of the waste has flown back in the drain.
 The environment responsibility is not yet defined at the city level
Are there issues with the existing institutional structure? If yes. What are the issues/challenges faced
(relating to institutional arrangement) for urban service delivery (eg. Lack of description of role and
responsibilities of various departments of ULB; lack of technological up-gradation)
 Jal Sansthan, which was earlier an independent body, is now a part of ANN. There exist institutional level
issues
 The number of sanctioned posts in the institutions are often not filled
 There is no set standard operating procedure or working instructions for carrying out day to day activities
 There is no set procedure for institutional capacity building. Training records are not maintained by the
corporation
How is it impacting the development

 The motivation level among the officials is low
 Decision making process at times is slow
Explain the institutional structure at the ULB for Urban Poverty related programmes/schemes/projects
 There is no separate department in ULB for urban poor programmes.
Please provide the details on the Responsibility matrix for Main Urban Service Providers (refer table
below)
S. Urban Planning Construction/ O&M Policy Regulation
No. Infrastructure and making
Implementation
Service Design
1.
Water UP Jal UP Jal Nigam, Jal Jal Jal Jal Sansthan,
Nigam, Jal Sansthan (small Sansthan Sansthan, ANN
Sansthan projects) ANN
(small
projects

Query
2. UP Jal
Sewerage and UP Jal Jal Jal Sansthan,
Nigam, Jal UP Jal Nigam, Jal
Drainage Nigam, Jal Sansthan, ANN
Sansthan Sansthan (small
Sansthan, ANN
(small projects), DUDA
ANN, DUDA
projects)
3.
Solid Waste ANN ANN ANN ANN
ANN
Management
4.
Urban Transport UPSRTC UPSRTC UPSRTC UPSRTC UPSRTC
5. ANN, ADA, ANN, ADA,
Street Lighting ANN, ADA, PWD - -
PWD PWD
6. UP Jal
Environment UPPCB, UP Jal - -
Nigam, Jal
Protection UPPCB Nigam, Jal
Sansthan,
Sansthan, ANN
ANN
7. ANN, Jal
Urban Poor - -
DUDA, DUDA, ADA, ANN, Sansthan,
Settlements
ADA, ANN UP Jal Nigam UP Jal
Nigam
Institutional structure of the ULB is governed by which Act?

 Uttar Pradesh Municipal Corporation Act, 1959
Please provide a brief about its powers and functions

 Cleaning of streets
 Lighting of street lights
 Collection and removal, treatment and disposal of sewage
 Establishment and maintenance or support public hospitals
 Construction and maintenance of corporation water works for domestic, industrial and commercial purposes
 Construction, maintenance and cleansing of public latrines, water-closets, urinals and similar conveniences.
Please provide the governing/organizational structure (such as political/elected and administrative

wings) of the ULB
 The ULB is headed by a commissioner and assisted by additional municipal commissioner.
 Departments – PHED, Engineering, Accounts, Audit, Tax, Animal husbandry, License and Jal Sansthan
 ANN has been divided into 80 wards which are grouped together into five zones. 80 councilors are elected to
form the general body of the ANN; they work in tandem with the executive staff
Explain the structure of the wings in terms of no. of wards, no. of councilors etc
 ANN has been divided into 80 wards which are grouped together into five zones. 80 councilors are elected to
form the general body of the ANN; they work in tandem with the executive staff
Which are the Acts, Rules and Legislation governing the day to day functioning of the ULB?
 Uttar Pradesh Municipal Corporation Act, 1959
What is the role of state government vis-a-vis ULB operations?

 The state is a major stakeholder and is involved in the many municipal services. The departments which look
after the planning functions (preparation of master plans and its enforcement) are state government bodies
.i.e. Town and Country Planning Department and Allahabad Development Authority. ANN is not involved in
the planning, preparation or implantation of the master plan.
 In addition, the planning, designing, implementation of water supply and sewerage schemes is done by Jal
Nigam (state government body). Though on completing the construction works the water supply and
sewerage utilities are transferred to Jal Sansthan (part of ANN), the STPs are operated by Jal Nigam.
Explain the process of Central level schemes by the ULB including urban poverty alleviation
 Project planning and initiation by DUDA, ANN or Jal Nigam. Proposals or DPRs are prepared and submitted
to the state government for approval and consideration after the Council approves the project.

Query
 Funds are channeled through the state and then disbursed to the ULB.
 Funds are disbursed on basis of QPRs and performance of projects being implemented.
Explain the existing M&E (Monitoring and Evaluation) framework prevalent in the ULB (M&E framework in
all phases of project implementation – initiation, implementation, Post implementation).
 Monthly commissioner level review meetings are conducted
 Monitoring at SLNA level.
Whether MIS reports are generated for the same? If yes, please provide the details
 Not generated
Explain the staffing structure under various departments/functions. What are the gaps in the employee
structure?
 There is a total sanctioned strength is 3920. Of this, 3142 posts have been filled.
 GoUP constituted a committee under the chairmanship of the Director of Local Bodies (DLB) in 2006 to
establish norms for categorization, up-gradation, reorganization, and rationalization of human resources in
ANN.
 The Committee has already submitted its report to GoUP. The finance department of GoUP has already
approved recommendation of DLB. Presently awaiting cabinet approval. Upon approval from the cabinet
many post such as accounting cadre, revenue cadre, IT cadre, environment engineer, city managers shall be
created at ULB level. Further staffing norms shall be created at ULB level
What kind of issues is being faced with the staff?

 Senior management has little IT knowledge
 Absence of scientific protocols to execute their work eg. Drain cleaning
 Lack of basic legal knowledge, which may be required while working in the field
 There is no protocol for safety of employees
What kind of areas need to be strengthened to match the skills and expertise required to carry out
functions of the Municipal Authority.
 Need of skill development among ANN and Jal Sansthan staff at all levels. The trainings must specifically be
planned and conducted on technical skills (including IT/computing), accounting and financial management
skills etc. A list of trainings required has been prepared by ANN
 Trainings should be provided to senior officers (eg – HOD, Executive Engineers, Sanitary officers etc) to help
them understand legal aspects while working in field.
 Trainings at the rank of Assistant Engineer and Junior Engineer to prepare contracts
 Trainings required to augment the management and IT skill
 Skill improvement also required at clerical level
Are there any initiatives to enhance their performance? Or what mechanism does the ULB have in place
to support the execution of the specific action plans to enhance their performance
 No
What is the existing practice of awarding performance based incentives to the staff to keep them
motivated to efficiently achieve performance targets? Is it satisfactory?
 There is no such programme
Are you ‘planning to adopt’/adopted any new HR incentive system? If yes, what system? Have the
employees being explained about the same? What is there response?
 HR policies are adopted as per the directions of the state government
What kinds of training programmes have been provided to the staff in the past (under each sector and
function)? Has the ULB reaped any benefit from this?
 Details not maintained by ULB
What kind of facilities does the ULB have to undertake these training programmes
 A training hall has been provided for organizing training programmes
What are the issues the staff faces to carry out the functions of the Municipal Authorities? What support
is provided by ULB?
 Lack of technical skill to do their work
 Absence of operational manual. Most of the work the staff does in the field is not scientific

Query
 Not sufficient manpower to handle projects

 Lack of legal knowledge
 Poor IT skills
How would you rate the “awareness and exposure” of the ULB officials wrt PPP Projects.
 The officials are aware of the PPP projects but lack the capacity and capability to implement them
Are there any reforms wrt adopting the Voluntary Retirement Scheme (VRS), not filling posts falling
vacant due to retirement etc., and achieving specified milestones in this regard? What are the milestones
achieve till now?
 No
8.4.4 Urban Planning
Query
Explain the key economic drivers of the city and its relation with the hinterland and the other major urban
centers.
 Tourism
 Pilgrimage activities
 Educational institutions
 Utensil, cloth and cycle market
What are the strengths and weaknesses in the city’s development? Need an understanding of what
impedes service delivery and management within the existing set-up and what contributes to better
service provision.
 Strength
 It is a religious centre. Attracts revenue during festive seasons.
 Allahabad has a huge potential to tap the tourism sector, which is still unorganized
 Abundant availability of water supply
 Weakness
 The city has reached saturation with very high density in the core city
 The municipal service utilities are very old and require replacement
 Majority of the city areas are not covered by basic municipal services
Highlight the unique features (in terms of development) of the city that may distinguish it from other
cities
 It is a religious centre and witnesses a large no. of domestic and foreign tourists throughout the year
 Allahabad has a huge potential to tap the tourism sector, which is still unorganized
Is there existence of any database pertaining to household level information of urban poor?
 No. 2001 census is taken as reference.
 Household level survey for slums is being under RAY.
What are the urban planning functions of the ULB? Mention the Specify agency / agencies involved in
planning of urban development and delivery of infrastructure services. What is the role of ULB in
planning in various sectors?
 The ULB is not involved in the urban planning functions
 The departments which look after the planning functions (preparation of master plans and its enforcement)
are state government bodies .i.e. Town and Country Planning Department and Allahabad Development
Authority
Under the 74th CA (74th Constitutional Amendment Act (CAA74). What all functions had been transferred
to ULBs from State?
 Out of the 18 functions mentioned in the 12th Schedule, 12 functions have already been devolved to the
ULBs.
 Functions transferred - Water supply, slum improvement and up-gradation, urban poverty alleviation, roads
and bridges, public health, sanitation, conservancy and solid waste management

Query
If not transferred, reasons for the same?
 The state government has taken a stand against transferring fire services to ULBs because, as of today, the
functional domain of fire services stretches beyond the limits of local bodies and is being managed by the
Police Department
 The planning functions are carried out by ADA and the state has no intension of transferring this role to ULB
What is the status of implementation of the following as per the Act. Constitution of Metropolitan
Planning Committee (MPCs) and Constitution of District Planning Committees (DPCs)
 District Planning Committee (DPC) was made functional in 2008. Metropolitan Planning Committee (MPC)
was to be constituted by 2012 after the ANN and State Assembly elections, but that is yet to happen.
Provision for the creation of MPCs has been inducted in the Nagar Nigam Act. As per Section 57A, in every
metropolitan area, a MPC will prepare a Draft Development Plan for the metropolitan area as a whole
Master plan preparation

Does ULB has internal capacity to prepare master plan/ development plan
 The master plan is prepared by Town and Country Planning Department, Allahabad. The plans are prepared
in-house.
What land use changes have occurred in recent years?

 There have been very few instances of land use change. The land use change proposals are approved by
the board of ADA
 Once the board approves the changes, it is forwarded to Housing and Urban Planning Department
Do you have sufficient funds /manpower for Master Plan preparation

 There is shortage of manpower
What is the level of public participation and civic engagement in Master Plan preparation?
 The draft master plan once prepared, is put in the public domain for discussion. Elaborate discussions are
held on all the issues raised by the stakeholders. Once the issues are discussed, the master plan is sent to
the state government for approvals
 All the objections raised against the master plan are individually addressed
What are the key initiatives by ULB (such as introduction of short and medium-term, Integrated Action
Planning, Assets inventory for optimum utilization and the increase of the revenue base, new urban land
policy, Upgrading technology, Exploring new options and public-private partnership, Networking with
international and national urban programmes, Mandatory performance management system and MIS.,
networking with NGO’s CBO’s and private sector for planning, management and maintenance.)
 The ULB has not taken any measures towards improvement of its condition.
What are the issues in Urban Planning? (eg. Plan Preparation Techniques, Growth of the City, Spatial
Planning vis-à-vis Development Planning, Land Policy and Management…)
 The primary issue with regards physical planning and growth management in Allahabad is that physical
development and growth is haphazard and uncontrolled
 Parastatals such as Jal Nigam at times do not follow the master plan for laying of pipelines
What challenges ULB face in urban planning?

 Manpower shortage
 Lack of political will
 Interdepartmental issues
Has ULB implemented urban planning related reforms

 The reforms have been implemented and are in various stages of completion
Earmarking land for urban poor

 25% of saleable land and plots are being reserved for the EWS and LIG categories for housing projects
developed by the Allahabad Development Authority. A government order has been issued stating that such
provision of reservation should be followed by private developers also
Streamlining building plan approval system

 Streamlining the approval process is under progress. Building plan approval time limit has been capped at
30 days and 90 days for residential and commercial buildings respectively. ADA also specified that building

Query
sanctions have been given in majority of cases as per the time limit specified in Building bylaws.
 Further reduction is only possible upon implementation of MIS system of all offices bearing NOC on Building
Permission.
 ADA has dedicated wings for Map sanction and Monitoring activities.
Byelaws on reuse of recycled water

 The reform has been achieved. STP has been commissioned for recycle and reuse of water in Lalpur
housing Scheme of ADA. Provision for STP has also been made in River front development project at
Katehar
Byelaws for rainwater harvesting system

 All reforms with regard to rainwater harvesting have been achieved. The GoUP revised the Building Byelaws
in 2008 and also issued GO in this regard. ADA adopted the byelaws in 2009.
 Rain water harvesting has been made mandatory for construction of building more than 300 sq. mt under
this byelaw. RWH will be mandatory for future buildings
Urban Poverty
Is there a presence of nodal cell for poverty reduction within the state and ULB’s? What are its
functions?
 There is no nodal agency for poverty reduction
What are the poverty reduction measures such as MAPP preparation, poverty profiling of cities?
 Central and state government is running some employment schemes such as Swar Jayanti Sheri Rozgar,
loan of Rs. 2 lakhs for starting a business and skill enhancement programmes.
JNNURM requires the cities to
frame byelaws related to reuse and recycling of waste water, so as to conserve water resources. Is there
any byelaw pertaining to reuse of recycled water?
 Mentioned above
take sufficient steps towards promoting the use of rain water harvesting systems in cities by making it
mandatory for building permission, with a long term objective of promoting conservation of water and
ensuring sustainability of water resources? Is there any legislation for making Rainwater Harvesting
mandatory in buildings?
 Mentioned above
towards earmarking atleast 20-25 % of developed land in all housing projects (both public and private)
for low income families in order to meet the housing needs of both EWS and LIG categories of
population. Is there any legislation regarding mandatory reservation of certain percentage of land for
EWS/LIG in housing projects?
 Mentioned above
Which legislation governs the formulation of Building Byelaws and implementation of the regulation
 Mentioned above
Explain the existing process of building approval

 Plan for approval is submitted to ADA along with the land use report
 Junior Engineer prepares the cost estimate. The cost estimate is verified by a second Junior Engineer
 Thereafter, a technical review is done by chief town planner
 Once it is cleared, a demand letter is issued to the person seeking approval of plan
 After depositing the fee, the plan is approved
What is the extent of use of technology and computers in the process of building approvals as well as
upkeep of records
 It is done manually
possible reasons for delay in the approval process

 Discrepancy in the plan submitted
 Delay in depositing the fee as per the demand letter

8.5 Quantitative questionnaire
8.5.1 General Information
Table 18: ULB Key contacts
Name of the ULB Allahabad Municipal Corporation
Category of ULB Municipal Corporation
Head of the ULB Commissioner
Telephone No. 7408422303
Table 19: ULB Profile
1981 1991 2001 2011

1 Total Population 650,070 844,546 1,081,622 1,216,719
2 Total Households 206,784
3 Total slum population 429,674
4 Total area (in sq km) 164
5 Total no. of administrative zones 5
6 Total no. of municipal wards 80
8.5.1.1 Land use
Table 20: Land use breakup
Land use Area covered (in hectare)
Type of land 2001 2021
Residential 7622.24 11164.48

Commercial 545.43 746.20
Industrial 1217.81 1722.89
Recreational 2531.48 4953.45
Administrative 1871.09 2624.50
Transportation 2434.80 3736.3
Government and semi-government 571.24 1179.78
Public utilities 1660.53 690.05
Other land use 3234.51 4099.73
Total 21689.13 30917.38

8.5.2 Municipal Financial management
Table 21: Financial Status
Items 2008-09 2009-10 2010-11 2011-12 CAGR

Actuals (Rs Lakhs) %
Opening Balance 169 7,010* 22,835 22,800 377
Revenue Account
Income 6227.96 6277.51 8967.41 8794.66 12
Expenditure 5689.74 6427.67 9002.90 8583.37 15
Surplus/ (Deficit) 514.65 (150.16) (35.49) 211.28 (26)
Overall Status including OB. 7,010* 22,835* 22,800 24,244* 208
*increase in closing balance reflects the effect of revaluation of assets
Loan Statement – No loans
8.5.2.1 Property tax Details

Assessment Details
Description 2008-09 2009-10 2010-11 2011-12 2012-13

Total No. of Properties 206,784
Residential 178,182
Commercial and industrial 6,062
Total number of assessed
184,244
properties
Exempted 22,540
Table 22: DCB Statement of Property Tax
Particular 2009-10 2010-11 2011-12 2012-13*
Demand
Arrears 473.77 322.72 207.61 223.34
Current 1326.23 1777.28 2092.39 2421.66
Total Demand 1800.00 2100.00 2300.00 2645.00
Collection
Arrears 348.29 272.36 135.63 178.98
Current 1128.99 1620.03 1941.03 2002.81
Total Collection 1477.28 1892.39 2076.66 2181.79

Particular 2009-10 2010-11 2011-12 2012-13*
*till December
8.5.3 Urban Service Delivery
8.5.3.1 Water supply
Table 23: Sources of water supply
Sr Type of Distance from Year of Raw Water

Source
No Source city (km) Commissioning supply (MLD)
1 Tubewell Underground From 1952 till now 238
2 Yamuna Surface 3 1892 70
TOTAL 308
Table 24: Details of Treatment Plant
Year of Design Capacity Capacity

Sr No Plant
Commissioning (MLD) Utilization (MLD)
1 Rapid gravity filter 1925 45 40
TOTAL capacity 135 70
Total intake of Raw water
Table 25: Storage reservoirs
Sr No Name of Reservoir Elevated Storage (ML)

1
TOTAL 60.69
Table 26: Distribution
Sr No Unit
1 Length of network km 1122
2 Coverage of total area % 98
3 Total population covered % 98
4 Public stand posts number 1700

Table 27: Connection Details
2007- 2008- 2009- 2010- 2011- 2012-

Connections
08 09 10 11 12 13
1 Metered Connection
i Domestic - - - - - -
ii Non-domestic - - - - - -
iii Commercial 1082 1100 1140 1180 1200 1230
i
Industrial - - - - - -
v
Total metered connection (i to
2 1082 1100 1140 1180 1200 1230
iv)
142,47 144,29 146,21 147,99 149,86
3 Total non-metered connection 139,686
3 8 3 3 3
143,57 145,43 147,39 149,19 151,09
4 Total Connections 141,850
3 8 3 3 3
Table 28: Annual tariff for metered and unmetered connections
Sr. Connection Size Domestic (Rs/year)

No.
1 15” Property evaluation rate
Till Rs. 360 480
Rs. 361 to Rs. 2000 900
Rs. 2001 to Rs. 3500 1080
Rs. 3501 to Rs. 5000 1200
From Rs. 5000 1680
2 20” Till Rs. 360 720
Rs. 361 to Rs. 2000 1080
Rs. 2001 to Rs. 3500 1200
Rs. 3501 to Rs. 5000 1680
From Rs. 5000 1800
3 25” Till Rs. 360 1080
Rs. 361 to Rs. 2000 1200
Rs. 2001 to Rs. 3500 1680
Rs. 3501 to Rs. 5000 2040
From Rs. 5000 2400
Volumetric Rate Rs. per KL 2.50

SN  Area/Category  Rate per KL
1 Special category and industrial 12.50
2 Commercial areas 7.50
3 Government and semi-government 5
4 Municipal office 3.75
5 Under construction properties 30
6 Others 75
Table 29: O&M Expenses [for both Water Supply and Sewerage] (in Rs. Lakhs)
Operating expenses 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13
1 Establishment 1136.51 1220.10 1743.93 1956.82 2587.30 2785.93

2 Supplies 620.48 559.76 625.76 517.38 236.47 688.04
3 Chemicals 39.72 42.67 40.15 43.97 31.57 26.16
4 General Repairs 59.69 64.85 79.36 61.82 81.30 71.95
5 Electricity & Energy 1061.09 1257.01 1176.35 1603.35 1756.39 1200
6 Bulk water cost - - - - - -
7 Others 102.03 98.10 58.44 56.44 61.68 60.37
8 Total operating expenses 3019.52 3242.49 3723.99 4239.78 4754.71 4832.45
Table 30: Demand Collection Balance Statement for Water Charges [for both Water Supply and
Sewerage] (in Rs. Lakhs)
2007- 2008- 2009- 2010- 2011- 2012-

Head
08 09 10 11 12 13
Arrea 666.2 681.6 998.8 956.6 1528. 1251.

rs 3 3 2 1 90 17
Total Demand
Curre 2065. 2480. 2331. 3139. 3335. 4100.
nt 80 11 02 66 15 22
Arrea 339.7 340.8 499.4 482.8 764.4 625.5

rs 7 1 1 0 5 8
Collection
Curre 1710. 1795. 1864. 2121. 3034. 3282.
nt 63 44 82 02 69 18

2007- 2008- 2009- 2010- 2011- 2012-

Head
08 09 10 11 12 13
Arrea 51.00 50.00 50.00 50.47 50.00 50.00

rs % % % % % %
Collection Efficiency (%) (Recoverable
demand)
Curre 82.81 72.39 80.00 67.56 90.99 80.05
nt % % % % % %
Table 31: Cost Recovery [for both Water Supply and Sewerage]
Particular 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13
Income (Rs. Lakhs) 2,050.40 2,136.25 2,364.23 2,603.82 3,799.14 3,907.76
O&M Expenses (Rs. Lakhs) 3019.52 3242.49 3723.99 4239.78 4754.71 4832.45
Cost Recovery (%) 67.90% 65.88% 63.49% 61.41% 79.90% 80.86%
Table 32: Service level benchmarking
Benchmark Present Status

1 Coverage 100% 73%
2 Per capita water supply (lpcd) 135 lpcd 253 LPCD
3 Metering 100% 1%
4 Non-revenue water 20% 40%
5 Continuity of supply 24 hours 10 hours
6 Quality 100% Data not available
7 Redressal of customer complaints 80% Data not available
81%*
8 Cost recovery 100%
*for both water supply and sewerage
9 Collection efficiency 90% 73%
Table 33: Capacity Augmentation under JnNURM (in Rs. Lakhs)
Sr Augmentation / Projects Total Cost of project Total utilized

No
1 Water Supply Component of 8,969.00 8,065.00

Allahabad city
2 Water supply component of Allahabad city (Phase II) 15,915.22 12,422.00
Table 34: Proposed Projects
Sr Augmentation / Unit Total Project Type/Sources of Other details

No Improvement Area Cost funding

Sr Augmentation / Unit Total Project Type/Sources of Other details

No Improvement Area Cost funding
1 NA NA NA NA NA
8.5.3.2 Sewerage & Sanitation
Table 35: Current system
Details
1 Coverage of sewerage network 20%
2 No. of sewer zones 7
3 Total number of sewerage connections 40,000
4 Total number of community toilets 120
5 Total number of septic tanks Data not available
6 Total waste water production 240
7 Total treatment capacity 211.50
8 Tariff structure
8a If property has water supply connection 25% of the water bill
8b If property does not have water supply connection Rs. 20 per month per seat
Table 36: Capacity of STPs
Total utilization
Drainage Zone Capacity Process
(efficiency in %)
A 60+20 ASP
B 50 Modified bio filter
C 29 MBBR
D 30 UASB
E 22.5 Aerated bio filter
Total 211.50 100%
Table 37: Service Charges
Service charges -
Charges Minimum fee
new connection
Till 2 floors Rs. 10 per sq. m of total area Rs. 1000
Rs. 10 per sq. m for total area on 2 floors and
More than 3 floors Rs. 1000
Rs. 5 per sq. m for additional area
Table 38: Capacity Augmentation under JnNURM (in Rs. Lakhs)
Sr Total Cost of
Project Total utilized
No project
1 Sewerage system of Allahabad City (Zone D) Phase - I 33,826.00 24,116.74

Sr Augmentation / Unit Total Project Type/Sources Other

No Improvement Area Cost (in Rs. Cr.) of funding Details
1 Refurbishment of STP 60 MLD 40 NGRBA -

at Naini
2 Sewerage district A Network - 250 226 NGRBA DPR being

km; SPS – 1 prepared
3 Sewerage district C Network - 140 145 NGRBA -

km; STP – 14
MLD
4 STP at Salori 14 MLD 45 NGRBA
5 Sewerage district B Network - 150 150 NGRBA

km
6 Sewerage district F Network - 35 130 NGRBA

km; SPS – 1,
STP – 10 MLD
7 Sewerage district G Network - 120 335 NGRBA

km; SPS – 4
STP – 40 MLD
8 Nagar Panchayat Network - 60 145 NGRBA

Jhunsi km; SPS – 2,
STP – 18 MLD
Table 40: Service Level Benchmarking
Benchma
Present Status
rk
1 Network Coverage 100% 20%
2 Coverage of toilets 100% Data not available
3 Collection efficiency of sewerage network 90% 85%
4 Adequacy of sewerage treatment capacity 85%
5 Quality of waste water treatment Data not available
6 Extent of reuse and recycling of treated water 20% 0%
7 Redressal of customer complaints 100% Data not available
81%*
8 Extent of Cost recovery 100% *for both water supply and
sewerage
Collection efficiency of sewerage and sanitation
9 73%
charges

8.5.3.3 Solid Waste Management
Table 41: Current SWM service
1 Total household served with D2D collection 45%-50%

2 Total waste generation 500 TPD
3 Total waste collected 450
CP -800
4 Total number of dustbins
DP – 90
5 Total capacity of dustbins (cu.mt)
Compactor – 12
6 Total number of vehicles Dumper placer – 4
Tipper/Dumper – 10
7 Frequency of collection (trips/day) 2-3
8 No. of sweepers 2500
9 Total waste treated 450
Table 42: Infrastructure for transportation of waste
S.No Particulars Existing Number
1 Truck tippers 10
2 Dumper placers 4
3 Compactor 12
Total number of equipment 26
Table 43: Details of Disposal/landfill sites
Area (sq. m)/ Distance from city

Type of Disposal Location
Capacity (tons) km
Mechanical composting Baswar 300 MT and 25 hectare area 19 km
Table 44: Tariff structure
Domestic Commercial
User fee
BPL families EWS Residential
Rs. 10 Rs. 25 Rs. 50 Rs. 50 to Rs. 1000
Table 45: O&M expenses (in Rs. Lakhs)
Operating expenses 2008-09 2009-10 2010-11 2011-12 2012-13

1 Establishment
2 Supplies

Operating expenses 2008-09 2009-10 2010-11 2011-12 2012-13

3 Fuel
4 General Repairs
5 Electricity & Energy
7 Others
8 Total operating expenses 539.80 572.60 568.93 710.41 612.68
Table 46: Cost Recovery (in Rs. Lakhs)
Particular 2008-09 2009-10 2010-11 2011-12 2012-13
Income (Re. Lakhs) - - - - -
O&M Expenses (Re. Lakhs) 539.80 572.60 568.93 710.41 612.68
Cost Recovery (%) 0% 0% 0% 0% 0%
Table 47: Initiatives taken under JnNURM (in Rs. Lakhs)
Areas of Investment Total cost Total utilized

Collection, Storage and Transportation of Waste
Processing of Waste
Disposal of Waste 3,041.49 2,660.00
Miscellaneous activities
TOTAL
Sr No Area of investment Total Project Cost Type/Sources of Other details

funding
1 NA NA NA NA
Table 49: Service level benchmarking
Benchmark Present Status

1 Household coverage 100% 50%
2 Collection efficiency of MSW 100% 80%
3 Extent of segregation of MSW 80% 0%
4 Extent of MSW recovered 100% 100%
5 Extent of scientific disposal of MSW 100% 100%
6 Efficiency in redressal of customer complaints 100% Data not available
7 Extent of cost recovery in SWM services 80%
8 Efficiency in collection of SWM charges 90%

8.5.3.4 Storm water drains
Table 50: Present system
Katch Close
Pucca
a d
open
1 Length of drainage network Open drains
585
NA NA
km
2 Total length of network 585 km
Aggregate number of incidents of water logging reported in a
3 Data not available
year
Table 51: Initiatives taken under JnNURM
Areas of Investment Total cost Sanctioned Investment Total utilized

NA NA NA NA
Sr No Area of investment Total Project Cost Type/Sources of funding Other details
1 NA NA NA NA
8.5.3.5 Street lighting
Description Street Lights

1. High Mast Lamps 7
4. Sodium Vapour Lamps 29,846
5. Tubelights 18,974
7. Total 49,200
8. Total road length (km) 2357 km
9. Road length served with street lights (km) Data not available
10. Installed automatic power on/off switches (no.) Data not available
11. Maintenance frequency of street lights Data not available
Proposed projects
S. No Project name Project Estimated project Any partnership with private

components cost agency? Yes/No
NA NA NA No

8.5.3.6 Roads and Urban transport
Table 53: Details of Roads
Sr. No. Type of Road Length (km) Percentage

1 Concrete
2 Tarred/Black Topped/Bituminous Topped 2277 97%
3 Semi-surfaced 131 6%
4 Earthen 77 3%
5 Total 2357
Table 54: Investment in projects including those under JnNURM
S.No Identified Investment Percentage utilized and

Areas of Investment
(Rs. Lakhs) status of completion (%)
1 NA NA NA
Sr No Area of investment Total Project Cost Type/Sources of Other details

funding
1 NA NA NA NA
Table 56: Staffing Pattern (Available, but in different format)
SN Particulars Total Filled Vacant

1 Centralized 108 78 30
2 Non-centralized 1237 1196 41
3 Sanitary workers 2575 2200 375
TOTAL 3920 3142 446
Table 57: Training requirement
Training Programmes Details

 Personnel Management & Industrial Relations
 Computer Application
 Sanitation, Occupational Health Hazards, Health and
Hygiene
Functional skills (for sanitary  Solid Waste Management & Application of Solid Waste
Management Rules
workers)
 Water Supply, Sewerage and Drainage, Waste Water
Generation, Treatment and Recycling, Seepage
Management
 Application of New Technology in Sanitation and Handling
of Waste


 Leadership Development
 Motivation
Managerial skills (for Sanitary  Organizational Culture & Climate
inspectors and nayaks)  Performance Appraisal
 Organizational Behavior
 Decision Making
 Attitudinal Change
 Communication
Behavioral Skills (for Sanitary  Job Roles, Responsibility & Satisfaction
inspectors and nayaks)  Personality Development
 Time Management
 Ethics & Social Accountability
Technical Skills (for Sanitary
 E-Governance
inspectors and nayaks)
 New Technology
 Personnel Management & Industrial Relations
 Application of IT in issuing Birth-Death Certificate
 Sanitation, Occupational Health Hazards, Health and
Hygiene
 Solid Waste Management & Application of Solid Waste
Management Rules
Functional Skills (for Sanitary
inspectors and nayaks)  Water Supply, Sewerage and Drainage, Waste Water
Generation, Treatment and Recycling, Seepage
Management
 Application of New Technology in Sanitation and Handling
of Waste, Community Mobilization and Participation in
Sanitation
 Urban Development Schemes, Programes and Projects
 Motivation
Managerial skills (Finance,  Organizational Culture & Climate
Accounts & Audit Employees)  Performance Appraisal
 Decision Making
 Communication
Behavioral Skills (Finance,  Job Roles, Responsibility & Satisfaction
Accounts & Audit Employees)  Personality Development
 Time Management
 E-Governance
Technical Skills (Finance,  New Technology
Accounts & Audit Employees)  MIS Application
 GIS Application in Property Tax Assessment
 Double Entry Accounting
 Financial Management
 Municipal Personnel Management
 Project Management
Functional Skills (Finance,  Human Resource Management
Accounts & Audit Employees)  Municipal Budgeting
 Pro-Poor Budgeting
 Gender Budgeting
 Performance Budgeting


 Tax Assessment & Recovery
 Municipal Accounting
 Municipal Finance
 Public Private Partnership
 Resource Mobilization
 Municipal Auditing
 Financing of Infrastructure and Services
 Motivation
Managerial skills (Engineers &  Organizational Culture & Climate
Technicians Including Jal Kal)  Performance Appraisal
 Decision Making
 Communication
Behavioral skills (Engineers &
 Job Roles, Responsibility & Satisfaction
Technicians Including Jal Kal)
 Personality Development
 E-Governance
 New Technology
Technical skills (Engineers &
 Occupational Health Hazards
Technicians Including Jal Kal)
 Traffic & Transport Management
 Safety Management
 Quality Management
 Seepage Management
 Disaster Management
 Earthquake Resistance Building
 Rain Water Harvesting
 Low Cost Housing
 Architecture
Functional skills (Engineers &  Maintenance and Servicing of Electrical & Mechanical
Technicians Including Jal Kal) Assets
 Computer Aided Designing
 Urban Planning
 New Technology In Lighting
 Renewal Energy/ Solar Energy
 Environmental Engineering
 Motivation
Managerial skills (Engineers &  Organizational Culture & Climate
Technicians of Jal Kal)  Performance Appraisal
 Decision Making
 Communication
Behavioral skills (Engineers &  Job Roles, Responsibility & Satisfaction
Technicians of Jal Kal)  Personality Development
 Time Management
Technical skills (Engineers &  Computer Application


Technicians of Jal Kal)  E-Governance
 New Technology
 SCADA (Operating)
 Engineering Design & WWT Operations
 Pipe Laying Techniques
 Quality Management
 GIS Awareness & GIS Data Management
 Billing & Revenue Collection
 Use of Sewer Cleaning Equipment
 Gas Detection In Sewers
 Safe Excavation Practice
Functional skills (Engineers &
 Sewer Rehabilitation Techniques
Technicians of Jal Kal)
 Human Resource Mgt & Dev
 Fleet and Equipment Management
 Investigation & Planning
 Construction & Maintenance Techniques
 Customer Database & Grievance Redressal Mechanism
 Motivation
Managerial skills (Senior
 Organizational Culture & Climate
Officials of Nagar Nigam & Jal
 Performance Appraisal
Kal)
 Decision Making
Behavioral skills (Senior  Communication
Officials of Nagar Nigam & Jal  Job Roles, Responsibility & Satisfaction
Kal)  Ethics & Social Accountability
 Time Management
 E-Governance
 Project Management
 Disaster Management
Technical skills
 MIS Application
 GIS Application in Property Tax Assessment
 Urban Planning & Environmental Awareness
 Urban Development Schemes, Programmes and Projects
8.5.4.1 Status of Reforms under JNNURM
Table 58: Status of mandatory reforms under JNNURM (Report available)
Reforms Status Update

L1 e-Governance setup In progress with delay
L2 Shift to accrual-based double-entry accounting Completed
L3 Property tax (85% coverage)
Completed
Property Tax (90% collection efficiency)
L4 100% cost recovery (Water supply) In progress
100% cost recovery (Solid waste management) In progress
Internal earmarking of funds for services to urban
L5 Completed
poor

Reforms Status Update

L6 Basic services to urban poor Completed
Table 59: Status of optional reforms under JNNURM
Optional Reforms Status Update

In progress with delay
Introduction of Property
01 Property Title Certification Act is in the process of adoption at the
Title Certification System
State level
In progress with delay
Revision of building Streamlining the approval process is under progress. Building plan
02 byelaws – Streamlining approval time limit has been capped at 30 days and 90 days for
the approval process residential and commercial buildings respectively. ADA also
specified that building sanctions have been given in majority of
cases as per the time limit specified in Building bylaws
Revision of building
byelaws - Mandatory
03 Completed
rainwater harvesting in
all buildings
Earmarking 25%
developed land in all
04 Completed
housing projects for
EWS/LIG
Simplification of legal
and procedural No initiative taken.
framework for Revenue department is empowered to look into the matters related
05
conversion of agricultural to conversion of Agricultural land to Non Agricultural. No progress
land for non-agricultural on this reform
purpose
Byelaws on reuse of City level Public Workshops to address queries and Start of approval
06
recycled water as per new byelaws reforms yet to initiated
07 Administrative reforms In progress with delay
08 Structural reforms In progress with delay
Overall, ANN has taken PPP projects initiatives on SWM through
PPP, Electric Crematorium, Traffic Signals through Solar Light,
Encouraging public- Public Toilets, Bus shelters /Traffic Post, Parks Beautification,
09 Cyber Citizen Points
private partnership
A project for O&M of slaughter houses has been initiated and is in
tendering stage
8.5.4.2 Current status of municipal accounting reforms
Current
Reform Milestones Target Year Cumulative Progress
Status
Resolution by Government GoUP has entered into a tripartite
expressing commitment to agreement after passing a resolution
2007-08 Completed
establish modern municipal to establish a modern municipal
accounting system accounting system.

Current
Status
Appointment of consultants Integrated Management Group (IMG)
for preparing municipal 2007-08 Completed has prepared the manual. It is now to
financial accounting manual be approved at the state level.
Completion and adoption of
The Municipal Financial Accounting
Municipal Financial In progress
2007-08 Manual is pending approval at the
Accounting Manual, in line with delay
state level.
with NMAM or otherwise
GO No.4094/9-5-2008-119/2007
dated 2 June 2008 and GO No.
1552/9-5-2011-119/2007 dated 18
March 2011 have been issued,
indicating a cut-off date for full
migration to the accrual-based,
GO/legislation/modification double-entry system from 01.04.2011
of Municipal Finance Rules In progress along with the existing single-entry
2007-08 system.
for migrating to double-entry with delay
accounting system Provisions of the UPMAM will be
incorporated in the Municipal Account
Code 1980 and Nagar Mahapalika
Niyamavali 1958 and will be merged
into the common UP Municipal Rules
2011 which will then be submitted for
approval by the state government.
Two personnel from accounts are
Training of personnel for working with the FLC and getting on-
2007-08 Completed
new accounting system the-job training. Separate trainings are
also organized.
FLC has been appointed - M/S
Appointment of field-level
2007-08 Completed Ramesh Chandra Chartered
consultant
Accountants.
Notified and total migration from 1-4-
2009 as per government order.
Notification of cut-off date
2007-08 However, single entry and DEAS
for migration
accounts are maintained
simultaneously.
No specific information is available.
Re-engineering of business
In progress ANN reported that with deployment of
processes to align with new 2007-08
with delay software business processes are
system
being re-engineered
Completion of registers and Registers have been compiled and are
In progress
valuation of assets and 2007-08 being updated from time to time.
with delay
liabilities Valuation is in progress.
Drawing provisional opening
2007-08 Completed
balance sheet
Adoption of provisional
2007-08 Completed
opening balance sheet
Finalization of opening
2007-08 Completed
balance sheet

Current
Status
Fully migrated to DEAS w.e.f.
01.04.2011 as per GO No. 1552/9-5-
Full migration to double- In progress 2011-119/2007 dated 18 March 2011.
2011-12
entry accounting system with delay Cash-based system is also being
maintained simultaneously as per DLB
instructions.
Production of financial
statements as per the new Completed
system
Creation of mechanism for
Completed
internal audit
Commencement of external
Completed
audit of financial statements
Commencement of
It will be commenced by the time of
preparation of Outcome Not Initiated
the budget of F.Y.2013-14.
Budgets
Instituting of internal
Completed
audit/control mechanism
B+ by CARE Ratings for year 2008-
Undertaking of credit rating 2009-10
2009
Integration with procurement
system
Integration with works
contracts management
Integration with payroll and
wage payments Integrated mechanism will be
In progress
2009-10 developed after the implementation of
Integration with store and with delay
state-level software.
inventory management
Integration with user
charges’ billing systems
Integration with tax
collection system

Disclaimer
CRISIL Risk and Infrastructure Solutions Limited (CRIS) has taken due care and caution in preparation of this Report for Ministry of
Urban Development, Government of India. This Report is based on the information / documents provided by ANN and/or
information available publicly and/or obtained by CRIS from sources, which it considers reliable. CRIS does not guarantee the
accuracy, adequacy or completeness of the information / documents / Report and is not responsible for any errors or omissions, or
for the results obtained from the use of the same. The Report and results stated therein are subject to change. CRIS especially
states that it has no financial liability whatsoever to Ministry of Urban Development, Government of India / users of this Report.
This Report is strictly confidential and should not be reproduced or redistributed or communicated directly or indirectly in any form
or published or copied in whole or in part, especially outside India, for any purpose.
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CRISIL Risk and Infrastructure Solutions Limited

Capacity Building for Urban

Rapid Baseline Assessment

Report Prepared by CRISIL Infrastructure Advisory Team

Report Reviewed by Brijgopal Ladda

Report Validated by Request for validation has been sent to nodal

ADA Allahabad Development Authority

AJS Allahabad Jal Sansthan

ANN Allahabad Nagar Nigam

ARV Annual Rent Value

BSUP Basic Services for Urban Poor

CAA Constitution Amendment Act

CAGR Compounded Annual Growth Rate

CRIS CRISIL Risk and Infrastructure Solution

DEAS Double-Entry Accounting System

DIC District Industries Centre

DLB Director of Local Bodies

DPC District Planning Committee

DPR Detailed Project Report

DUDA Department of Urban Development

EPSP e-Procurement Service Provider

ETIM Electronic Ticket Issuing Machine

EWS Economically Weaker Section

FAS Finance and Accounting Software

GIS Geographic Information System

HOD Head of the Department

IMG Integrated Management Group

IVRS Interactive Voice Response System

JICA Japan International Cooperation Agency

JNNURM Jawaharlal Nehru National Urban Renewal Mission

LIG Low Income Group

LPCD Litres per Capita per Day

MLD Million Litres per Day

NMAM National Municipal Accounts Manual

NRW Non-Revenue Water

PPP Public-Private Partnership

PWD Public Works Department

RWH Rainwater Harvesting

SLNA State Level Nodal Agency

STP Sewerage Treatment Plant

SUDA State Urban Development Department

SWM Solid Waste Management

TCPD Town and Country Planning Department

TPD Tons per Day

UFW Unaccounted-for Water

ULB Urban Local Body

UPJN Uttar Pradesh Jal Nigam

UPPCB Uttar Pradesh Pollution Control Board

UPSIDC Uttar Pradesh State Industrial Development Corporation

UPSRTC Uttar Pradesh State Roadways and Transportation Corporation

1.1 CBUD Project .......................................................................................................................... 1

2.1 General information ................................................................................................................. 4

3.1 Brief city profile ...................................................................................................................... 20

5.1 Administration of finances at ULB ......................................................................................... 29

6.1 Roles and responsibilities of ULB and parastatals................................................................ 34

7.1 Urban planning functions ...................................................................................................... 42

8.1 List of References ................................................................................................................. 44

1.1 CBUD Project