innovative approaches in service delivery and poverty reduction -apusp experience -original...
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Innovative approaches in Service delivery and Poverty
Reduction-APUSP experience-Original presentation has been modified for Internet use.
Somesh Kumar, IAS
Project Co-ordinator, APUSP
APUSP : An Overview
• An Innovative Reform Project
• A partnership between DFID, Govt. of U.K and Dept. of MA&UD, Govt. of Andhra Pradesh.
• Aims to build lasting municipal reforms.
• Major service improvements for the poor in the town.
• Part of state government’s drive towards poverty reduction.
• Introduces concept of challenge fund
Why is APUSP needed ?
• Increased pace of urbanization.
• Growth of class 1 towns: • 20 in 1981• 35 in 1991• 45 in 2001
• About 75% of urban population (15.4 m) live in class 1 towns in 2001.
• Inadequate civic services to meet demands.
• Widespread and growing urban poverty
• Limited local government capacity to plan and respond to challenges.
Project Goal and Funding
• Sustained reduction in vulnerability and poverty of Urban Poor in Andhra Pradesh
• Poor in Class I towns benefit from improved access to more appropriate and sustainable services
• Rs 745 Crores (£ 94m) grant fund from DFID. Overall project Rs. 1407 Crores
• 7 years duration
• Covers about 2.2 m poor (1991 Census) in 32 Class - I towns
Salient Features
• A process oriented project
• Reforms and improved municipal performance
• Primacy for participatory approaches
• Encouraging community initiatives
• Preparation of Comprehensive Municipal Action Plan for Poverty reduction (CMAPP)
• Capacity building of municipalities and CBOs to articulate needs of poor
• Performance based fund releases
APUSP : What is new?
• Priorities identified by the poor
• Town wide approach to poverty reduction
• Demand driven
• Emphasis on reforms and system improvement for sustainability and O&M
• Strengthening of CBOs and CSOs
• Design builds on lessons learned from Slum Improvement Projects (SIPs)
Three Complementary Components
Reforms leading to improved Municipal
Performance (C1)
Rs.120Crores
Funding forenvironmentalservices for the
Poor (C2) Rs. 525 Crores
Strengthening
Of CSOs
(C3)
Rs 100 Crores
C1 : Municipal Reforms
• Specific Reform Areas• Revenue Improvement
• Streamlining tax structure
• Better asset management
• Expenditure control
• Updating accounts / audit
• Institutional Development• Human Resource Development
• Improved systems and methods
• Management Information Systems
• Improved municipal responsiveness
• Service delivery improvements• Participatory planning• Community participation in decision making• Civil Society, CBOs and NGOs
participation
C2 : Environmental Infrastructure
• Water Supply• Storm Water Drains• Roads• Solid Waste Management• Street Lighting• Sanitation• Funding Pattern
• In poor settlements (65%) : on-site
• Upto 35% linked infrastructure : off-site
C3 : Strengthening Civil Society
• Better understanding of the needs of the poor• Create channels to influence municipal decision making• Give voice to people’s priorities• Build advocacy for improved services• Stimulate local willingness and
capacity• Stimulate poverty targeted
initiatives from CSOs.• Plan and implement community-
based projects• Participatory Poverty Assessments
(PPAs)• Participatory Micro Level Planning
(PMLP)
• CMAPP (Comprehensive Municipal Action Plan for Poverty Reduction)
• Poverty Focus and Targeting
•Poor Settlement Matrix
•Urban Poverty Cell
•Convergence of Anti Poverty Programme
•Poverty profiling and data
• Participatory Processes
•CMAPP prepared through participatory process
•Stakeholders involvement – committee, working groups and especially the poor and marginalised
•Participatory Micro level Planning at settlement level
• Strengthening of Municipalities / Corporation
•34 MIPOs
•33 MAFAs
•130 Community Organisers
•Project supports towns
•Call down consultants in 9 disciplines for towns
•Project Level Consultancy Support
Innovative Features of APUSP
• Major innovation
• Participatory process
• High involvement of stakeholders particularly poor and women
• Ownership of towns
• Engagement of chairpersons/mayors/councilors, MPs, MLAs and others
• Recognized as a ‘best practice’ under Good Governance Campaign
Comprehensive Municipal Action Plan for Poverty Reduction
(CMAPP)
Item Basic MAPP CMAPP
Reforms Simple Complex
Components C1 and C2 C1, C2 and C3
Convergence Weak High
Process New Established
Document Bulky Sleek and usable
Innovation MatrixMoU, Reforms indicators, MCR
Ownership of town
Low High
Evolution of CMAPP
• 1st Cycle – 32 towns• CMAPP builds over Basic MAPP• Further Strengthened over Basic MAPP
Basic MAPP
• Prepared for all 32 towns
• High Consensus
• High Involvement
• Town Vision
• Reforms and infrastructure development
• High Participation of political leaders – Ministers, MPs, MLAs, Chairpersons, Mayors and Councilors
Proddatur Vision Statement Proddatur is a Major Town in the Cuddapah District and main business centre in the Rayalseema Region. It needs means of self employment, training in developmental skills, facilities for good health and education. The Town requires Integrated New Drainage System and all the main channels lined and all the sub lanes be properly linked, developed with good and wide roads, foot paths, free of encroachments and needs drinking water for every part of town. People should be enlightened about all the aspects of development schemes, their participation in development activities and in Municipal Administration for its transparency, strong and good cooperative governance.
Matrix
• Matrix prepared based on poverty and infrastructure
deficiency
• Poverty Criteria
• BPL Population
• SC/ST Population
• Infrastructure Deficiency Criteria:
• Water supply
• Roads
• Drains
• Poor settlements in the town ranked in the Matrix
• Street lighting
• Sanitation
• Flooding
Project Management Structure
Committees and Working Groups
• Involvement of various stakeholders in CMAPP
• Institutionalisation of participatory processes
• Constitution of committees and groups• Municipal reforms committee (MRC)
• Municipal task force (MTF)
• Working group 1 (WG1)
• Working group 2 (WG2)
• Working group 3 (WG3)
• Active involvement of committees and groups in preparation as well as implementation of CMAPP
MRC and MTF
MRC• Policy and strategic support for CMAPP
• Preparation of CMAPP
• Monitoring of APUSP
• Constitution• Mayor/Chairperson as head
• Ward members and others as members
• Not exceeding 15 members
MTF Carry out day to day activities Support various committees in
preparation of CMAPP Monitoring of APUSP Constitution :
• Commissioner as head• Heads of sections as members• Work under guidance of MRC
Working Groups 1, 2 and 3
WG1
• To prepare proposals for
Municipal Performance
Improvement
• Monitor reforms
• Members : Mayor /
Chairperson, Ward
Members, Technical &
Finance Officials, Town
Knowledgeable and
others. (15 Members)
WG2
• Ranking all notified
slums in the town and
then to prioritise poor
settlements.
• Monitor C2 works
• Ward members,
officials, CDS,
representatives, town
knowledgeables and
others. (15 Members)
WG3
• Prepare social development
plan under CMAPP
• Review and monitor
implementation, develop pro
poor orientation in Municipal
decision making etc.,
• Mayor / chairperson, MLAs,
ward members, CDS
president, NHC conveners,
Private sector representatives
officials (15 members).
CMAPP – Key Features
• Each town prepare action plan called Comprehensive Municipal Action Plan
(CMAPP)
• Incorporates Challenge Fund Concept I.e. no automatic entitlement to Project
funds and performance based funding
• Ownership of programmes by the ULBs including C3
• Integration of C3 with C 1 and C2 and management with APUSP
• Participatory Micro-Level Planning covering non-infrastructure needs of poor
CMAPP
• Medium term rolling plan for three years – detailed for the first cycle and indicative for subsequent cycles
• Integrated with the annual budget from 2005-06
• Active role for regional officers - RDMA, SE- PH, RD-TP in the Project
• First cycle of CMAPP during 2003-04 covers only notified slums as
per matrix
• Coverage of non-notified slums from next cycle
• Guidelines for inclusion of non-notified slums cleared and piloted
• Convergence of 3 components and other schemes, programmes etc.
Components of CMAPP
Three components of CMAPP are:
• Municipal Reforms Action Plan (MRAP)
• Municipal Infrastructure Action Plan
(MIAP)
• Social Development Action Plan (SDAP)
• Baseline data collection• MPC in Basic MAPP• MRC, MTF, WG – I, II & III
• Training to Municipal and Community Teams• HHS survey, Data entry, Data validation &• corrections, Generation of reports
• CMAPP orientation • Group discussions• Annucmt. of MRC, MTF, WGs• Orientation on PMLP
• PMLP in selected poor settlements • Preparation of line estimates• Preparation of Action Plans on Health, Edun.,Livelihood, SHGs, Vulnerability
• Preparation of C1 (reforms), C2 (infrastructure), C3 (SDAP) proposals though WG – I, II and III
• Finalization of C1, C2, C3 proposals by MRC with the Participation of members of working groups & others
• Preparation of Document as a cooperative effort of Municipal staff • Consultation with Commissioner / CP etc.• Documentation preparation through MTF
• Field appraisal in C1, C2, C3• Necessary corrections• Council approval• EC approval
• Preparation of Sub project reports• Memorandum of Understanding(MoU)• Approval and release of funds
HOUSE HOLD
SURVEY
PREPARATORY STAGE
PARTICIPATORY MICROPLANNIN
G PROCESS
CMAPP ORIENTATIO
N
PREPARATION
OF C1,C2,C3 PROPOSALS
CONSULTATIVE
WORKSHOP
APPRAISAL AND
COUNCIL APPROVAL
PREPARATION OF DRAFT DOCUMENT
MOUIMPLEMENTATION & RELEASE OF
FUNDS
startnexr cycle
CMAPP Cycle
CMAPP Process
Preparatory Steps
MAPP Review
Orientation and Review Workshop Poverty Survey PMLP
Reform Proposals
Infrastructure Proposals
Social Development
Proposals
Stake holder's Consultative Workshop
Draft ReportField Appraisal
Revised Draft Report
Council Approval
E.C. Endorsement
MOU Implementation
Next Cycle
MPC
Minimum Performance Criteria
• Eligibility for CMAPP initiation• Achievement of 70% of target revenue increase in
simple RIAP• Initiated 3 simple IDAP initiatives and demonstrate
measurable positive outcomes• 40% of physical progress of combined C2 on-site and
off-site to quality standards• Work orders issued for 70% of on-site and off-site
works• One self procured C1 equipment package
commissioned and operational
Serial No.
Stage No. of Towns
1 Approved 19
2 Appraised 7
3 Weak Towns 6
Salient features
• Advance planning
• Data collection
• Parallel processing
• 4 multi disciplinary teams
CMAPP Progress
Component
Proposals
Amount APUSP Town Others
C1 504 40.05 20.78 17.43 1.84
C2 426 116.11 107.07 8.33 0.71
C3 853 83.62 19.86 6.80 56.96
Total 1783 239.78 147.71 32.56 59.51
Rs. in Crores
CMAPP Break up : 23 Towns
• All 32 Basic MAPPs prepared
• Expenditure (in Rs. Crore)
C1 47.60
C2 87.07
C3 2.78
Total 137.45
Basic MAPP : Progress
Project Management
• New institutional structure finalised• Engagement of Resource persons in 9 disciplines
for towns• 34 MIPOs placement and training• 33 MAFA’s engagement in project towns• Imprest created at APUFIDC to save time• Involving Regional Officers (RDMAs, SEPHs,
RDDTPs)• Online empanelment of consultants for towns
C1 : Progress
• Monthly performance review meetings on status of C1,C2 & C3 on the first Monday every month.
• Status of APUSP as the first item of agenda in Council meetings
• 3305 municipal staff trained on various issues
• 173 years of Annual Accounts completed during the Basic MAPP period
• 38 years of Audit done completed during the Basic MAPP period
C1 : Progress
• Reform Indicators- online system• Reform Sequencing Matrix- finalised• MOU with the Municipalities on Reforms• Notification of Non-notified Poor settlements
Guidelines and piloted• Urban Planning Guidelines• Grading based on reforms from now onwards
Perspective Plans
• Revenue improvement action plan
• Systems improvement plan
• Financial operating plan
• Social development action plan
• Critical infrastructure investment plan
• Operation and maintenance plan
• General town plan
• Livelihood promotion action plan
• Capacity building plan
• Communication strategy
C2 : Progress
INDICATORS AS ON JAN 2003 AT PRESENT
NO. AMOUNT NO. AMOUNT
EC Approved 1198 123.75 1253 128.75
Technical sanctions 887 83.07 1236 120.21
Works completed 107 6.49 944 73.62
Works under progress at advanced stage
387 19.21 248 39.36
UCs submitted 4 towns 2.20 31 towns
66.57
Tender stage 393 57.37 23 5.68
Amount Released to Towns
31 towns
19.99 31 87.07
Rs. in Crores
Infrastructure Provided- Basic MAPP
Roads and Drains 674 KMs Rs.96.38 crores
Water Supply 270 KMs Rs.28.15 crores
Others Street lighting and Solid
waste management
Rs.6.37 crores
Total Rs.130.90 crores
7 lakh population benefitted from 454 poor settlements
C2 : Progress
• Regular monitoring at project level and weekly reporting by municipalities through E-Mail
• PMIS operationalised, refined and grading of towns done• O&M guidelines issued• APUSP Eng.Teams visiting 100% of works• Analysis of 3rd party QA Reports at project• 86 % of UC’s received against releases• Guidelines in use
• Procurement of equipment• Packaging of works• Photography ( before & after interventions)• O & M Plan
C3 : Progress
• C3 brought to the project fold with new thinking• Institutional support
• APMAS • Action-Aid• Nirantara
• Strengthening CBOs by integrating municipal schemes with Banks and line departments.
• Gender strategy finalized
• BASIX
• SPARC
• DRF(Tulasi)
C3 : Progress
• Poverty survey and software developed in house• Completed in 2013 poor settlements in 32 towns• 180 CD staff positioned and trained in SHG
empowerment, PRA, PMLP• Livelihood promotion officers for towns• Bank finance support officers for towns• PMLP completed in 454 poor settlements• Special drive for SHG in 878 settlements• Two phases special drive conducted
Poverty Survey Form
Strengthening existing SHGs and coverage of left over poor in SHGs
Total No.of Poor settlements taken up 878
Total No.of Households 275386
No.of Households covered under SHG 117309 (42.60 %)
No.of Households uncovered under SHGs 158077 (57.40 %)
Existing groups 8197
No.of New groups formed 2504
No.of groups CRI done 5463
No.of groups for which Bank Account opened
1224
(Special drive in 2 phases)
Strengthening SHGs
• Major drive• Grading as per critical rating index• Orientation • Training of COs and TPOs• Identification of book keeper, animator etc.,• System for monitoring
• UPADHI- Urban Programme for Advancement of Household Income
• Livelihood Project for Rs.155 crores sanctioned• 1 lakh poor families to be covered in one year.• Programme initiated in 16 towns• Support from TULASI and America India
Foundation
UPADHI
MIPOs : A Major Achievement
Packages developed by MIPOs• Municipal Online System.• House Hold Poverty Survey offline tool with
reports.• Package to enter 18 Formats data.• Project Management Information System.• Reform Indicators• Self Help Group offline package.• Tour and Task monitoring system
Municipal Online System
A step towards e-municipality
MOS Services
The Core Services offered by the system under each section are
• Engineering Section• Revenue Section• General Administration• Town Planning• Public Health and Sanitation• Urban Poverty Alleviation Cell
Reports
Based on the Input taken from above Forms the following report can be generated Reports based on Group Rating Municipality Wise Reports Ward Wise Reports Slum Wise Reports Bank Wise Reports Activity Wise Reports Vulnerability Wise Reports
Hon’ble Chief Minister’s Comments
• High impact on GoAP policies
• CMAPP process – a major influence
• Government Order
• World Bank and other agencies
• GOI : Best Practice
• Community Organisors for all 117 towns
• 3rd Party Quality Assurance for Government works
• 300 Crore AP Urban Infrastructure Structure Development
• Notification of non-notified settlements – APUSP Guidelines
• Poverty Survey for all towns – 117 using APUSP pictorial survey formats and software
• MIPO’s for all 117 towns
APUSP Influences Urban Policies
Other Major Initiatives
• MCR (Mid Cycle Review) for better implementation• Model settlements in each town• Regular Newsletter and communication• Online PMIS & CED• Revamping and strengthening of UPA cell• 1st e-municipality in 30 days and rollout in 117 ULBs
later• Procurement reforms for ULBs• Rs. 155 crores livelihood development project with
Rs. 20.00 crores from APUSP• Self reliance and intensive engagement
• Adilabad • Alwal • Dharmavaram
• Nalgonda • Rajendranagar • Serilingampally
•Srikakulam • Tadepalligudem •Yemmiganur
• Kapra • Uppal kalan
11 towns newly included
APURMS Project
• New World Bank Project called APURMS (Andhra Pradesh Urban Reforms and Municipal Services) at advanced stage
• Estimated outlay Rs.1200 crores
• All Municipalities / Corporations
• City wide infrastructure
• Planning process launched
Reforms – slow process
• Capacity of the towns
• Institutionalization of revamped C3
• Livelihood project
• Flow of funds
• Inclusion of 11 new towns
• Support and cooperation of DFID as earlier !
Challenges Ahead
Thank You For Thank You For
AttentionAttention