18 Nagpur Draft Report

8/11/2019 18 Nagpur Draft Report

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Ministry of Urban Development,Government of India

Capacity Building for UrbanDevelopment Project-

Nagpur

Draft Report

October 2013

CRISIL Risk and Infrastructure Solutions Limited


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Ministry of Urban Development

[ii]Rapid Baseline Assessment - Nagpur Draft Report

Certification

Report Prepared by CRISIL Infrastructure Advisory Team

Report Reviewed by Dr Ravikant JoshiBrijgopal Ladda

Report Validated by Request for validation has been sent to nodalofficer 1

1

Once the certificate is received from the ULB, the same shall be submitted to CBUD Cell


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[iii]

List of Abbreviations

ARV Annual Rental Value

BPL Below Poverty Line

BRTS Bus Rapid Transit System

BSUP Basic Service to Urban Poor

CAA Constitutional Amendment Act

CAGR Compounded Annual Growth rate

CGG Center for Good Governance

CRIS CRISIL Risk and Infrastructure Solutions Limited

DEAS Double Entry Accounting System

DPR Detailed Project Report

DTCP Director of Town and Country Planning

ESR Elevated Service Reservoir

EWS Economically Weaker Sections

GAD General Administration Department

GIS Geographical Information System

HRD Human Resource Development

IALA Industrial Area Local Authority

JNNURM Jawaharlal Nehru National Urban Renewal Mission

LIG Low Income GroupsNHAI National highway Authority of India

NMAM National Municipal Accounting Manual

NRW

NMC

NIT

MSRDC

Non-revenue water

NMC

Nagpur Improvement Trust

Maharashtra state roads development authority

OBS Opening Balance Sheet

PHED Public Health and Engineering Department

PPP Public Private Partnership

SEZ Special Economic zones

SPS Sewerage Pumping Stations

STP

SRA

Sewerage Treatment Plants

Slum Rehabilitation Authority

SWD Strom Water Drainage

SWM Solid Waste Management

TDS Transferable Development Services

UFW Unaccounted For WaterULB Urban Local Body


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[iv]Rapid Baseline Assessment - Nagpur Draft Report

WTP Water Treatment Plant


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[v]Rapid Baseline Assessment - Nagpur Draft Report

Contents

Certification ........................................................................................................................................... ii

List of Abbreviations ........................................................................................................................... iii

Contents ................................................................................................................................................. v

List of Tables ...................................................................................................................................... viii

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 ...................................................................................................................... 3

2.1 General information ................................................................................................................. 3 2.2 Municipal Governance ............................................................................................................ 3 2.3 Municipal Financial Management ........................................................................................... 7 2.4 Urban Service Delivery ........................................................................................................... 9 2.5 Urban Planning ..................................................................................................................... 15 2.6 Key issues ............................................................................................................................. 16 2.6.1 Municipal Governance ..................................................................................................... 16 2.6.2 Municipal Financial Management .................................................................................... 16 2.6.3 Urban Service Delivery .................................................................................................... 17 2.6.4 Urban Planning ................................................................................................................ 18 2.7 Capacity Building .................................................................................................................. 18 2.7.1 Municipal Governance ..................................................................................................... 18 2.7.2 Municipal Financial Management .................................................................................... 19 2.7.3 Urban Service Delivery .................................................................................................... 20 2.7.4 Urban Planning ................................................................................................................ 21

3. Brief City Profile .......................................................................................................................... 22

3.1 Population Trends ................................................................................................................. 22 3.2 Indicators ............................................................................................................................... 23

4. Urban Governance ...................................................................................................................... 24

4.1 Existing status ....................................................................................................................... 24 4.1.1 Empowering ULBs Status of 74th CAA ........................................................................ 24 4.1.2 Functions, roles and responsibilities of NMC and parastatals ........................................ 25 4.1.3 NMC- Status of Municipal Administration ........................................................................ 26 4.2 Key Concerns ........................................................................................................................ 29 4.3 Capacity building areas ......................................................................................................... 30

5. Municipal Financial Management .............................................................................................. 31

5.1 Budget Preparation ............................................................................................................... 31 5.2 Audit of Accounts .................................................................................................................. 32 5.3 Municipal Accounting system ................................................................................................ 32 5.4 Municipal Financial status ..................................................................................................... 32 5.5 Assessment of Property tax System at NMC ........................................................................ 35


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[vi]Rapid Baseline Assessment - Nagpur Draft Report

5.5.1 Institutional Arrangement ................................................................................................ 35 5.5.2 Assessment of Property tax ............................................................................................ 35 5.5.3 Coverage of properties .................................................................................................... 36 5.5.4 Billing and Collection ....................................................................................................... 36 5.5.5 Demand, Collection and Balance Statement .................................................................. 37 5.6 Key Issues ............................................................................................................................. 38 5.7 Key municipal financial assessment Indicators.................................................................. 39 5.8 Capacity building areas ......................................................................................................... 40

6. Urban Service Delivery ............................................................................................................... 42

6.1 Roles and responsibilities of NMC and Parastatals .............................................................. 42 6.2 Water Supply ......................................................................................................................... 42 6.2.1 Water supply system ....................................................................................................... 42 6.2.2 Service-level indicators ................................................................................................... 45 6.2.3 Planning, financing, procurement, and implementation .................................................. 46

6.2.4 JNNURUM Project implementation ................................................................................. 47 6.2.5 Best Practices.................................................................................................................. 48 6.3 Sewerage and Sanitation ...................................................................................................... 48 6.3.1 Sewerage system ............................................................................................................ 48 6.3.2 Service-level Indicators ................................................................................................... 49 6.3.3 JNNURM project implementation .................................................................................... 49 6.4 Solid Waste Management ..................................................................................................... 50 6.4.1 Solid waste management system.................................................................................... 50 6.4.2 Service-level Indicators ................................................................................................... 52 6.5 Storm Water Drainage .......................................................................................................... 53 6.5.1 Service-level Indicators ................................................................................................... 53

6.6 Roads and Streetlights .......................................................................................................... 54 6.7 Housing and infrastructure for Urban Poor ........................................................................... 55 6.7.1 JNNURM project implementation .................................................................................... 56 6.8 Key issues ............................................................................................................................. 57 6.9 Capacity building areas ......................................................................................................... 58

7. Urban Planning ........................................................................................................................... 60

7.1.1 City Planning Status of MPCs and DPCs ..................................................................... 60 7.2 Status of master plans and land use plans ........................................................................... 61 7.3 Existing practice for planning process .................................................................................. 62 7.4 Status of key reforms implementation .................................................................................. 63 7.5 Key issues ............................................................................................................................. 65 7.6 Capacity building areas ......................................................................................................... 65

8. Annexure ...................................................................................................................................... 66

8.1 List of References ................................................................................................................. 66 8.2 Websites/Related Links ......................................................................................................... 66 8.3 List of Officials met during ULB visits .................................................................................... 67 8.4 Minutes of the meetings ........................................................................................................ 68 8.5 Annexure -Qualitative Questionnaire .................................................................................... 71 8.6 Annexure -Quantitative Questionnaire ................................................................................ 102

8.7 General Information ............................................................................................................ 102 8.8 Land use .............................................................................................................................. 103


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[vii]Rapid Baseline Assessment - Nagpur Draft Report

8.9 Municipal Financial management ....................................................................................... 103 8.9.1 Property tax Details ....................................................................................................... 105 8.10 Urban Service Delivery ....................................................................................................... 106 8.10.1 Water supply .............................................................................................................. 106 8.10.2 Sewerage & Sanitation .............................................................................................. 109 8.10.3 Solid Waste Management .......................................................................................... 111 8.10.4 Storm water drains ..................................................................................................... 113 8.10.5 Roads and Urban transport ....................................................................................... 113 8.10.6 Services to Urban Poor .............................................................................................. 114 8.11 Municipal Governance ........................................................................................................ 114 8.12 Status of Reforms under JNNURM ..................................................................................... 116


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[viii]Rapid Baseline Assessment - Nagpur Draft Report

List of Tables

Table 3-1: Population trend of Nagpur city ........................................................................................... 23 Table 3-2: Demographic Indicators of Nagpur city ............................................................................... 23 Table 4-1: Status of transfer of functions as per 74th CAA .................................................................. 25 Table 4-2: Department-wise staff strength ............................................................................................ 26 Table 5-1: Financial details ................................................................................................................... 33 Table 5-2: Coverage of the properties .................................................................................................. 36 Table 5-3: Schedule of Billing & Collection process ............................................................................. 37 Table 5-4: Demand, Collection and Balance table for property tax ...................................................... 38 Table 6-1: Annual water reservation and withdrawal ............................................................................ 42 Table 6-2: Treated water supply from various WTPs ........................................................................... 43 Table 6-3: Treated water supply from various WTPs ........................................................................... 43 Table 6-4: SLB indicators for Water supply sector of Nagpur ............................................................... 45 Table 6-5: JNNURM project implementation for water supply sector ................................................... 47 Table 6-6: Sewerage sector Service-Level Indicators .......................................................................... 49 Table 6-7: List of vehicles in use for solid waste transportation in Nagpur ........................................... 51 Table 6-8: Service-Level Benchmarks for solid waste management .................................................... 52 Table 6-9: Service-Level Benchmarks for storm water Drainage ......................................................... 53 Table 6-10: Status of road network ....................................................................................................... 54 Table 6-11: JNNURM project implementation for urban transport sector ............................................. 55 Table 6-12: Details of old projects under BSUP programme ................................................................ 56 Table 7-1: Zone-wise area planning and area under NMC ................................................................... 61 Table 7-2: Comparison of land use plan of Nagpur in 1984 and 2011 ................................................. 62 Table 7-3: Status of building plan approvals in last five years .............................................................. 63

Table 7-4: Status of key reforms ........................................................................................................... 64 Table 8-1: Qualitative Information on Municipal Financial Management in Nagpur ............................. 71 Table 8-2: Qualitative Information on Urban service delivery in Nagpur .............................................. 81 Table 8-3: Qualitative information on Municipal Governance at Nagpur .............................................. 89 Table 8-4: Qualitative Information on urban planning in Nagpur .......................................................... 98 Table 8-5: ULB Key contacts .............................................................................................................. 102 Table 8-6: ULB Profile ......................................................................................................................... 102 Table 8-7: Workers details in ULB ...................................................................................................... 102 Table 8-8: Land use break-up ............................................................................................................. 103 Table 8-9: Financial Status ................................................................................................................. 104 Table 8-10: Financial Status ............................................................................................................... 104

Table 8-11: Loan Statement................................................................................................................ 104 Table 8-12: Outstanding Debt Liability ................................................................................................ 105 Table 8-13: DCB Statement of Property Tax ...................................................................................... 105 Table 8-14: Sources of water supply .................................................................................................. 106 Table 8-15: Distribution ....................................................................................................................... 106 Table 8-16: Connection Details ........................................................................................................... 106 Table 8-17: Annual tariff for metered and unmetered connections..................................................... 106 Table 8-18: O&M Expenses ................................................................................................................ 108 Table 8-19: Demand Collection Balance Statement for Water Charges ............................................ 108 Table 8-20: Cost Recovery ................................................................................................................. 108 Table 8-21: Service level benchmarking ............................................................................................. 108 Table 8-22: Capacity Augmentation under JnNURM .......................................................................... 109 Table 8-23: Current system................................................................................................................. 109


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[ix]Rapid Baseline Assessment - Nagpur Draft Report

Table 8-24: Capacity of STPs ............................................................................................................. 110 Table 8-25: Service Charges .............................................................................................................. 110 Table 8-26: O&M expenses ................................................................................................................ 110 Table 8-27: Demand and Collection Balance Statement .................................................................... 110 Table 8-28: Cost Recovery ................................................................................................................. 110 Table 8-29: Capacity Augmentation under JnNURM .......................................................................... 110 Table 8-30: Proposed Projects............................................................................................................ 111 Table 8-31: Service Level Benchmarking ........................................................................................... 111 Table 8-32: Current SWM service ....................................................................................................... 111 Table 8-33: Source-wise quantity of waste generation ....................................................................... 112 Table 8-34: Details of Disposal/landfill sites ....................................................................................... 112 Table 8-35: Tariff structure .................................................................................................................. 112 Table 8-36: Demand and collection Balance statement ..................................................................... 112 Table 8-37: Initiatives taken under JnNURM ...................................................................................... 112 Table 8-38: Proposed Projects............................................................................................................ 112

Table 8-39: Service level benchmarking ............................................................................................. 112 Table 8-40: Present system ................................................................................................................ 113 Table 8-41: Initiatives taken under JnNURM ...................................................................................... 113 Table 8-42: Proposed Projects............................................................................................................ 113 Table 8-43: Details of Roads .............................................................................................................. 113 Table 8-44: Investment in projects including those under JnNURM ................................................... 114 Table 8-45: Proposed Projects............................................................................................................ 114 Table 8-46: Status of BSUP projects under JnNURM ........................................................................ 114 Table 8-47: Staffing Pattern ................................................................................................................ 114 Table 8-48: Training attended in the past one year ............................................................................ 115 Table 8-49: Training requirement ........................................................................................................ 115

Table 8-50: Status of mandatory reforms under JNNURM ................................................................. 116 Table 8-51: Status of optional reforms under JNNURM ..................................................................... 116


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Rapid Baseline Assessment - Nagpur Draft Report [1]

1. Project Background

With growing population in urban areas in India, tremendous pressure has been put on key urbanservices and service delivery mechanism at city/town level. In order to overcome these issues at ULBlevel, 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 reformsacross the selected ULBs in India.While there has been good progress in implementation of reforms at policy level at state and centrallevel. However, Institutional strengthening and capacity buildings initiatives are yet to be initiated inmost of the ULBs. Further, the service levels are not up to the mark in most of the ULBs. The need ofthe hour is to focus on capacity building aspects at ULB level to improve the service deliverymechanism 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 UrbanPoverty Alleviation (MoHUPA) had launched a new project called Capacity Building of UrbanDevelopment (CBUD ). The project had been launched with support from The World Bank. Theproject has following three components:

1. Capacity Building for Strengthened Urban Management . This component is aligned withthe infrastructure and governance sub-mission of JNNURM and will thus support technicalassistance across the several urban management topics.

2. Capacities Building for Effective Urban Poverty Monitoring and Alleviation. Thesecapacity 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 designingstrategies 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 theProgramme. 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 allthese studies.

1.2 Rapid Baseline Assessment

In order to provide a baseline for project implementation & broadly identify the capacity gaps andtraining needs, MoUD initiated the whole process with a Rapid Assessment of the status of the ULBsselected 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 tomonitor 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 deliverybenchmarks and identifying areas of intervention and the support to be provided to utilities.

The study targeted to cut across the four major interrelated aspects mentioned below:

1. Municipal Financial Management;2. Municipal Governance;


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[2] Rapid Baseline Assessment of Nagpur Draft Report

3. Urban Planning and Land use; and4. Urban Service Delivery.

To undertake this study, MoUD appointed CRISIL Risk & Infrastructure Solution Limited (CRIS) asconsultant 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 intoconsideration while studying each of the ULBs to gain an understanding on the quality and efficiencyof Urban Management mechanisms and to further propose interventions to enhance the ULBsperformance.The four Functional Areas are interrelated and have significant impact on each other. Each of theseFunctional Areas was dealt individually before they were integrated to realize the overall Goal of theProject. A Part -to-Whole approach was adopted to ensure clarity of tasks and activities proposed tostrengthen each of the Functional Areas. The flowchart below illustrates the overall frameworkadopted to achieve the goal of the assignment at hand.

Figure 1-1: Rapid Baseline Study Process mapping

1.4 Methodology

The following in brief step by step actions were taken to prepare the Rapid Baseline Report at CityLevel

Kick off meeting with MoUD 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

Interventions leading to

enhanced capacity ofurban management

systems

Assessment ofMunicipalFinancialSystem

Assessment ofUrban planning

and land use

Assessment ofUrban servicesdelivery system

Assessment ofMunicipal

Governances stem


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2. Executive Summary2.1 General information

Sr. No. Particular Details1 Name of the City Nagpur

2 Key Economic DriversOranges exports and other related

industries

3 Total Population (2011) 24,05,421 persons

4 Floating population (if any, in case of tourist cities) NA

5 Total Slum Population 8.50 lakhs (36% of total population)

6 Decadal Growth Rate (2001-11) 15%

7 Area of ULB 217.56 sq. km

8 Density 11,304 persons per sq. km

9 Literacy Rate 93.13%

10 Sex Ratio 1040 females per 1000 males

2.2 Municipal Governance

General Information

Sr.No.

Particular Details

1 Formation year of the ULB Municipal Association 1864

Municipal Corporation 1951

2 No. of wards 145

3 Whether local body is in place Yes

4 The city has following no. of citizen

facilitation centres

There are in all l 10 CFCs in Nagpur.

5 The ULB has implemented the following

acts:

Right to Information (RTI)

Right to Service (RTS)

NMC is providing the information to citizens under

the RTI act. The citizen s charter is in place to

deliver the key service within the specified time

period. The copy of citizen charter is provided in

each CFC center in order to disseminate the

information and provide transparency regarding the

key services.

6 The ULB discloses the following

information to the public: Annual budget estimates Status of key project information and

JNNURM-related information Contact details of the concerned officials for


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Sr.

No.

Particular Details

key services

7 Sanctioned Staff 125078 Actual Staff 9260

9 Staff on contract NA

Vacancy rate 26% (3247)

10 The recruitment of staff is governed by NMC is responsible for carrying out recruitment of

all class of employees.

11 The recruitment rules are of the following

year

Rules and procedure of recruitment is carried out

as per MMC Act (for old staff members it was as

per CNC Act)

12 The state has created Municipal Cadre Yes. Assistant Director for Town Planning post has

been created. ADTP has been deployed at all the

ULBs in Maharashtra State.

13 The ULB has a training curriculum and

budgets for training

No. There is no HR policy and training cell at NMC.

Transfer of funct io ns (as part of 74 th CAA)

Sr.

No.12th Schedule Functions

Status of Transfer and the name of the

agency/s responsible

1 Urban planning including town planningPreparation of master plan NIT and NMC.Implementation NIT and NMC

2Regulation of land-use and construction of

buildingsNMC

3Planning for economic and social

developmentNMC and NIT

4 Roads and bridges NMC and MSRDC

5Water supply- domestic, industrial and

commercial

NMC

6Public health, sanitation, conservancy and

SWMNMC

7 Fire services NMC

8Urban forestry, protection of environment and

ecologyNMC and state forest department

9

Safeguarding the interests of weaker

sections of society including the handicapped

and mentally retarded

NMC

10 Slum improvement and up-gradation NMC and Slum Rehabilitation Authority (SRA)


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Sr.

No.12th Schedule Functions

Status of Transfer and the name of the

agency/s responsible

11 Urban poverty alleviation NMC and SRA

12 Provision of urban amenities and facilities-parks, gardens and playgrounds

NMC

13Promotion of cultural, educational, and

aesthetic aspectsNMC

14Burials and burial grounds, cremations,

cremation grounds and electric crematoriumsNMC

15Cattle pounds, prevention of cruelty to

animalsNMC

16Vital statistics including registration of births

and deathsNMC

17

Public amenities including street lighting,

parking lots, bus stops and public

conveniences

NMC

18 Regulation of slaughter houses and tanneries NMC

Status of E-Governanc e Services

Module Status Remarks

Property tax Implemented Deployed the property tax module and also the payment

gateway on NMC website.

Accounting Implemented Tally based module is in place for double entry accountingsystem and the process of integrating it with budget codes,municipal receipts and expenditure has been carried outunder E-Governance project. Recently, NMC has preparedthe budget as per NMAM budget codes and NMC isplanning to integrate the same with the accounts codes.

Water supply and

other utilities

Implemented Water supply module is in place. NMC has prepared the

module but as per agreement a private operator iscollecting the water user charges. The private operator hasinformed NMC that they will have their ownmodule/application for water supply which is still pending.

Birth and death

registration

Implemented A computerized system of birth and death is in place.

Database for birth and death is digitized and availablesince 1897.

Citizens

grievance

Implemented A dedicated cell for c itizens grievance monitoring is in

place and all the departments are provided access to thePGR module. Once Ci tizens register their grievances


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Module Status Remarks

monitoring online, it will be directed to the respective official ofrespective department. As per the timelines decidednecessary action has to be taken, else case gets escalated

to the senior official.

Personnel

management

system

Implemented Module for personnel management system is in place;

database for all the employees has been created.

Procurement and

monitoring of

projects

implemented Module for procurement and monitoring is under

implementation.

E-procurement Implemented Module is in place and under implementation.

Project/ward

works

Implemented Module for projects is already under implementation.Projects status reports and measurement books areprepared and updated in the software itself.

Building Plan

approval

Implemented A separate module (Auto DCR) is in place for building plan

approval. All the approvals are given through this software.

Health

programmes

Licenses Implemented A computerized licenses module is in operation.

Solid Waste

Management

Implemented Module is in place and vehicle-tracking is done with the

help of the GPS system.

Particular Brief Details

Status of

Citizen Charter

NMC has worked on improving its basic services provision to citizens and the same

has been provided in the citizen s charter during 2012. Citizen charter for all the

basic functions/services provided to citizens has been provided outside all the

concern departments and offices of NMC. Details have been provided in form of

posters and charts.

Public

Disclosure

NMC is disclosing the information in terms of physical progress and financial

progress related to the infrastructure/development works executed by its various

departments through its website from time to time. Also, the progress reports related

to JNNURM projects have been uploaded on the websites.


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Particular Brief Details

Grievance

Redressal

System

NMC has developed a grievance redressal module under e-governance. NMC

proposes to deliver citizen-centric integrated services through the NMC services

portal. Access is either through online web portal or through manual registration at

nearest citizen facilitation centre which have been set up across the city. Also, a

new web portal of NMC offers many services online, which will save citizens time

and efforts.

2.3 Municipal Financial Management

Exis t ing S ta tus Municipal Financial Management

Sr.

No.

Particular Details

1 The accounting system in the ULB is Double Entry Accounting System

2 Balance Sheets are prepared uptill the year FY 2011-12 and yet to be audited

3 Valuation of assets completed uptill the year List of assets has been prepared by various

departments of NMC and provided to accounts

department. Valuation of assets is still pending.

4 The asset register is managed on a (real-

time/ intermittent) basis

Intermittent basis

5 Double entry accounting system is practicedon (real-time/ intermittent) basis

Real-time

6 The ULB has adopted the municipal codes

of (NMAM/ state accounting codes/ others if

any)

NMC has adopted NMAM and prepared the

budget for the financial year 2013-14.

7 Account codes are linked with budget codes

(Yes/No)

Linking is in process.

8 Ledgers and other statements are

maintained on (real-time/ intermittent) basis

Real-time basis

9 Budget planning is done based on (past

years data/ based on actual requirements)

It is a mix of both.

For specific service delivery departments, actual

requirements would be estimated. For non-

technical departments, it would be based on a

past years budget.

10 Budget is prepared through a consultative

process with various stakeholders

No,

a team of 4-5 officials in the accounts

department looks after the preparation of the

budget. CA&FO heads the team.


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Sr.

No.

Particular Details

11 Trainings that are being provided to the staff

for the new accounting system

No trainings have been imparted to the staff in

accounts departments.

12 The ULB follows (post/ pre audit) Pre-audit. However, the a uditors role is very

limited.

14 The accounts have been audited till FY 2010-11

15 The ULB has a separate budgeting system

for

No separate budget for water, sewerage and

SWM.

16 The ULB has Allocated - 10% of the total budget

Utilized 10% of the total budget

17 Does the ULB has exposure to debt Loans from various banks and financial

institutions Municipal bonds

18 The officials have undergone the following

trainings

No official has attended any training.

Existing Status - Municipal Finance

Sr.

No.

Particular Details

1 The ULB s Municipal Credit Rating has been A by Fitch ratings.2 Over the past five years, the Revenue

Account has been in (surplus/ deficit)

Surplus

3 The key source of revenue receipts for the

ULB is

Octroi and Property tax

4 The key area of municipal expenditure is Establishment expenditure which includes

salary to staff in SWM

5 The ULB levies property tax based on (ARV/

Unit Area method)

ALV

6 The following taxes were last revised in the

year Property tax - 2008 Water charge under purview of private

operator (OCWL). Sewerage charge along with property tax,

as sewerage tax is sub component ofproperty tax as per system adopted by NMC.

SWM charge No user charges levied byNMC

7 User charges are determined on Ad hoc basis


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Municipal F inancia l Indicators

Sr.

No. Indicators Value

1. Own revenues as a proportion of total revenue receipts

(Rs 70102.75 lakhs/ Rs 74577.4 lakhs) 94%

2.Per capita own revenues

(Rs 70102.75 lakhs/ 24.05 lakhs) Rs 2785

3. Non-tax revenues as a proportion of own revenues

(Rs 17152.80 Lakhs/ Rs 70102.75 Lakhs) 23%

4.Per capita property tax demand

(Rs 9595 lakhs/ 24.05 lakhs) Rs 399

5. Coverage for property tax net

(4.62 lakhs/ 5.32 lakhs) 87%

6. Property tax collection performance

(Rs 11214 lakhs/Rs 12890 lakhs) 87%

7. Water charges collection performance (detail bifurcation not available)

49%

8. Operating ratio (revenue expenditure/ revenue receipts) (Rs 49943.6 lakhs/ Rs 74577.4 lakhs)

0.63

9. Per capita O&M expenditure

(Rs 24050 lakhs/ 24.05 lakhs)

Rs 1000

10. Salary as percentage of Revenue Income (Rs 22273.3 Lakhs/ Rs 74577.4 lakhs)

30%

11. Salary as percentage of Revenue Expenditure (Rs 19977.4 Lakhs/ Rs 49943.6 lakhs)

40%

12. Staff per 1000 population (7910/24.05 lakhs)

3.09

13. Debt Servicing Coverage Ratio (


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Sr.

No.

Key Infrastructure

Services

Planning and

design

Construction/

Implementation

O&M

3 Storm Water Drains NMC NMC NMC

4 Solid Waste Management NMC NMC NMC

5 Urban Transport City

Bus Service

NMC NMC/Private operator NMC/Private

operator

6 Street Lighting NMC NMC NMC

7 Preparation of Master

Plan/ Development Plan

NIT NIT/NMC NIT/NMC

8 Housing for Urban Poor NMC/SRA NMC/SRA NMC/SRA

Other Informat ion

Sr.

No. Particular Details

1A The ULB has preparedinfrastructure master plan for

NMC has prepared the following documents

Master plans for basic service sectors

DPRs for service sectors

1B The ULB has prepared a CDP and

in which year it was prepared CDP document has been prepared in April 2006.

2A DPR prepared for following

infrastructure services CSP document has been prepared by NMC in April2012.

2B The ULB is looking forward tosupport the preparation of the DPRfor

Water Supply- The DPR is in place Sewerage - The DPR and master plan is in place Solid Waste Management DPR is yet to prepared Road DPR is in place and master plan is yet to

be prepared Housing DPR is in place with SRA

3 The ULB is looking forward to

support in preparing the MP/DPRfor the following projects

NMC is looking for support in preparation of DPR on

sewerage and solid waste management project.

4A The ULB is aware and has put in

place

Water supply, sewerage department and public health

department are departments that are familiar with SLB

framework and manage SLB information of NMC and

update it on a regular basis.

Information System Improvement Plan (ISIP) - not yet

prepared

Performance Improvement Plan (PIP) - not yet

prepared


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Sr.

No. Particular Details

4B The ULB has taken the initiative for

improving service delivery and

monitoring the performance of SLB

indicators

NMC has taken up 11 water supply projects under

JnNURM, under which; they have targeted toimprove key indicators like NRW, per capita watersupply, continuity of water supply, and water usercharges.

But till now, a performance report has not beenprepared to monitor the benefits of projects asagainst targeted Indicators.

NMC has not taken initiatives to improve theperformance of SLB indicators in any other servicesector.

5 Following are the safeguards

(social and environmental)

measures the ULB takes while

planning for developmental

projects

While preparing the DPRs for any projects, NMCwould emphasize on the social and environmental

aspects and safeguard the same while implementing

the projects.

6A The ULB has an internal legal

department to deal with contractual

issues (yes/ no)

Yes

6B The ULB has an Engineering

Department to deal with projectplanning and project

implementation

NMC has the technical strength to deal with project

implementation. Engineers are there in each of thetechnical departments, i.e., water works, city

development dept., sewerage dept., Market Dept.,

Estate Dept., PWD, Lighting Dept., Work charge

Dept., Transport Dept..

But NMCs engineers and technical staff lack

technical skills in project management and

planning.

7 The ULB is planning or has

experience of undertaking the

following on the PPP framework

It is implementing the water supply system on PPP

basis

Reuse and recycling of waste-water project through

the PPP mode is under implementation.

Provision of city bus services is under

implementation on PPP basis.

8 The service delivery departments

have attended following trainings/

workshops

No trainings


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Service Delivery Indicators

Sr.

No. Indicator Value MoUD

Benchmark

Water Supply Services

1 Coverage of water supply connections

(218146 HH water connections/266031 total HH in city) 82% 100%

2 Per capita supply of water

(235 MLD supply / 24.05 lakh population)

100 -110

lpcd135 lpcd

3 Extent of metering of water connections

(74488 metered connection/ 266031 total connections) 28% 100%

4Extent of Non-Revenue Water

(231 MLD (clear water)- 98 MLD (Billed Water))/ 129 MLD (Clearwater))

56% 20%

5 Continuity of water supply

(on daily basis for around 6 hrs) 6 Hour 24 hours

6Quality of water supplied

(all the samples taken passed) 100% 100%

7 Efficiency in redressal of customer complaints

(NA) 95% 80%

8 Cost recovery in water supply services

(NA-under PPP)

117% 100%

9 Efficiency in collection of water supply related charges

(NA) 74% 90%

Sewerage and Sanitation

1Coverage of toilets

(5.09 lakhs properties are connected with sewerage network/5.31lakhs properties)

90% 100%

2Coverage of sewage network services

(5.09 lakhs properties are connected with sewerage network/5.31lakhs properties)

96% 100%

3Collection efficiency of sewage network

(85 MLD STP capacity/ 290 MLD sewerage generation) 29% 100%

4 Adequacy of sewage treatment capacity

(63 MLD Capacity/ 290 MLD sewerage generation) 22% 100%

5 Quality of sewage treatment

(it is tertiary treatment) 100% 100%

6 Extent of reuse and recycling of sewage 0% 20%

7 Efficiency in redressal of customer complaints

(NA) NA 80%

8 Extent of cost recovery in sewage management

(collected as part of property tax)

100% 100%


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Sr.

No. Indicator Value

MoUD

Benchmark

9 Efficiency in collection of sewerage/sewage charges

(collected as part of property tax) 100% 90%

Solid Waste Management

1Household-level coverage of SWM services

(5.4 lakhs properties covered with door to door collection/ 5.31lakhs total properties)

95% 100%

2Efficiency of collection of municipal solid waste

(720 MT waste collected in a month/750 MT waste generated ina month)

95% 100%

3 Extent of segregation of municipal solid waste 28% 100%

4Extent of municipal solid waste recovered

(6750 MT waste recovered in a month/ total waste generated 750MT)

9% 80%

5 Extent of scientific disposal of municipal solid waste 0% 100%

6 Efficiency in redressal of complaints

(NA) 97% 80%

7Extent of cost recovery in SWM services

(No use charges in place, recovered from only commercial andindustrial establishment)

75% 100%

8Efficiency in collection of SWM charges

(No user charges levied by NMC) - 90%

Storm Water Drainage

1 Coverage of Storm water drainage network

(917 km pucca drains/ 2620 km total road network) 35% 100%

2 Incidence of water logging / flooding

(Average during the monsoon period)

Maximum of

450

Roads and Transportation

1 Road area per capita 0.4 -

2 Proportion of surfaced roads

(1336 Km surface roads/ 1970 kms total road network) 58% -

3O&M cost per kilometer of road (Rs per km)

(Rs 1244 lakhs/1670 kms of road network) 74491 -

Source: NMC

Project s envisaged in CDP and Sanct ioned Pro ject s

Sr. No. Projects envisaged under CDP

Financial Details (amount in Rs. crores)

Investment

Envisaged in CDP

Sanctioned Cost

under JNNURM

1 Water supply 590 1249 2 Sewerage 515


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Sr. No. Projects envisaged under CDP Financial Details (amount in Rs. crores)

3 Storm Water Drains 246

4 Solid Waste Management 50

5 Slum development 1592

6 Water Recycling and Reuse 250 130 7 Roads 1086

8 MRTS and Traffic Management 1550 188 9 Social Amenities 15

10 IT/ E-Governance 0 14 Total 5894 1581

Status of Projects u nder J NNURM/ UIDSSMT/ BSUP/ IHSDP

Sr.

No. Project

Approved

Cost (Rs

in crores)

Status of projects (till May 13)

PhysicalExpenditure

(Rs. in crores)

1 Water Supply 1294

6 project Completed

5 are in progress 2 projects having

progress >80%, 2 projects having

progress >50% and 80%, 1

project having progress >50% and


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Sr.

No.Particular Details

the issues and implement programmes for Urban Poor

2The CBOs/ NGOs are active in participative planning

for urban poorNo

3 Mapping of slums It is in progress

4 Status of Slum-Free Action Plan under RAY In process

5 Broad initiatives for urban poverty alleviationBSUP and RAY are under

implementation

6The following projects are taken up in collaboration

with NGOs/ CBOs

So far, no projects have been taken

up with NGOs/ CBOs

2.5 Urban Planning

Sr. No. Particular Details

1 Agency responsible for preparing

master planNIT

2

Has the master plan of the city been

p r epared? If yes, till what planning

period?

Yes. Till year 2031

3 Is DPC or MPC in place?

Yes. MPC formed under Maharashtra

Metropolitan Committee Act 1999. Election for

DPCs was held in 2008.

4The following studies have been

carried out by the utility.

City Development Plan (year 2006) City Sanitation Plan (year 2010) Slum-Free Action Plan under RAY (in process)

5

Any form of support envisaged by the

ULB to prepare or monitor such

studies discussed above

Yes. The support is required in preparation of

DPR for sewerage, SWM and preparation of plan

for making Nagpur a Slum free city.

6The status of key urban planning -

related reforms

Streamlining building plan approval process The building bye-laws are in place and NMChas implemented the Auto DCR to streamlinethe approval process

Rainwater harvesting The building bye-lawsare prepared and have successfully beenimplemented.

Approval for bye-laws for recycle and reuse ofwaste water is pending with state govt.

Earmarking of the land for EWS and LIG - Asper Government of Maharashtra GR; for the


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Sr. No. Particular Details

sub-division of the land admeasuring 2000sq.mts. And more, minimum 20% area shallbe provided in the form of 30 to 50 sq. mt.Developed plots for EWS/LIG (affordableplots).

2.6 Key issues

2.6.1 Municipal Governance

Around 30% of the sanctioned posts are vacant, thus the existing staff members are given

multiple charges. This is affecting the service delivery.

As NMC has a transfer policy, under which transfer are taken place within the department on

regular basis. However, there is no handholding support and training to the staff on the new

role and responsibilities. This is resulting into poor performance of the staff.

There is no review and appraisal process and discussion with the employee on their

performance, which is one of major area of concern.

There is no job card defined. Hence, there is lack of clarity on roles and responsibilities at the

key positions; leading to accountability issues.

There is no monitoring system to track the status of the key services as against the timelines

mentioned in the citizens charter.

There is no proper monitoring system to track the status of complaints. Hence, the complaintsare not attended to within the prescribed time;

There is no adequate IT infrastructure and trainings to the staff and hence most of the staff

lacks basic computer skills.

It is also understood that the majority of the staff do not have exposure to the relevant acts,

policies, guidelines for administrative works.

NMC has not carried out training needs assessment; there is no training curriculum and

budget for trainings. Also, there are no initiatives for the skill development of the staff. Thus,

the teams are updated about new technologies; best practices implemented elsewhere.

2.6.2 Municipal Financial Management

The data entries are not carried out properly in the DEAS system . Thus, the balance sheets

are not reflecting the actual financial status of NMC.

The data entry operators are not skilled. Thus, data entries in the DEAS system irregular and

inaccurate and the staff or contract employees are not trained on DEAS.

Valuations of assets is still pending as a result, finalization of the final balance sheet has been

delayed.


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There is no proper coordination between the accounts and estate department for valuation of

assets. Hence, the process has been delayed, which is affecting the overall progress of the

balance sheet preparation.

There is a shortage of manpower and lack of computer skills among the staff in the accounts

department. Thus, there is inefficiency in the account department to implement new

accounting system.

There were multiple property taxation systems (base rate and ARV) in place. This has

affected the overall collection efficiency of property tax.

Non-technical staff are deputed to assess the properties as a result, there are number of

errors in assessment and valuation of the tax.

On an average, 4,000 properties are being handled by one revenue inspector/tax collector.

Its an over load due to which they are not able to cover all properties in time.

Property tax department is not in a position to complete the revaluation of all the properties.So far, only 1.30 lakhs (around 26%) properties were revalued.

As recovery is given priority over assessment its being getting delayed.

Though the department has a centralized computer section, which generates demand notices

for all the zones. It takes almost three months to generate and deliver the same to the

respective zones.

Most of the postal addresses of the properties are not updated in the system and hence the

deliver is by hand to most of house.

NMC has replaced the Octroi with Local Body Tax (LBT); Octroi used to contribute around

60%-70% to the own source of revenues, while currently revenues from LBT is very nominal.

Which if not increased, NMC may face financial crunch. In addition there is strong agitation

against the implementation of LBT from local commercial vendors and traders.

2.6.3 Urban Service Delivery

Water supply

NMC is implementing the water supply projects under JNNURM. However, the project outcomes

are yet to be achieved due to delay in implementation of the projects. Following are the current

service levels in.

LPCD is 101

Metering of water connections - 28%.

NRW is 47.8% due transmission and distribution losses

24 x 7 water supply project implementation has been delayed on account of coordination

between NMC and the private operator, noncompliance of terms and conditions of the

agreement

Sewerage

There is no dedicated staff/department for sewerage at NMC.


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NMC does not have adequate sewerage treatment facilities in the city for treatment and

disposal of the sewage generated in the city.

Solid waste is dumped into the open channels in the city leading to blockage of open

channels.

Solid waste management

There is no segregation of waste at source.

There is no awareness among the citizens regarding segregation of waste.

There are no transfer stations within the city. Hence, the waste is transferred in multiple

vehicles. Further, this is leading to higher O&M expenditure on transportation of the waste.

There are no user charges on SWM services. Hence, there is no cost recovery on SWM

services.

Storm water drainage and roads

Only 50-60% of the roads are covered with storm-water drains. There are number of water logging areas in the city.

Urban poor

Lack of complete database on various aspects of urban poor including number of slums, slum

population, access to services like water and sanitation, livelihood, etc. This is further

affecting the identification of the projects for the urban poor.

There is no adequate budget provision for creation of infrastructure in urban poor areas.

2.6.4 Urban Planning

There is no coordination between the authorities regarding implementation of the master plan.

Urban planning function is carried out by NIT without any consultation with NMC.

DCR rules are prepared without any consultations with NMC.

2.7 Capacity Building

2.7.1 Municipal Governance

Support is required in the following areas:

Procurement of computers/hardware for effective implementation of e-governance modules

across all the departments. Conduct the trainings/workshops to the staff on various e-

governance modules on regular basis. Also, Assist NMC in computerization/digitization of

historical data for all the departments for effective implementation e-governance.

Business process reengineering should be carried out for key departments in order to

improve the governance and service delivery.

Provide support for preparation of HR policy, defining of roles and responsibilities, along with

incentives and reward programmes.

Support should be extended for identification of training institutions, training modules,

preparing study materials, and preparation of training calendar.


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Impart trainings to staff on applicable laws, rules, and note sheet preparation and tasks in

day-to-day activities. Also, impart the training on basic knowledge about computer operations.

Handholding support is required in:

Set up a legal cell and provide training to the team on various legal aspects related to

municipal governance and management. .

2.7.2 Municipal Financial Management

Support is required in the following areas:

Day to day handholding support required in DEAS system. The support would be in the areas

of data entry of the vouchers and preparation of balance sheets as and when required.

Support is required in listing of the assets and further valuation of the same. Also, provide

guidance note for valuation of assets.

Preparation of separate budget for water and sewerage as per the applicable municipal acts. Assist NMC in effective implementation of local body tax; prepare the actions plans for short

and long term. Also, monitor the overall performance of LBT on monthly basis.

Provide the guidelines for expenditure management and curtail the regular capital

expenditure.

Review the existing user charges for water and provide the new tariff structure on real-time

basis.

Propose new user charges structure for sewerage and solid waste management in order to

achieve the full recovery. Assist the departments in getting the approval from the general

body. Further, support sewerage/health departments in effective implementation of new

charges

Handholding support is required if NMC would like to shift to capital value based property tax

system

Support required in restructuring of property tax department with new verticals and special

committees and smooth transition into the new structure

Support is required in monitoring the survey of properties to be carried out with the

department. Support is required in implementation of tax calendar.

Trainings to staff of DEAS and data entry operator.

The trainings to be imparted to both technical non-technical staff on budget preparation.

Trainings to be imparted to the staff on GIS and other software platforms.

Studies to be carried

Detailed study to be carried out on the water sector and property tax, to identify the grey

areas and further improve the coverage and collection efficiency.

Detailed study to review and assess the financial impact due to implementation of Local Body

Taxes and perspective of local trade and commerce association.


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2.7.3 Urban Service Delivery

Planning

Support is required in preparation of DPRs for SWM and sewerage sectors. Also, assist NMC

in getting the approval from GoI and GoM. Support is required in imparting the trainings to the technical staff on bid process

management, preparation of bid document, tenders, and bid evaluation.

Support required in preparation and review of the legal documents for PPP projects.

Carry out feasibility study for construction of transfer stations across the city to reduce the

cost on transportation of solid waste.

Prepare the framework for implementation of SLB, ISIP and PIP for key services.

Support is required in land acquisition for the projects and conduct stakeholder meetings.

Support is required in accessing the financial support from various banks and financial

institutions for the projects to be taken on loans.

Implementation

Carry out regular meetings with parastatals agencies for smooth implementation of ongoing

projects.

Support JNNURM team at NMC in getting the various permissions from railways, pollution

control boards and other agencies concerned.

Support required in completion of ongoing JNNURM projects. The support would be; carrying

out of site visits, quality checking, material quality and certifications, review of PERT and CPM

on real time basis, development of MIS on project milestones and monitoring the progress ofthe milestones.

Prepare the monthly and quarterly progress report for JNNURM projects and submit the same

to state and central governments. Also, assist NMC in getting the installments on timely basis.

Prepare the status report on the key projects and submit the same to commissioner to resolve

the issues and expedite the progress.

Impart the trainings on monitoring of the works, quality checking measures, penalty impose

methods, review of the project progress and cycle, critical assessment of project and closure

of the projects.

Support required in preparation of measurement books preparation for the projects.

Provide case studies and organize study tours to tackle the project implementation issues.

Support should be provided in implementation of CSP for improving SWM, sewerage and

sanitation services to all.

Operation and Maintenance

Post implementation of JNNURM projects; assist NMC in carrying out of regular O&M related

observations. Further, prepare the status note on the same.

Carry out the feasibility studies for O&M of water/sewerage/SWM through PPP/outscored

options and provide the project structure, feasibility and risk matrix.


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Prepare the O&M manual for all the key sectors. Also, assist the department in estimation of

the O&M cost for newly created assets.

Support in preparing the budget estimation for O&M cost of newly created assets and also, for

existing assets.

Create awareness among the citizens through Information and Education campaigns (IEC) for

all the key services. Also, support in preparation of O&M manual for all the key sectors.

Develop database management for all key services, specifically those aimed at the urban

poor.

Establishing a community based organizations for effective implementation of projects

targeted for urban poor

Organize ward-wise and zone-wise camps on regular basis to create awareness amongst

urban poor for government schemes and their participation.

Prepare a training calendar and organising trainings in the areas of water supply, sewerage,asset management, new techniques in operation & maintenance of WTP/STPs, energy from

waste, etc.

Organize the study tours to the staff and elected representative for effective implementation of

reforms for full O&M recovery.

2.7.4 Urban Planning

Support is required in the following areas: Support is required in preparation of investment

plan for implementation of master plan and identification of projects required for development

of city.

Support required in phasing out the intervention required and for implementation of identified

projects.

Support required in developing of a framework for monitoring of the implementation of town

planning reforms/schemes and related projects.

Support required in revising building bye laws and fees.

State government should take action in the following areas to support NMC:

State government should extend funding support to NMC and NIT for effective

implementation of the various urban master plan and projects.

Organize investor meets in Nagpur to support industrial development in the region.


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[22] Rapid Baseline Assessment - Nagpur Draft Report

3. Brief City Profile

Nagpur is located at the geographical centre of

India; in fact, the Zero Milestone of India (aheritage monument) is in this city. The city is 837

km east of Mumbai, 1,094 km south of Delhi,

1,092 km north of Chennai and 1,140 km west of

Kolkata). All the major highways, NH-7 (Varanasi

- Kanyakumari) and NH-6 (Mumbai - Sambalpur -

Kolkata) and major railway trunk routes (Mumbai,

Chennai, Howrah and Delhi) pass through the

city.

Nagpur is one of the fastest growing cities of Maharashtra. Nagpur is also called as the Orange City .

Nagpur is also said to be the second greenest city in India and the 10 th largest in India in terms of

population. The city is the winter capital of the state of Maharashtra. The climate of Nagpur follows a

typical seasonal monsoon weather pattern. The average annual rainfall is 45 inches, with more rain in

the east than in the west.

The city administration is vested with the NMC. The organizational setup of the NMC comprises a

political wing and an executive wing. The political wing consists of elected candidates from 145

different wards in the city and is headed by the mayor.

The executive wing comprises of various administrative wings, which is headed by a MunicipalCommissioner; who manages and monitors all day-to-day functioning of the Corporation.

NMC undertakes various obligatory and discretionary functions as per the provisions of the

Maharashtra Municipal Corporation Act, 2012. The corporation is responsible for providing basic

services to citizens which are mandatory as per MMC Act, 2012. NMC also provides other services

like running city bus services, primary and secondary education, and health services in the city.

Construction, operation and maintenance of urban infrastructure are the prime responsibilities of

NMC.

3.1 Population Trends

As per the Census of India (2011), Nagpurs

population is about 24.05 lakhs. The population

trends of the city show a declining growth rate

over the decades. Considering its decadal

growth rate of 22.2%, Nagpurs population is

expected to be 34.2 lakhs in 2021. The

population distribution in the city is

characterised by high densities and

26%29%

25%21%

15%

0%

5%

10%

15%

20%

25%

30%

35%

-

500

1,000

1,500

2,000

2,500

3,000

1971 1981 1991 2001 2011

i n T

h o u s a n

d s

Population trends of Nagpur

Figure 3-1 : Population trends of Nagpur city


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concentration in the inner city area and a relatively sparse distribution in the outer areas.

Looking to the population numbers and growth rate, the main reason for increase in the population is

natural growth. Even though Nagpur being base for various economic activities, home to much-

planned MIHAN projects and having potential for the development of IT parks; its population trend is

on declining side since the last four decades.

Nagpur city has spatial spread over an area of 217.56 sq. km with a population density of 11,304

persons/sq km. This has increased in 2011 by 16% (density was 9,400 persons/sq km during 2001).

The presence of slums in Nagpur is prominent; around 8,50,000 people reside in slums in 336 slum

pockets in the city.

Table 3-1: Population trend of Nagpur city

Census Year Population Decadal change Growth rate

1971 8,66,000 - 26%1981 12,17,000 3,51,000 29%1991 16,22,818 4,05,818 25%2001 20,50,000 4,27,182 21%

Source: census of India

3.2 Indicators

Table 3-2: Demographic Indicators of Nagpur city

S. No. Indicator Input dataDemographic

1 Population density 11,304 persons/ sq.km.

2 Decadal Population Growth Rate 15% (2001-2011)

3 Literacy Rate 93.13% (96.16%-Males & 89.99%-females, 2011)

4 Sex Ratio 961

5 Workforce participation rates Main workers 33.8

Marginal workers -15.7

Non-workers 51.50

6 Vulnerable population (SC / ST)1. SC population 6,32,515

2. ST population 2,62,145

7 Household information 1. No. of households- 546687

2. Size of household- 4.4


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4. Urban Governance

This chapter would briefly elaborate on the urban governance status in NMC, the role of NMC and

parastatals in service delivery, the status of human resources along with trainings and requirements,

and further, key issues concerning urban governance at NMC. Based on the assessment of current

situation of urban governance in Nagpur, key issues and recommendations have been provided at the

end of the chapter to bring accountability in the system and improve the service delivery mechanism.

The ULBs have been performing their roles and responsibilities, as laid down by the state

governments through their respective Acts. In the case of the ULBs in Maharashtra, these are the

Maharashtra Municipality Act 2012, Maharashtra Municipal Corporation Act 2012 and BPMC Act

1948.

4.1 Existing status

The city administration is vested with NMC. The total area within the Municipal Corporations limit is

217.56 sq km. The organizational setup of the NMC comprises a political wing and an executive wing.

The political wing consists of elected candidates from 145 different wards in the city and is headed by

the mayor. The executive wing comprises various administrative wings, headed by a Municipal

Commissioner, who acts upon the decisions of the General Body and manages the day-to-day

functioning of the Corporation.

NMC is solely responsible for providing the basic services within its jurisdictions. NMC is governed by

the Maharashtra Municipal Corporation Act 2012. As per the provisions of the Act, NMC is providing

the various services to the citizens along with other key functions. Along with NMC, a few parastatals

agencies are also involved in the provision of the key services within NMCs jurisdiction. The details

regarding the parastatals agencies have been discussed in the following sub-sections.

Nagpur is divided into 10 zones and each zone, has zonal offices with zonal structure headed by

Assistant Commissioner. Main responsibilities of zonal officials is to collect taxes, user charges,

property tax and resolve grievances related to services provided by NMC. Thus, the zonal offices

work as execution agencies in their administrative areas and revenue is collected and deposited

under different account heads for revenues.

4.1.1 Empowering ULBs Status of 74th CAA

In order to strengthen the third tier of local self-government; Government of India (GoI) has amended

the Constitution in 1992 to make the ULBs self-sustainable and bring local participation in the

planning and development of their respective cities. Thus, the 74 th Constitutional Amendment Act (74 th

CAA) has come into force in India since 1992. It clearly provides rights to ULBs to act as third tier of

Government taking charge of all the functions and services to be provided to the citizens in their

respective city.

The 74 th CAA has been implemented in Nagpur by the state government. Under JNNURM, most of

the functions and powers are delegated to NMC. Key important services provided by NMC to citizensunder the functions delegated to it, are as follows.


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Table 4-1: Status of transfer of functions as per 74th CAA

Functions transferred to NMC 1. Regulation of land use and construction of buildings

2. Roads and bridges 3. Sanitation and SWM

4. Public health - Sewerage, water supply

5. Safeguarding the interests of weaker sections

6. Slum improvement/up-gradation

7. Urban poverty alleviation

8. Provision of urban amenities such as parks and playgrounds

9. Promotion of cultural, educational, and aesthetic aspects

10. Burial grounds and crematoria

11. Cattle pounds

12. Registration of births and deaths

13. Public conveniences including street lighting, parking lots, etc.

14. Regulation of slaughter houses

15. Fire services

16. Urban forestry

17. Urban planning

18. Socio-economic planning

4.1.2 Functions, roles and responsibilities of NMC and parastatals

All the functions related to urban governance and city administration, along with the responsibilities of

providing mandatory and obligatory services in the city of Nagpur are mainly carried out by NMC.

Other agencies like NIT, SRA and MSRDC also play a role in providing services in Nagpur. The

following sections provide a snapshot of the institutional responsibilities, including the roles played by

the private sector, for various urban infrastructure services.

NMC is responsible for the planning, implementing, construction and O&M of the following

sectors and provides the following services:

Provides all key services such as water supply, sewerage, sanitation, solid waste management,

storm water drainage, roads, street lighting, housing for poor, health and education, birth and

death registrations, parking facilities and basic services to the urban poor people within NMC s

limits

Planning, designing, construction, operation and maintenance of key services

Enforcement of various plans and regulating development activities as per the state byelaws as

applicable.

Levying and collecting various taxes, charges and fees as per the applicable municipal

corporation Act Framing polices and plans for sustainable development in the region


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Disclosing the status of the services and various activities as per the applicable public disclosure

law

Public transport services

Fire-fighting service

NIT is responsible for:

Preparing plans such as master plans and land use plans for the region Development of the area in accordance with proposals approved by state government and as

per the provisions of applicable Act Acquiring, holding, managing and disposing of land and other property to carry out building and

other operationsSRA is responsible for:

Surveying and reviewing the existing position regarding slum areas in Nagpur city

Formulating schemes for the rehabilitation of slum areas

Getting the slum rehabilitation scheme implemented

4.1.3 NMC- Status of Municipal Administration

1. Status of human resource

The establishment section of the General Administration Department (GAD) of NMC is responsible

for human resource (HR)-related activities in the corporation. The department is headed by the

additional commissioner and further he would be assisted by the department staff in various HR

related activities. Bill clerks in each department/section are made responsible for updating the

service books (SB) of the employees, recording leaves, attendances, and promotions etc. of their

departments. By the end of every month, the bill clerk would prepare and send the salary requests tothe accounts department for payment of salaries through e-governance modules. The same process

would continue throughout the year.

2. Staffing pattern

There are in all, 28 departments in NMC. Some of the key departments are GAD, Water Works,

Sewerage, Social Welfare, Market, Fire-fighting, Accounts, Health, Property tax, Education, and the

Town Planning department. There are in all, 12,532 regular sanctioned posts in NMC, of which 7,910

posts are filled and 3,874 posts are vacant. The department-wise and class-wise staff details have

been provided in the table below.

Table 4-2: Department-wise staff strength

Sr. No. Department Name Sanctioned Post Working staff Vacant Post

1 General Admin Dept. 62 42 20

2 Standing Committee 33 33 0

3 Library Dept. 141 69 72

4 Fire Fighting Dept. 411 273 138

5 Central Auditing Dept. 68 48 20

6 Octroi Dept. 495 343 152


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Sr. No. Department Name Sanctioned Post Working staff Vacant Post

7 tax department 233 196 37

8 Assessment tax Dept. 259 154 105

9 Market Dept. 83 56 2710 Enforcement dept. 51 29 22

11 Cattle pound Dept. 34 16 18

12 Estate Dept. 29 22 7

13 PWD 336 205 131

14 Slum Dept. 63 55 8

15 Social welfare Dept. 18 15 3

16 lighting Dept. 316 142 174

17 Garden Dept. 273 152 12118 City Development Dept. 69 54 15

19 Hot Mix Plant 41 23 18

20 Work Charge department 6 5 1

21 Transport Dept. 53 13 40

22 Town Planning Dept. 39 35 4

23 Workshop dept. 68 38 30

24 Education 3,001 1925 1076

25 Water works dept. 74826 Sewerage dept./STP 50 22 28

27 Health dept. 5,499 3912 1587

28 Sewerage dept./Underground drains 53 33 20

Total 12,532 7,910 3,874

Source: Establishment Department, NMC, Nagpur

3. Recruitment, promotion and transfer policy

NMC can recruit officials of any grade/class or post with prior approval from the commissioner and the

standing committee. For the recruitment of lower-level staff, demand has to be sent by the respective

department to the commissioner. Once the commissioner approves demand note/proposal, it is

forwarded to the standing committee for its approval. Recruitment of senior level officials and

technical staff is being carried out by State government on deputation. Most of the staff in NMC is on

deputation from PWD, GoM.

Promotions would take place based on the years of service and availability of posts. These

promotions would be applicable only to NMC staff. Promotions of the technical and senior-level staff

would be taken care of by the parent department in the case of deputation.

4. Assessment of trainings and trainings programmes


38/129



NMC has staff strength of 9,269 employees, of which 2% is constituted by Class I and Class II

employees. The rest 98% comes under Class III (42%) and Class IV employees (56%). At present,

NMC does not have any training programme framework for imparting training to its employees.

As per the administrative reforms under JNNURM, NMC was supposed to carry out capacity-building

and training programmes, which are still in the planning stage. Current capacity-building and

knowledge sharing is taking place through participation in t

Date post:	02-Jun-2018
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18 Nagpur Draft Report

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