WORLD BANK Improving Service Delivery in WS&S February 1, 2007 Consultation in designing a reform agenda Ramesh Ramanathan

Transcription

1 WORLD BANK Improving Service Delivery in WS&S February 1, 2007 Consultation in designing a reform agenda Ramesh Ramanathan

2 Greater Bangalore Water and Sanitation Project - GBWASP Project of the Government of Karnataka to provide water supply, underground drainage and sewage treatment plants Area covered: 8 city municipalities around Bangalore 240 sq.km Total population: 2001: 1.3 million 2021: 3.0 million Project Cost: Funding pattern: Original $150 mm 25% - 30% escalation since between water supply/sanitation Water Supply Grant from State: 22% Beneficiary contribution: 35% Municipal Debt: 43% Sanitation Grant from GOI: 28% Municipal Debt: 72%

3 GBWASP Context for Citizen Participation First large-scale Beneficiary Capital Contribution Pooled finance mechanism to raise municipal debt First formal urban citizen participation structure Template for future urban infrastructure projects Every possible stakeholder was involved in the project: GOI, State Govt, IFC, WSP, USAID, Municipalities, Communities

4 GBWASP Janaagraha s role Creation of a formal 3-tier citizen structure Enrolment and mobilisation Training for citizen committees Development of communication packages and tools Setting up of a Help Desk Mentoring of citizen committees Since there was no pre-existing structure for urban participation, one had to be created

5 GBWASP 3-tier Citizen participation structure Steering Committee Municipality Committee Ward Project Committee Citizens, 1 Urban Poor, 2 Specialists = 11 2 Councillors 6 Citizens, 1 Urban Poor, 2 Specialists = 11 Councillor + 3 to 4 Citizens Core Ward Network Open - volunteers 1.3 million citizens

6 GBWASP Brewing Trouble GBWASP issues Project champions transferred Many outstanding issues: poor policy, pricing etc Many stakeholders with divergent agendas Slow and painful progress Delhi Water Board flare-up Stir against privatization Procurement questions Government response: clam-up, choke info flows GBWASP project placed on wider radar screen

7 GBWASP Stakeholder responses State Government Uncertainty about privatization No core belief in participation and transparency Generally business-as-usual Local Water Board Union: risk of losing turf, employment Municipalities Minimal political understanding of GBWASP Unsure of debt implications NGOs Large camp with concerns about privatization Small group willing to work with the system IFC Recognition of complex territory Pushing on strings Privatization a clear agenda Citizens Confusing and conflicting information flows Minimal ownership

8 GBWASP Janaagraha s point of view Key outstanding issues Lack of ownership by Municipalities No clear state policy for services to the urban poor No opportunity for informed, collective decision-making Many complex issues Poor quality services Push for user charges Minimal visibility into outcomes Core element of the response Build grassroot ownership for the project Only way to do this credibly is to embrace collective decision-making Open up the information flows, don t choke it Message to State Government and World Bank Don t rush the process, allow for grassroot ownership to emerge Participatory structure being established Allow them to determine project direction

9 GBWASP Responses State Government Ostrich syndrome the problem will go away Passing the buck too many agencies involved Unwillingness to genuinely consult with people Uncertainty about Janaagraha agenda Resignation about innovative projects World Bank Recognition of Janaagraha argument Value of J from PR and optics perspective Unwilling to take foot off the implementation pedal No clear decision-making process Janaagraha Citizen involvement cannot be pseudo-participation Belief in approach as intellectually rigorous and pragmatic Clock ticking on suggestions

10 GBWASP Current Status Janaagraha involvement Withdrew in February 2006, citing no State response Unwilling to be convenient scapegoat Project implementation Delays and cost escalation Several outstanding questions One more government project World Bank Unclear position Mixed signals from WSP and Bank Grassroot response Many NGOs gearing up for privatization war Disconnected community Worst is yet to come

11 Urban and Regional Governance in India India s tryst with Federalism No history of multi-tiered government system Transition to complex federal system in less than 100 years Inter-governmental institutions still being strengthened 73 rd and 74 th Amendments - milestones for federal structure Significant differences in treatment of urban v/s rural citizen

12 The Context - An institutional perspective Local Government statistics for Karnataka 84, crores 5, crores RURAL LOCAL GOVERNMENT URBAN LOCAL GOVERNMENT 27 ZILLA PANCHAYAT 890 CORPORATION ,659 TALUK PANCHAYAT GRAM PANCHAYAT 3,255 80, CMC TMC TP 1,308 1,919 1,373 XXX YYY ZZZ No of Elected Reps Population No of Local Govts

13 The Context - An institutional perspective RURAL LOCAL GOVERNMENT URBAN LOCAL GOVERNMENT 8 times closer 1 rep for 400 people 1 rep for 3,400 people

14 The Context An institutional perspective RURAL LOCAL GOVERNMENT BANGALORE 100 times closer 1 rep for 400 people 1 rep for 42,000 people

15 The Context An institutional perspective RURAL LOCAL GOVERNMENT URBAN LOCAL GOVERNMENT 8 members nominated from above GRAM/ WARD SABHA WARDS COMMITTEES Every voter

16 Participation the real challenge No link to the municipality s formal systems Water Supply Schemes Police Solid Waste Mgmt Urban Poverty Pgms Urban Planning Road Works Supr vsn Municipality Ward Councillor Water Users Assns Com nty Police SWM Compost Groups Self Help Groups N hood Forums Resident Welfare Assns??????? Why have so many different platforms? Why not one single, permanent platform, linked to the city s decision-systems, which can be available for all issues?

17 Formalising Participation The Area Sabha Start with the grassroot structure Give every registered voter a PLATFORM to participate AREA SABHA EVERY REGISTERED VOTER IN THE POLLING BOOTH POLLING BOOTH FOOTPRINT BANGALORE CITY WARDS RAJAJINAGAR - 12 WARDS WARD NO 14 WITH 28 BOOTH LIMITS About 1000 voters in 1 polling booth

18 Formalising Participation The Area Sabha Connect the Area Sabha to the Municipality s Decision-Making WARD CORPORATOR/ COUNCILLOR MUNICIPALITY URBAN AREA FOOTPRINT AREA SABHA REPRESENTATIVE WARD COMMITTEE WARD FOOTPRINT AREA SABHA EVERY REGISTERED VOTER IN THE POLLING BOOTH POLLING BOOTH FOOTPRINT

19 Functioning of the 3-tier 3 Structure of Participation MUNICIPALITY URBAN AREA FOOTPRINT Water Supply Schemes Police Solid Waste Mgmt Urban Poverty Pgms Urban Planning Road Works Supr vsn WARD COMMITTEE WARD FOOTPRINT Water Users Assns Com nty Police SWM Compost Groups Self Help Groups N hood Forums Resident Welfare Assns AREA SABHA POLLING STATION FOOTPRINT All informal structures are REPLACED by FORMAL opportunity to PARTICIPATE at any one of the 3 LEVELS

20 Benefits of the 3-tier 3 Structure of Participation Formal structure decision-making Permanentplatform for participation Common system for various issues For citizens: all the opportunity, and no excuse not to participate!

21 Making the Area Sabha idea a reality JNNURM Jawarharlal Nehru National Urban Renewal Mission Launched on Dec 3rd 2005 Largest Urban Initiative in the history of the country

22 Making the Area Sabha idea a reality JNNURM Jawarharlal Nehru National Urban Renewal Mission Total financial assistance from Central Govt Rs 50,000 crores over 7 years 63 qualifying cities 9 eligible sectors Includes Reform Conditions Total of 14 reform conditions One reform condition: Law for Citizen Participation Essence of the Law 3-tier Area Sabha Structure Implications for participation in Water Supply and Sanitation projects Integrate the Area Sabha into urban participatory mechanisms

23 Thank You