Final Report Executive Summary August 2006 GOVERNMENT OF UTTAR PRADESH Urban Development Department JNNURM CITY DEVELOPMENT PLAN ( CDP ) Allianz Securities Limited MDP Consultants (P) Ltd. (ISO 9001-2000) (a member of DHV Group, the Netherlands) in association with AGRA NAGAR NIGAM Executive Summary City Development Plan-Agra -i- MDP Consultants in association with Allianz Securities Ltd. City Profile The origin and growth of Agra can be traced to several hundred years, during which it witnessed historical events leading to its present form, structure, character, culture and economy. The city witnessed rule of various hindu kings and mughal emporers, followed by colonial period. Its historic importance is evident from the numerous historical monuments in and around the city. The city boasts three World Heritage sites namely – the Taj Mahal, Fatehpur Sikri and Agra Fort and innumerable other monuments of national and international importance. The population of Agra city is 12.75 lakhs as per Census 2001 with a decadal growth rate of 30.37 per cent. This population is inhabiting in Agra Nagar Nigam area of 141 sq.km. Agra Nagar Nigam has 80 wards reorganized into 8 revenue wards. In last four decades the city experienced maximum growth rate of 32.15 per cent during 1971-81, when the nagar nigam limits were extended and more than 100 per cent of its original area of 61.80 sq.km. came within its purview. Agra is basically a commercial city. The major part of its industrial activity is in the form of small-scale and house-hold industries. The important industries are textile, leather, foundries, diesel engines, generator sets, electrical goods, fans, pipes, C.I, casting, leather goods including shoes, steel rolling, packaging materials, etc. The major handicrafts are marble, leather, carpet, brassware, artistic dari and jewellery crafts. With work force participation rate of 25.5 per cent, majority of work force (about 89%) is engaged in tertiary sector. The has 5263 small scale industrial units with investment of Rs. 263.15 crore. Apart from these units there are over 750 cottage units producing petha. Most of these units are in the narrow lanes of the centuries-old Noori Darwaza Market. Opportunities Opportunities and strength of the city which can be utilized for improving the quality of life and environment of the city are: • Tourism and Heritage • Long stretch of river front • Locational advantage • Well entrenched local economy in terms of : (a) Petha (b) Leather (c) Handicrafts • Willingness of local and state administration to reform • Willingness of local population to support city development • Presence of many developmental stakeholders including NGOs Constraints Key constraints to the envisaged development of the city are : • Fragile and environmentally sensitive heritage • Haphazard spatial development and mushrooming of unauthorized settlements • Weak Infrastructure – basic services of water supply, sewage and solid waste disposal and drainage • Congested roads due to dis-organised and mixed nature of traffic • Lack of modern public transport • Laxity in implementation • Substantial urban poverty & slums • Reforms yet to take off City Vision The City Vision was formulated by considering the strengths, potential, issues/problems, future focus areas, preferences of the residents of the city and physical characteristics of the city. Utilization of Agra’s potential for improving the economy of the City by providing equal access to best quality physical and social infrastructure to all residents. EXECUTIVE SUMMARY Executive Summary City Development Plan-Agra -ii- MDP Consultants in association with Allianz Securities Ltd. Development Strategies Development strategies, formulated on the basis of city assessment and stakeholder consultations, aim at achieving the sectoral vision and goals thereby achieving the vision for Agra These strategies are pre- requisite for the city to: • Emerge as a pleasing, aesthetic, clean and green city, which is sustainable. • Provide highest quality of life to its citizens, competing with the other cities. • Provide every citizen with the best access & opportunities for work, education, health, development and recreation. • Be a safe, tolerant, creative and connected city. The strategies for achieving the vision of: Tourism sector: - Creation of world-class infrastructure- like international airport, golf course of international standard, light & sound programme at Agra Fort, National Park etc. ( not Covered under JNNURM) - Restoration and preservation of the heritage buildings/monuments. - Positioning and maintaining tourism development in Agra as a state/national priority activity. - Enhancing and maintaining the competitiveness of Agra as a tourism destination. - Improving existing tourism products and expanding these to meet new market requirements. Infrastructure sector: - Enhancement and Up-gradation of city infrastructure in terms of provision and delivery of municipal services (water supply, sewerage, surface water drainage, solid waste management, roads, bridges, streetlights, community facilities and other civic urban infrastructure and services). - Improving / achieving the maximum benefits of tourism economy by creating additional infrastructure and additional facilities for increasing number of tourists. - Adopt GIS mapping for utility planning and management Urban poor: - Provision of basic services in slum areas - Slum improvement and rehabilitation programme to cover the whole cross-section of the urban poor - Community empowerment for establishing linkages between community and bankers so as to facilitate assistance to beneficiaries. - Identify institutions for imparting specialized training to the community for improving their skills and talents - Improvement of housing conditions Inner city: - Augmentation of existing water and sewer lines, maintain and lay new drains - Efficient disposal of solid waste to maintain the hygiene of the area - Shifting of non-conforming household/small industrial units to planned new areas - Strengthening the road surface and traffic management plan for smooth flow of traffic - Identify and revitalize the heritage buildings of the inner city Project Identification and Prioritization Based on the stakeholder consultation meet, the prioritization of projects was done so that the views, aspirations and felt needs of the local officials, residents, experts, NGOs, elected representatives and others are given due cognizance. The sectoral priority to the projects is assigned on the basis of various consultations and discussions held with the government departments involved in the implementation of CDP. It also takes into account the aspirations of the residents of Agra expressed in a workshop, informal discussions and meetings held for the purpose. As per the scope of the mission, the projects costs under Sub- Mission I is approximately Rs. 7373.79 crores and under Sub Mission II is Rs. 480.85crores. Executive Summary City Development Plan-Agra -iii- MDP Consultants in association with Allianz Securities Ltd. Table1: Sector wise Investment S. No. Sector Cost (in crore) SUB - MISSION I 1 Water Supply 900.04 2 Sewerage 763.13 3 Storm Water Drainage 168.44 4 Solid Waste Management 87.51 5 Roads & Transportation 4950.35 6 Heritage & Tourism 52.5 7 Industry 4.83 8 Environment 254.78 9 Urban Renewal Projects: Inner city 180.61 10 Capacity Building 11.6 Sub-Total 7373.79 SUB - MISSION II 11 Urban Poverty and Slum 480.85 Sub-Total 480.85 Grand Total 7854.64 Table 2 : Schedule of Expenditure ( Rs. In crores) Name of the Sector 2007 2008 2009 2010 2011 2012 Heritage & Tourism 12.34 12.95 27.20 0.00 0.00 0.00 Industry 0.00 0.66 0.93 1.46 1.79 0.00 Environment 12.34 52.64 61.93 43.75 45.94 38.18 Water Supply 17.06 174.47 164.38 172.60 181.23 190.29 Sewerage 122.43 99.72 140.33 179.56 107.85 113.24 Storm Water Drainage 34.55 40.02 50.47 17.50 12.64 13.27 Solid Waste Management 30.98 38.59 17.94 0.00 0.00 0.00 Roads & Transportation 334.15 368.50 949.08 990.70 1130.06 1177.85 Urban Renewal Projects 12.08 29.04 35.57 56.31 23.23 24.39 Capacity Building 2.10 2.21 2.32 2.43 2.55 Sub-Total 578.01 818.79 1450.15 1464.32 1505.28 1557.23 Urban Poverty & Slum 63.00 66.15 69.46 72.93 102.10 107.21 Sub-Total 63.00 66.15 69.46 72.93 102.10 107.21 Grand Total 641.01 884.94 1519.61 1537.25 1607.38 1664.43 Project Phasing Executive Summary City Development Plan-Agra -iv- MDP Consultants in association with Allianz Securities Ltd. Table 3: Project Phasing Implementation Period S. No. Project 2007 2008 2009 2010 2011 2012 I INDUSTRY 1 Development of new industrial estates II HERITAGE & TOURISM 1 Project for infrastructure improvement in Taj Environs 2 Project for Improving other Heritage protected Sites III WATER SUPPLY 1 Re organization of existing water works 2 Distribution network 3 Storage Improvement/ enhancement 4 Reduction of UFW 5 Construction/enhancing of pumping station, treatment plant 6 Water Works storage Capacity enhancement 7 Ganga Jal Project 8 Test Laboratory IV SEWERAGE I Augmentation of Sewerage System 1 Central Sewerage District 2 Western Sewerage District 3 Eastern Sewerage District 4 Northern Sewerage District 5 Southern Sewerage District-I 6 Southern Sewerage District-II 7 Tajganj Sewerage District 8 Purchase of Modern Equipment for Desilting of sewers V STORM WATER DRAINAGE 1 Repair of Existing & Construction of new drains - I 2 Repair of Existing drains 3 Construction of new drains Phase III 4 Purchase of Equipment for Desilting of drains VI SOLID WASTE MANAGEMENT 1 Purchase of SW transport equipment & tools 2 Development of Storage points 3 Compost plants 4 Land fill site development 5 Capacity Building VII ROADS & TRANSPORTATION 1 Sky Bus From Sikandara to Taj Mahal 2 Multi Storied/underground Parking-5 nos. 3 Up gradation of existing bus terminals at Idgah and Fort 4 Development of new bus terminals (6 nos.) 5 Up gradation of workshop 6 Purchase of CNG buses 7 Widening and strengthening of main roads 8 Construction of remaining master plan Roads MP 2021 Executive Summary City Development Plan-Agra -v- MDP Consultants in association with Allianz Securities Ltd. Implementation Period S. No. Project 2007 2008 2009 2010 2011 2012 9 Proposed construction of 100 M wide Ring Road 10 Construction of Rail Over Bridge/Rail Under Bridge 11 Development of internal roads 12 Development of parking areas in the city 13 Development of approach road to Taj & heritage sites 14 Improvement in street lighting 15 Intersection Signalling 16 Improvement of road geometrics & street furniture 17 Footpath improvement 18 Foot over Bridges/ Pedestrian underpasses 19 Construction of Fly over VIII ENVIRONMENT 1 River front Development 2 Improvement and beautification of existing parks 3 Development of new parks 4 Protection of forest area/ Afforestation 5 Rain water harvesting 6 Restoration and beautification of water bodies 7 Construction of weir across river Yamuna downstream Taj IX URBAN RENEWAL PROJECTS: INNER CITY 1 Selected road widening 2 Replacement of water and sewer lines 3 Laying of new water and sewer lines 4 Construction of public toilets & urinals 5 Night Shelters 6 Community Centre/ Hall X CAPACITY BUILDING XI URBAN POVERTY AND SLUM 1 Development and improvement of basic services 2 Construction of community toilets and bath 3 Construction of community rooms/ child care centre 4 Financial assistance for improvement of shelter 5 Provision of security tenure Executive Summary City Development Plan-Agra -vi- MDP Consultants in association with Allianz Securities Ltd. Cost Structuring The total cost of projects in Sub Mission I (Basic Infrastructure and Governance) is Rs. 7373.79crores in which the share of Central Government is Rs. 3686.9crores and contribution from state government is Rs. 1474.76 crores. The remaining 30 per cent contribution is from the various other agencies like ANN, ADA, NHAI, UP Bridge Corporation, UP Jal Nigam, private sector participation etc. as detailed as under; As regards the Sub Mission II (Basic Services for Urban Poor) the cost of projects is Rs. 480.85 crores comprising of 50 percent share from central government and the remaining 50 per cent from state/ ULB/ other parastatal share including beneficiary contribution as per the JNNURM funding pattern. Table 4 : Cost Structuring Cost Structuring Other agencies (30%) Name of Sector Total Project Cost (Rs. in crores) GoI (50%) GoUP (20%) ANN ADA NHAI UP Bridge Corp FI Pvt Sec UP Jal Nigam Irriga tion Deptt . RTO SUB MISSION I Heritage & Tourism 52.5 26.25 10.5 8.94 6.81 Industry 4.83 2.42 0.97 1.45 Environment 254.78 127.39 50.96 54.5 21.93 Water Supply 900.04 450.02 180.01 270.01 Sewerage 763.13 381.56 152.63 228.94 Storm Water Drainage 168.44 84.22 33.69 50.53 Solid Waste Management 87.51 43.75 17.5 26.25 Roads & Transportation 4950.35 2475.17 990.07 734.1 422.88 124.54 165.6 37.99 Urban Renewal Projects 180.61 90.3 36.12 54.18 Capacity Building 11.60 5.8 2.32 3.48 Sub- Total 7373.79 3686.9 1474.76 4.93 734.1 422.88 124.54 8.94 523.17 333.65 21.93 37.99 Urban Poverty & Slum 480.85 240.42 240.42 Sub- Total 480.85 240.42 240.42 Grand Total 7854.64 3927.32 1715.18 4.93 734.1 422.88 124.54 8.94 523.17 333.65 21.93 37.99 Private Sector Participation The contribution of private sector is Rs. 523.17 crores, which is approximately 7.6 percent of the total cost of the projects. The private sector participation is envisaged for various sectors like water supply, solid waste management, roads and transportation, heritage & tourism and environment. The private sector participation is envisaged for maintenance of compost plants, improvement and beautification of existing parks, maintenance of new parks, restoration and beautification of water bodies, multi storied parking, maintenance of foot over bridges /pedestrian underpass and infrastructure improvement in other heritage sites. Institutional and Governance Reform Good Governance is defined differently in terms of the context. A ‘good urban governance’ is characterized by its efficiency, transparency, accountability, and civic engagement. According to the World Bank, " the manner in which power is exercised in the management of a country's economic and social resources for development " is good governance. Good urban governance, based on the principle of urban citizenship, affirms that no man, woman or child can be denied access to the necessities of urban life, including adequate shelter, security of tenure, safe water, sanitation, a clean environment, health, education and nutrition, employment and public safety and mobility. It is in this context the Government has initiated the JNNURM. Executive Summary City Development Plan-Agra -vii- MDP Consultants in association with Allianz Securities Ltd. Institutional Framework and Existing Institutional Responsibility A number of institutions are involved include the state government departments, local bodies and parastatals. The main organisation which is responsible for urban governance and civic management is the Agra Municipal Corporation. Existing Institutional Role and Responsibilities Infrastructure Component Planning and Design Construction Operation and Maintenance Water Supply UP Jal Nigam UP Jal Nigam UP Jal Sansthan Sewerage UP Jal Nigam UP Jal Nigam UP Jal Sansthan Storm Water Drainage UP Jal Nigam UP Jal Nigam UP Jal Sansthan Solid Waste Management Agra Municipal Corporation ( AMC ) Agra Municipal Corporation ( AMC ) Agra Municipal Corporation ( AMC ) Roads PWD,ADA and AMC PWD,ADA and AMC PWD,ADA and AMC Streetlighting ADA,AMC ADA,AMC ADA,AMC Parks AMC AMC AMC From the above table, it can be seen that in the water supply sector, there is a fragmentation of functional activity between the Jal Nigam and the Jal Sansthan. Furthermore, when it comes to the provision of this very basic service to the slum dwellers, another organisation called the State Urban Development Authority (SUDA) comes into the picture. However, as per the Municipal Act, this function is to be under the Agra Municipal Corporation. Therefore, there is a clear fragmentation on the one hand and functional overlap on the other. Similarly, some roads are looked after by the PWD, some by the Agra Development Authority and some by the Municipal Corporation, thereby indicating fragmentation of functional responsibility. In the case of street lighting also, one can see fragmentation as well as overlap. Status of Existing Role of Private Sector At present, the role of the private sector in municipal service delivary is negligible. A small stretch of street light maintainance on the MG Road has been contracted out and has not been running successfully. Similarly, a limited area around the Taj Mahal has been given out for private sweepers for cleaning. However, even this has not been properly managed and is not a successful experience. Infrastructure Component Planning and Design Construction Operation and Maintenance Water Supply Nil Nil Nil Sewerage Nil Nil Nil Storm Water Drainage Nil Nil Nil Solid Waste Management Nil Nil Nil Roads Nil Nil Nil Streetlighting Nil Nil MG Road only Parks Nil Nil Nil Existing Organizational and Governance Problems The key organizational problems / challenges are as follows: • Lack of Adequate Capacities and Awareness. • Systems Inadequacies include new methods of register maintenance, data storage and retrival, etc. • Lack of Adequate Municipal-Parastatal Coordination • Jurisdictional Issues • Lack of Citizen Grievance Redressal Systems • Lack of Inter-Municipal Coordination • Low Efficiency of Service Delivery • Lack of Reliable Information Base Executive Summary City Development Plan-Agra -viii- MDP Consultants in association with Allianz Securities Ltd. Status of Reforms Undertaken As of date, no municipal reforms have been undertaken by the Agra Municipal Corporation. At the state level, the Agra Municipal Corporations Act of 1959 has been duly amended, as already discussed earlier. Further, at the state level, implementation of reform of Rent Control Act and Urban Land Ceiling Act are other reforms which have been initiated. There is no system of e-governance in the Agra Municipal Corporation. For the purpose of property tax collection, the Municipal Corporation had commissioned a consultant which suggested various property tax reforms alongwith e-governance for tax collection. However, the same has yet to be implemented in the Corporation. In terms of compliance to the 74th Constitution Amendment Act of 1992, the Agra Municipal Corporation is yet to comply the constitution of WCs, MPC, and DPC. Devolution of function is incomplete. Recommendation for Reforms to be undertaken Ÿ The Government of Uttar Pradesh needs to play the role of a facilitator of urban development activities in the city of Agra. For this, CDP Agra recommends that the Govt. of UP has to fully implement the 74th CAA in letter and spirit by complete devolution of all functions and powers, state level reforms viz. repeal of ULC, Rent Act, rationalisation of stamp duty and bringing it down to 5 percent need to be implemented and also facilitate municipal-parastatal coordination. Ÿ The Agra Nagar Nigam is the principal organisation which carries out various civic functions in the city. The ANN should at the earliest take up the following reforms: - rationalization of property tax and implementation of IT and GIS based system - full implementation of double entry accounting system and introduction of e-governance - coordinate with all concerned parastatals for smooth functioning of all civic activities / works / projects ( such as those under JNNURM ) in the city. - Coordinate with all concerned parastatals as well as surrounding municipalities / cantonment so that inter - jurisdictional issues as well as functional overlap can be sorted out once and for all. - Implement Ward Committee byelaws so that the ward committees can start functioning properly - Facilitate capacity building exercises for its staff so that they can be made aware of the latest developments in the urban / municipal sector in India. - Develop a data base for all properties owned by the Corporation so that property portfolio management can be done. - Data base and MIS should be created so that all data is readily available Ÿ There is every possibility and potential to bring about private sector participation in the provision of civic services. Ÿ The need to be sympathetically viewed by the Municipal Corporation for invovolving the NGOs and CBOs at various levels including at the planning stag, budget preparation stage, selection of contractors / private service providers, monitoring various projects as a watch dog, provision and maintenance of various civic services and mobilising all the stakeholders together so that the city can be taken forward to its destination. If the above issues are taken into account and the above reforms are implemented, the state of governance and urban infrastructure in the city of Agra would certainly see a remarkable improvement in the times to come.