Report of Review Mission to Sector Reform Project Amravati District, Maharashtra
12 –13 January,2004

Background

Department of Drinking Water Supply, Ministry of Rural Development vide their letter No.Q-11036/1/2002/CRSP dated 31 December,2003 launched a one-member Review Mission to ascertain the status of Sector Reform Project in Amravati District of Maharashtra State. Shri M.M.Datta, Former National Professional Officer and Head Sustainable Development and Healthy Environment Cluster in World Health Organization, India Country Office in New Delhi was assigned to review the project. After a briefing from Shri Sunil Kumar, Director (Swajaldhara), Shri Datta visited Amravati on 12 and 13 January,2004. The Major observation and recommendations of the Mission are as under:

Major Observations

1. Institutional Structure:

DWSM formed with President of Zilla Parishad (Z.P.) as “Chairperson” and CEO as Member Secretary. DWSC formed with CEO of Z.P. as “Chairperson” and Executive Engineer as Member Secretary.

During the last four years, CEO was transferred 3 times and the Executive Engineer 4 times. Fortunately “Chairperson” of the DWSM was not changed. Frequent changes of the two most important functionaries of the DWSM and DWSC resulted in “Poor” performance in adoption of Sector Reform Processes at all stages.

2. Sanction of SRP:

a. At the time of sanctioning of the Sector Reform Project at an estimated cost of Rs.2126.00 lakh in February, 2000 and release of 1st Instalment of Rs.592.05 lakh in March13, 2000, real field situations and thinking of people in the villages were unknown at all levels. 2nd Instalment of Rs. 592.05 lakh was released on November17, 2003, after 3 years 8 months and 4 days of release of 1st Instalment. Non follow-up of sanctioned schemes and such a long gap in release of fund has badly affected the timely implementation of schemes under Sector Reform Project.

b. Similarly, while preparing detailed schemes(127 w/s schemes at estimated cost Rs.1860.38 lakh and 764 school w/s schemes at estimated cost of Rs.153.90 lakh)at total estimated cost of Rs.2014.28 lakh, requirements as per Sector Reform Process were not reflected.

c. Even while according Administrative Approval/Technical sanction of detailed schemes(127 w/s schemes at sanction cost of Rs1325.00 lakh and 764 school w/s schemes at sanction cost of Rs.153.90 lakh) at total A.A/Technical sanction cost of Rs.1478.90 lakh, results of “Baseline Survey” were not reflected to the extent it deserved.

3. Initial hiccups and delays observed in all phases of the process.

4. Quality of “Baseline Survey” was not satisfactory.

5. Support Organization:

Mahapani Consortium, Pune (Scott Wilson Krickpatrick Pvt.Ltd, New Delhi) and Swaym Prayog, Mumbai were engaged as support organizations in the district for HRD and Capacity Building to strengthen technical support through field oriented trainings to NGOs, Officials, Non-officials, G.P. Members, VWSC Members. The Mission observed that the inputs of the support organization was satisfactory to the extent of building capacity mostly at district, NGOs, Officials and Non-officials levels. The most important institutional structure at village level are G.Ps and VWSCs. A few Members of G.Ps and VWSCs were trained no doubt, but the quantitative and qualitative trainings (as per grass root requirements) were found “Not Satisfactory”.

6. Core Group vis-vis availability of water

It was reported that a nine-member Core Group had been constituted in the district. The Mission wanted to understand the role of the Core Group to translate the Sector Reform Process at village level as per requirements of VWSCs vis-vis availability of water in the project villages. With this question in mind, the following were the observations of the Mission:

While visiting Chamak Khurd village (Cat.”A”) of Achalpur Taluka, the Mission noticed a 23 year old Tube Well (T.W.), used as the source for augmentation of water supply under a Sector Reform scheme, need immediate flushing of about 17 meters silt deposited in the old T.W. since summer is approaching fast and discharge of the T.W. is going down. Therefore, close monitoring of the discharge of the T.W., appropriate technical training /advice to the members of the VWSC for rescheduling of pumping and supply hours are immediate requirements. This was one example in field situation. The Core Group may wish to look into the matter and extend possible technical support to the VWSC.

The other in village Deogaon of Achalpur Taluka where VWSC struggled hard continuously for two months with the Zilla Parishad to get either in Hindi or in Marathi language translated version of the “Tender Book(Printed in English)” and “Technical Estimate” of the Sector Reform Scheme which the VWSC was expected to implement. The VWSC did not get any response from Zilla Parishad. The Chairperson and the Members of the VWSC during their meeting with the Mission mentioned that they had to accept and agree to whatever mentioned in the “Tender Book(Printed in English)” without understanding. If they did not agree, the implementation of the scheme could get delayed and they had to suffer. This clearly demonstrated that the Sector Reform Process was not clearly understood at Zilla Parishad level. This was also reflected in the quality of inputs of the HRD and Capacity Building Agency engaged to train district level staff. Either the district level staff were not properly sensitized on Sector Reform Process or they were not interested in implementation of Sector Reform Process. Action at appropriate level may be taken at the earliest so that other VWSCs need not face the same difficulties in implementation of Reform Process.

The third example Shendola Khurd village (Cat.”C”) of Teosa Taluka where an Administratively Approved (19.04.03) and Technically Sanctioned Sector Reform scheme (Source, ESR, Pipeline) costing Rs.6.14 lakh reported 80% complete with actual expenditure of Rs.4.06 lakh as on 31.12.03 and with the balance payment of Rs.1.46 lakh, the A.A/Technically sanctioned scheme would be 100% complete by the end of March,2004. On paper it was observed “Excellent”. But field visit to this scheme revealed an interesting picture.

(a) There is an existing piped water supply scheme with RCC ESR and pumping machinery and a dug well as “Source”. The scheme completed in April, 1999 with investment of Rs.12,25,000/-.There are 185 house service connections. O&M cost of existing scheme: Rs.4583/- per month.

(b) The source: Dug well completely dried in 2003 summer.

(c) Drying up of existing “Dug well” source resulted in undertaking a SR scheme towards development of a “sustainable water source” in the village. Approach was “Excellent” towards implementation of Sector Reform Process.

(d) HRD and Training to the Members of VWSC were provided by Mahapani Consortium.

(e) Under the sanctioned Sector Reform scheme: construction of another dug well with expenditure of Rs.5,10,000/- against sanctioned cost of Rs.4,89,460/- completed in April, 2003; Yield Test with water quality testing with expenditure of Rs.30,000/- completed in May, 2003; the third sanctioned item viz. Fracture Seal Construction to improve to improve storage in the well after monsoon was yet to be completed as on 13 January, 2003. Expected expenditure for this item would be about Rs.58,000/-against sanctioned amount of Rs.60,000/-.The Mission noted the approach and steps adopted towards development of a sustainable water source under Sector Reform scheme with technical inputs from Support Organisation. However, the Mission noted that even if the sustainable source got ready by 31 March, 2004, the villagers will not get water supply from this sustainable source. Since the location of this source is in such a place that further investments would be required to put it into beneficial use. Field enquiry revealed that an estimate for the purpose was ready, further investment of aboutRs.20.00 lakh would be required to utilize this sustainable source. While checking the details, the Mission noticed that another elaborate arrangements of Pipelines, Pumping Machineries, another ESR etc. had been incorporated in this estimate. Keeping in view the misery of the villagers inspite of the above investments, the Mission tried to analyse and apply its mind to find out the best possible way to utilize the existing infrastructure, already created from the old existing scheme completed in April,1999, like ESR, pumping machinery, distribution pipelines etc. and dovetailing the same to the sustainable source created recently under SRP and came to the conclusion that it was possible and this can be done with lesser cost.

To do this requirements as assessed tentatively are:
1. Switch Room : Rs. 35,000/-.
2. Pumps(2 nos.6 H.P. each) : Rs. 76,000/-
3. Pipeline : Rs.8,09,000/-
* Rising Main
(110 mm,PVC,6kg. 3.0 km),
** Gravity Main
(90 mm,PVC,6 kg., 1.5 km)
4. Break Pressure Tank :Rs. 55,000/-
(1 hr. capacity : 15,000 liters)
Total(1 to 4) :Rs.9,75,000/-
Say, Rs. 9.80 lakhof which
Beneficiary Contribution (10%) : Rs.0.98 lakh
GOI Share(90%) :Rs. 8.82 lakh

The Core Group may wish to consider the above suggestion and interact with the VWSC, Support Organization and DWSC/DWSM and ensure that requisite funds are made available for the purpose on emergency basis to the VWSC and infrastructure already created in Shendola Khurd village are put to fruitful use at the earliest so that the people in the village do not face the adversary of non availability of basic need namely, drinking water, inspite of investment of Rs.18.25 lakh(Rs.12.25 lakh in April,1999 prior to SRP and Rs.6.00 lakh under Sector Reform scheme).

7. User Satisfaction

Out of 43 schemes (including 9 schemes relate to source development and related items) under Cat.”A” reported 100% completion, as on 31st December, 2003, the Mission visited 4 villages at random and noted High degree of User Satisfaction. In these 4 villages, 24 Hours-3 Phase Power Availability was reported. Supply Level observed : 39 lpcd in Chamak Khurd village of Achalpur Taluka; 50 lpcd in Udan village of Achalpur Taluka;

90 lpcd in Deogaon village of Achalpur Taluka and as high as 100 lpcd in Pimpri (Gopalpur) village of Amravati Taluka. Regarding availability of drinking water in the above 4 villages, a more detailed observations/analysis is depicted in Table-1.

8. Receipt of Scheme-wise Information in Prescribed Format

During briefing meeting with Shri Sunil Kumar, Director (Swajaldhara), the Mission (Shri Datta) gave a “Format “ to him with the request to send the same to the district authority in advance so that on arrival at Amravati, the Mission can get an access to the information required to review performance of sanctioned schemes and accordingly plan to study at random the implementation of a few schemes by field visits. The Mission expresses its gratitude to Shri Sunil Kumar, Director(Swajaldhara) in the Department of Drinking Water Supply ,GOI and Shri Uday Rathod, Chairman, DWSC and CEO, Amravati and his excellent support staff (Shri Rathi) at district level who provided required information to the Mission on time. The Mission could visit 5 villages and study performance of 5 schemes taken up under the Sector Reform Project. Field observations of the Mission have been recorded in the previous paras. Scheme-wise information in the prescribed Format as sent by the Chairman of DWSC and CEO, Amravati (vide his letter No.ZP/RWSD/S.R.P./95/2004 dated 13.01.2004) to the Director(Swajaldhara) and with a copy to the Mission were received and analyzed.

Performance Review

9. Review of Performance of Sanctioned Schemes under SRP. Sanctioned schemes were divided into 5 Categories (Position as on 31.12.2003):

Table-2

9.2.1 According to Mission’s assessment and as confirmed by CEO in his letter dated 13.01.04,it is expected that 120 schemes(out of 127 schemes as mentioned in Table-2) would be completed by the end of current financial year(31.03.2004).The Mission noted that against A.A/Tech.sanction of Rs.1071.39 lakh for the above 120 schemes, expenditure of Rs.494.54 lakh had been adjusted and to complete the residual works by 31.03.04 and settle final bill amount of Rs.469.70 lakh would be required as can be seen from Table-2.

9.2.2 As confirmed by CEO in his letter ,the Mission noted that 670 school water supply would be completed(100%) by 31.03.04,for which expenditure amount Rs.29.89 lakh had been paid and adjusted, to complete the ongoing works and settlement of final bills, amount of Rs.90.71 lakh would be required.

9.2.3 Therefore, assessed total requirements of funds would be: Rs.469.70 lakh(90% GOI share) for(100%) for completion of 120 village water supply schemes plus Rs.90.71 lakh for school water supply = Rs.560.41 lakh.

9.2.4 Total Fund Available

1. GOI share: Rs.1184.10 lakh

1st Inst.:Rs.592.05 lakh released on 13.03.2000 + 2n. Inst.:Rs.592.05 lakh released on 17.11.2003 = Total :Rs.1184.10 lakh

2. Accrued interest (upto 31.12.2003) Rs.57.54 lakh

3. Community Contribution Collected till date: Rs.94.25 lakh

4. Total availability of fund (1+2+3): Rs.1331.69 lakh (A)

9.3 Reported Expenditure (upto 31.12.2003)

1. Total on hardware component :Rs.529.43 lakh*

2. Total software component :Rs.211.04 lakh*

Total :Rs.740.47 lakh (B)

*As per expenditure statements made available to the Mission by the Member Secretary of the DWSC on13 January, 2004. But according to CEO’S letter dated 13th January, 2004 expenditure on hardware component already adjusted (as on 31.12.2003): Rs.524.43 lakh (Rs.494.54 lakh for village w/s schemes and Rs.29.89 lakh for school w/s) as can be seen at paras 9.2 and 9.3 above.

As regards Beneficiary contribution (B.C.), the Mission noted the following information as made available to the Mission during field visit:

1. B.C. collected upto 31.12.03 :Rs. 80.43 lakh

2. Remaining to be collected for ongoing schemes :Rs. 26.72 lakh

3. Total B.C. expected to be available

for ongoing schemes :Rs.107.15 lakh

(Rs.in lakh)

of which Rs.94.25 lakh reported already collected till date.

Remarks:

Therefore, Net Fund Available with the DWSM/DWSC of the Amravati District(as on 1 January,2004 = (A)-(B)=(Rs.1331.69 lakh-Rs.740.47 lakh) = Rs.591.22 lakh, where as total assessed requirements of fund :Rs.560.41 lakh as can be seen at para 9.4 above. Therefore, it is concluded that with the balance available fund (as on 1 January,2004) under SRP in Amravati district, all the remaining ongoing woks would be completed and 120 village w/s schemes and 670 school w/s schemes would be brought into 100% completion by 31 March,2004, provided available balance fund immediately released to such of the village and school w/s schemes (Cat.”A”, Cat.”B” and Cat.”C”) which would be completed by 31 March, 2004. The Mission recommends that a letter in this direction be sent urgently by GOI to both the Chairpersons of DWSM and DWSC. They also be requested to ensure that the Core Group set up for the project should monitor the progress continuously and provide technical guidance to the VWSCs as would be required to complete the ongoing schemes (100%) as per above stipulated time frame.

9.4 The Mission also noticed that even if after 100% completion of sanctioned and ongoing (advanced stage of completion)120 villages w/s with the balance available fund as mentioned above, in 37 schemes only “source development and related items” would be completed(100%).Observation and analysis on one such scheme is recorded in para 6 of the this report.(Shendola village under Cat.”C”).

9.5 Category wise breakup of 37 schemes are:

9.6 Inspite of 100% completion of 120 schemes by 31.03.04 under SRP, water availability to the villagers is expected from 83 schemes only where 100% works are expected to be completed by 31.03.04. Source development and related items would be completed in 37 schemes. Efforts should be made to put into beneficial use such schemes at the earliest by adopting any one of the following approach:

1. Connecting to existing old scheme, if any in the village, with minimum investment;

2. A new scheme using the “source already developed” as explained above. Examination of sustainability of such completed source should be ensured first before dovetailing this source to a new scheme.

3. Under Swajaldhara, such schemes should get Highest Priority.

Recommendations

1. For “Safe Exit” of administratively approved, technically sanctioned already completed(Cat.”A”:100% completed as on 31.12.03:43 Nos.), advanced stage of completion (Cat.”B”:100% completion by 31.01.04:27 Nos.), various stages of completion but 100% completion by 31.03.04(Cat.”C”:50 Nos.), totaling 120 village w/s schemes and 670 school water w/s schemes (under Cat.”A”: 210, Cat.”B”:196, Cat.”C”:264) be allowed to complete in all respects (100%) and closed down with final settlement of A/Cs as per following target dates:

4. Final payment to Support Organization and NGOs should not me made until the DWSC is convinced that all 120 VWSCs have become confident to operate and maintain the schemes completed under SRP(including community based DWQM) independently.

5. The Core Group formed by DWSC should be more active. VWSCs deserve to get required technical support from them. A few w/s schemes under SRP had been implemented using old existing source(s)( e.g. Chamak Khurd village as mentioned at Para 6 above) which may or may not be sustainable. Close monitoring of such old sources is essential. The Core Group should provide appropriate technical guidance to the concerned VWSCs.

6. Only “Source Development and related items” would be completed(100%)in 37 village w/s schemes. Such sources should be put into beneficial use at the earliest as recommended at Para 9.9 above.

7. GOI may wish to consider the following “Priority” under Swajaldhara:

1. Highest Priority : HP-SW : Spillover ongoing SRP Schemes with Sustainable Source; only Sustainable Source developed and related items fully completed (100%)

2. Moderate Priority: MP1-SW: Spillover ongoing SRP Schemes with old existing Source;

3. Medium Priority: MP2-SW: Spillover SRP Schemes (A.A/Technically sanctioned, B.C. Collected but Scheme implementation not started);

4. Low Priority: LP-SW: Spillover SRP Schemes (only estimate prepared and sanctioned).

8. DWSC with the support of the Core Group should ensure that a Typical Work Estimate, Tender Document, Work Order and related Documents either in Marathi or in Hindi are prepared and shared with all VWSCs.

9. Regarding Rajura R.R.Scheme 10 villages (Cat.”D” (Ref. Sl.No.121 of the list of schemes in CEO's letter): Noting that a very costly Reg. w/s scheme at estimated cost of Rs.454.73 lakh, administratively and technically sanctioned at cost of Rs.241.19 lakh(Phase-1),community contribution already collected Rs.9.10 lakh(as on 31.12.03) and balance amount Rs15.01 lakh to be collected, expenditure incurred and paid:Rs.5.00 lakh against amount of work done of Rs.23.00 lakh and also noting the progress of work done(as on 31.12.03: One RRC well (9m dia. and 15 m depth) constructed and 2 old wells repaired, the Mission felt that even if investment of Rs.241.19 lakh was allowed on Phase-1 of the scheme(mostly towards purchase of 150 mm dia. Ductile Iron pipes for Rising Main and 35 HP 2 nos Pumping sets), people would not get water supply until additional investment was made to provide Master Balancing Reservoir and Distribution system.

Keeping in view the above observation, the Mission recommends that a thorough technical investigation on the scheme be made at the earliest so as how such a costly scheme was undertaken under Sector Reform Pilot Project and to what extent VWSCs were involved and trained to implement, supervise, operate and maintain such a big Regional Water Supply Scheme. It would also be appropriate to take a view urgently on the community contribution already collected (Rs.9.10 lakh as on 31.12.03) and balance amount (Rs.15.01 lakh to be collected)

10. Reg. 6 schemes under Cat."E"(Ref. Sl.Nos.122 to 127 of the list of schemes in CEO's letter): Noting that "no work started" on these schemes till date though these are small schemes requiring total investment of Rs.11.16 lakh of which Rs.5.12 lakh for 4 schemes bore well and Hand Pump based and community contribution Rs.0.52 already collected (as on 31.12.03) and balances.0.72 to be collected from community, a decision is to be taken in consultation with CEO whether these 6 schemes or at least the 4 bore well and Hand Pump based schemes either be allowed to club with Cat."C" and completed by 31.03.04 under SRP or be undertaken under Swajaldhara-II on Priority during 1st quarter of 2004-05.

Table-1: Observation on Availability of Water in 100% Completed Schemes

( 4 schemes in 4 villages out of total 43 schemes. for 43 villages) (Cat. “A”) in Amravati District under SRP in Maharashtra State visited by the Mission (12-13 January, 2004).