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Water for Asian Cities Programme
Water Demand Management Strategy and Implementation Plan for GWALIOR
The Energy and Resources Institute
Water Resource Planning and Conservation
Government of Madhya Pradesh
Water for Asian Cities Programme
Water Demand Management Strategy and Implementation Plan for GWALIOR
© United Nations Human Settlements Programme (UN-HABITAT), 2006 All rights reserved United Nations Human Settlements Programme (UN-HABITAT) P.O. Box 30030, Nairobi, Kenya Tel: +254 –20 –7623588
Disclaimer The designations employed and the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or area, or of its authorities, or concerning delimitation of its frontiers or boundaries, or regarding its economic system, or degree of development. UN-HABITAT does not owe any responsibility, whatsoever, for incorrect/inappropriate information provided by the Gwalior Municipal Corporation and the Public Health Engineering Department, or in documents, maps, or quoted reports of Research and Consultancy Organisations. No material in this publication can be reproduced or presented in any form or by any means without prior permission of UN-HABITAT. The information developed, analysis, conclusions and recommendations of the Publication do not necessarily reflect the authenticity and views of the United Nations Human Settlements Programme (UN-HABITAT), the Governing Council of UN-HABITAT or its Member States.
HS Number: HS/918/07E
Acknowledgements The Publication has been prepared under the overall guidance of Mr. Kalyan Ray, Senior Advisor, Office of the Executive Director, UN-HABITAT and close supervision of Mr. Andre Dzikus, Programme Manager, Water for Cities Programmes, Water, Sanitation and Infrastructure Branch of UN-HABITAT, with the support of Mr. Kulwant Singh and Mr. Aniruddhe Mukerjee of UN-HABITAT. UN-HABITAT owes a great deal to The Energy Resources Institute (TERI) in commissioning this project in partnership with Water Resources Planning and Conservation (WRP), South Africa, who provided the water balance software for undertaking water balance study. UN-HABITAT would like to acknowledge the contribution of Gwalior Municipal Corporation, the Public Health Engineering Department and other concerned organisations for the innovative inputs into the study.
Jayant Kumar Malaiya Minister Urban Administration & Development Housing & Environment Government of Madhya Pradash
UN-HABITAT under the Water for Asian Cities Programme in India is working in Bhopal, Gwalior, Indore and Jabalpur in support of the ADB financed Urban Water Supply and Environmental Improvement Project of Government of Madhya Paradesh for the improvement and expansion of urban water supply, sewerage and sanitation, water drainage and solid waste management in these cities. All four cities, have substantial population presently living in slums having difficulties in accessing both water and sanitation facilities. UN-HABITAT has undertaken the Water Balance study in the four cities which revealed that the Non-Revenue Water (NRW) is between 33 and 60% in Bhopal, Gwalior, Jabalpur and Indore. The reduction of NRW can lead to availability of surplus water for the population in the slums, which are presently not having sufficient access to piped water supply. I am pleased to learn that UN-HABITAT has developed a strategy and action plan on Water Demand Management (WDM) jointly with Urban Water Supply and Environmental Improvement (UWSEI) Project, Madhya Pradesh which proposes technical, financial and institutional measures to reduce NRW. I hope that the implementation of the strategy and action plan will help the local bodies in improving the water supply condition of the four project cities and attainment of the Millennium Development Goals.
Jayant Kumar Malaiya
The city of Gwalior is the fourth largest city in the State of Madhya Pradesh with the per capita water availability of around 160 lpcd covering over 9 lakh population, considering no losses and equitable distribution. A significant volume of ground water of the order of 27 MLD is also extracted through a network of bore wells and hand pumps. Information on operational aspects of water supply is mostly unavailable. Absence of data on leakages and the reliability of the available basic data on the availability of water supply has been the major concern in arriving at water balance audit. Nonrevenue water for the whole of the city is estimated at around 44 per cent. There has been zonal disparities and the percentage of non-revenue water varies among zones and could even be as high as 56 per cent. The water supply problem in the city of Gwalior is attributed more to the lack of infrastructure and current management practices rather than lack of water availability. UN-HABITAT in partnership with Water Resource Planning and Conservation (WRP), South Africa and The Energy and Resources Institute (TERI), India commissioned the Project on Water Demand Management Strategy and Implementation Plan for the cities of Bhopal, Gwalior, Jabalpur and Indore in the state of Madhya Pradesh, consequent to the Workshop on Pro-Poor Urban Water and Sanitation Governance held in March 2005 in Bhopal to bring together the primary and secondary stakeholders on the approach and strategies to be adopted in the implementation of the Water for Asian Cities Programme. The Water Demand Management Strategy and Implementation Plan for the city of Gwalior has been prepared by TERI based on the techniques and methodology provided by the WRP, South Africa. The Publication presents a comprehensive reforms package by developing Water Demand Management Strategy and Implementation Plan for the city of Gwalior involving institutional, financial and technical issues and is aimed at the efficiency improvements in the management and utilization of water. The focus is mainly on the water balancing systems, developing the information-base on GIS platform, capacity building and approaches for reducing unaccounted-for water for an efficient and effective distribution of available water supply.The strategies and the implementation framework illustrated in the publication would not only enhance awareness but also provide the basis for formulating effective Water Demand Management policies.
Andre Dzikus Programme Manager Water for Cities Programmes UN-HABITAT
Contents Executive Summary ..................................................................................................................................................... 13 Chapter 1
1.1 Objectives ......................................................................................................................................................... 15 1.2 Scope .................................................................................................................................................................. 15 1.3 Approach and methodology..................................................................................................................... 16 1.4 Partners and stakeholders.......................................................................................................................... 17 Chapter 2
Status of Water Supply to Gwalior City
2.1 Water sources .................................................................................................................................................. 18 2.2 Water supply network .................................................................................................................................. 19 2.3 Other observations ....................................................................................................................................... 24 Chapter 3
Rapid Water Audit and Balance
3.1 Approach .......................................................................................................................................................... 25 3.2 Water supply in different zones ............................................................................................................... 26 3.3 Water Audit using AQUALIBRE software ............................................................................................... 27 Chapter 4
Introduction of Water Demand Management ..................................................................... 30
Chapter 5
Water Demand Management Strategy: Technical
5.1 Metering ............................................................................................................................................................ 32 5.2 Development of database management system using GIS ......................................................... 41 5.3 Water audit and balancing ......................................................................................................................... 46 5.4 Sectorisation/District metered areas ..................................................................................................... 48 5.5 Energy auditing .............................................................................................................................................. 50 5.6 Active and passive leakage control ........................................................................................................ 53 5.7 Asset management programme ............................................................................................................. 56 5.8 Planned maintenance .................................................................................................................................. 57 5.9 Alternative delivery mechanisms ............................................................................................................ 58 5.10 Water conservation at consumer end ................................................................................................... 60 5.11 Pressure management................................................................................................................................. 60 Chapter 6
Financial Assessment of Waterworks Department, Gwalior Municipal Corporation
6.1 Background ....................................................................................................................................................... 66 6.2 Analysis of income-expenditure statement ......................................................................................... 67 6.3 Current water tariff structure ..................................................................................................................... 74 6.4 Tariff rationalisation ....................................................................................................................................... 79 7
Chapter 7
Water Demand Management Strategy: Institutional and Policy Reforms
7.1 Introduction ..................................................................................................................................................... 95 7.2 Current legal and institutional framework for provision of water supply services .............. 97 7.3 Introduction to SWOT ................................................................................................................................ 100 7.4 Recommendations for Policy and Institutional Reforms .............................................................. 104 Annexures 3.1
Aqualibre Water Balance Model ........................................................................................................... A-3
5.1a Activity schedule for Metering of Bulk flows ................................................................................ A-11 5.1b Activity schedule for Domestic metering ...................................................................................... A-12 5.1c Activity schedule for developing GIS database........................................................................... A-13 5.1d Activity schedule for Active and Passive leakage control ....................................................... A-14 5.1e Activity schedule for Alternative supply means ......................................................................... A-15 5.2a Water Meters ............................................................................................................................................. A-16 5.2b Selection of Water Meters .................................................................................................................... A-26 5.2c Installation Practices .............................................................................................................................. A-27 5.2d Calibration of Water Flow Meters ...................................................................................................... A-31 5.3 Database Generation for Bangalore City in GIS ........................................................................... A-34 6.1 Existing Tariff Schedules in Chennai, Bangalore and Delhi ..................................................... A-38 6.2
Formats for database ............................................................................................................................. A-47
Rationale for Reforms in urban water supply sector ................................................................. A-52
Bibliography ............................................................................................................................................................. A-58
Note: Rs. 1 crore:
Rs. 10 million
Rs. 1 million: Rs. 10 lakhs Rs. 10 lakhs: Rs. 1,00,000
Tables 2.1 Details of water sources and water supplied to Gwalior ................................................................................ 18 2.2 Details of pump houses at WTPs .............................................................................................................................. 19 2.3 Details of riders in Lashkar (East) zone .................................................................................................................. 21 2.4 Details of bulk consumers in Lashkar (East) and water supplied ................................................................ 22 2.5 Details of OHTs in different zones ........................................................................................................................... 23 2.6 Details of bulk consumers in Gwalior and water supplied ............................................................................ 24 5.1 Comparative analysis of various types of meters .............................................................................................. 33 5.2 Proposed locations for bulk metering of flow (bulk management meters) ............................................ 35 5.3 Proposed locations for installation of bulk revenue meters ......................................................................... 37 5.4 Details of various GIS themes .................................................................................................................................... 45 5.5 Pilot projects for immediate implementation .................................................................................................... 63 5.6 Proposal for projects to be implemented within two years .......................................................................... 65 6.1 Income-expenditure trend of the Waterworks Department ......................................................................... 66 6.2 Income statement of the Waterworks Department ......................................................................................... 68 6.3 Expenditure statement of Waterworks Department ........................................................................................ 69 6.4 Consumer category-wise revenues ........................................................................................................................ 70 6.5 Income-expenditure gap from FY 2000-01 to FY 2004-05 ............................................................................. 71 6.6 Assessment of the revenue-expenditure position of Waterworks Department .................................... 72 6.7 Estimates of zonal annual collection efficiency based on field surveys/interaction ........................... 73 6.8 Profit/Loss scenarios with varying collection efficiencies .............................................................................. 73 6.9 Existing Tariff Schedule (Effective from April 2002) .......................................................................................... 75 6.10 Commencement and Terminal Years for the 3 alternative scenarios ......................................................... 78 6.11 Customer category-wise break-up of revenues & applicable tariffs .......................................................... 79
6.12 Customer category-wise connections.......................................................................................................... 80 6.13 Base Case Scenario 1 .................................................................................................................................................... 81 6.14 Existing consumer category-wise average tariff and average cost ............................................................ 81 6.15 Base Case Scenario 2 .................................................................................................................................................... 82 6.16 Trend of regularization of illegal connections .................................................................................................... 84 6.17 Additional connections due to changes in family dependence on a particular connection ............ 84 6.18 Total new domestic connections added during the short, medium and long term scenarios ........ 84 6.19 Revenue-expenditure projections for Waterworks Department ................................................................. 85 6.20 Difference between tariff and cost per connection in the short, medium and long-term scenarios ...................................................................................................................................................... 86 6.21 Fixed domestic water tariff to break-even ........................................................................................................... 88 6.22 Key ratios/Indices measuring effectiveness of inventory management ................................................. 93 7.1 SWOT framework ......................................................................................................................................................... 100 7.2 Results of the SWOT analysis ................................................................................................................................... 103 7.3 Examples of the four types of performance indicators applied to urban water supply service.... 110
Training modules ........................................................................................................................................................ 114
7.5 Indian experiences in Privatisation of Water Supply & Sanitation ............................................................ 123 7.6 International examples of options for private sector participation and allocation of responsibilities .............................................................................................................................................................. 124
Figures 1.1 Detailed methodology: Frame work for the formulation of WDM strategy and implementation plan ................................................................................................................................................... 17 2.1 Schematic diagram for Tighra-Kaketo water supply network ....................................................................... 20 3.1 Standard IWA water balance ....................................................................................................................................... 29 4.1 PDCA Approach ............................................................................................................................................................... 31 5.1 A framework for a GIS based database system .................................................................................................... 33 5. 2 Map showing a part of Gwalior in GIS ..................................................................................................................... 34 7.1 Key issues in urban water supply: The vicious circle .......................................................................................... 95 7.2 Institutional arrangements in Madhya Pradesh for provision of urban water supply .......................... 98 7.3 Organisation chart of Gwalior Municipal Corporation (GMC) ....................................................................... 99 7.4 Organisational chart: Waterworks Department ................................................................................................. 100 7.5 Implementing Performance Measurement (PM) system ............................................................................... 109 7.6 Capacity building framework ................................................................................................................................... 112 7.7 Framework for IEC strategy ....................................................................................................................................... 118
Boxes 5.1 Experiences post energy auditing in some municipalities/ municipal corporations ................... 52 5.2 Methods for identification of leaks ................................................................................................................... 55 6.1 Electricity Tariff Reforms in India ....................................................................................................................... 77 6.2 Water tariff for domestic consumption in Delhi and Bangalore ........................................................... 89 7.1 Problem recognised in Urban Local Bodies in 10th Five-year Plan ...................................................... 96 7.2 Bangalore Information System on Networks (BISON) .............................................................................. 107 7.3 Human Resource Development, Chennai ................................................................................................... 111 7.4 Strategy adopted by Nagpur Municipal Corporation for Reducing Unaccounted-for Water .... 115 7.5 Legalizing water in slum colonies – Bangalore ......................................................................................... 116 7.6 Setting up of Maharashtra Water Regulatory Commission .................................................................. 121
Abbreviations APFC
Active Power Factor Conversion
Air Release Valves
Asian Development Bank
Bangalore Water Supply and Sewerage Board
Bharat Heavy Electricals Limited
Bhopal Municipal Corporation
Break Pressure Tank
Cast Iron
Central Ground Water Board
Central Investigation Bureau
Central Water and Power Research Station
Chennai Metropolitan Water Supply and Sewerage Board
Compounded Annual Growth Rate
Confederation of Indian Industry
Consumer Price Index
District Metered Areas
Fluid Control Research Institute
Galvanised Iron
Geographical Information System
Global Positioning System
Ground Service Reservoirs
Gwalior Municipal Corporation
Habibganj Railway Station
Indian Institute of Management
Infrastructure Leakage Index
Institute for Design of Electrical Measuring Instruments
International Water Association
Karnataka Urban Infrastructure Development Finance
Madhya Pradesh Council for Science and Technology
Military Engineering Services
Millennium Development Goals
Million Litres
Nagpur Municipal Corporation
Non-Revenue Valve
Non-Revenue Water
Over Head Tank
Pre Stressed Concrete
Public Health and Engineering Department
Receipt and Payment Account
Regional Research Laboratories
Shri G.S Institute of Technology of Science
State Bank of India
State Electricity Boards
Tata Consulting Engineers
Urban Local Bodies
Vishakhapatnam Municipal Corporation
Water Demand Management
Water for Asian Cities
Water Resource Planning and Conservation
Water Treatment Plant
Executive Summary
UN-HABITAT commissioned a project on Water Demand Management (WDM) in four cities of Madhya Pradesh viz, Bhopal, Gwalior, Jabalpur and Indore to The Energy and Resources Institute (TERI), New Delhi and Water Resource Planning and Conservation (WRP), South Africa. The project is funded under the Water for Asian Cities (WAC) Programme, which is a collaborative initiative between the UN-HABITAT, the Asian Development Bank (ADB) and the Governments of Asia. The scope of the assignment involved conducting a water balancing study, preparing a detailed database on a GIS platform and making recommendations for reducing unaccounted-for water so that available water supply is efficiently and effectively distributed. Aimed at efficiency improvements in management and utilisation of water, the project looked at the cities of Bhopal, Gwalior, Jabalpur and Indore. The present project aims at developing a comprehensive reforms package for Gwalior involving institutional, financial and technical issues in water supply.
Current scenario The water supply to Gwalior is mainly dependent on the Tighra-Kaketo system and ground water augments this supply. Water is supplied from the dam to the two WTPs (old and new) at Moti Jheel, through two PSC pipelines from the dam. Gwalior water supply scheme draws 135 MLD of raw water for treatment while covering an estimated population of about 9.83 lakhs. Assessment study reveals that most of the information on operational aspects of water supply is either unavailable or is available as a crude estimate. Absence of data on leakages and reliability of the basic data has been a major concern in the calculations on water balance audit. The audit is therefore based on the best information available, which tends to be a mixture of assumptions that shall need formal vetting by the officials of Municipal Corporation in due course. The best estimate for overall percentage of non-revenue water is about 44%. However because of an uncertainty of 23%, NRW could even be as high as 56%. This current water supply problem can therefore be attributed more to the lack of infrastructure and current management practices rather the lack of water availability. Water demand management is thus an approach, which can be used to improve the efficiency of the current system.
WDM strategy The first step to WDM is essentially to measure the water flowing in the system. It is practically impossible to implement any demand management strategy without metering. It is proposed that bulk meters be installed at outlet of both new and old treatment plant and outlet of Rakkas tank near Haddi Mill. Bulk meters should also be installed at the transmission mains to Morar, Lashkar East and Lashkar West. It is recommended to install bulk meters at gravity mains from the dam. It is also proposed to install V-notches to measure water flow in open channels (from the dam) and inlet to both treatment plants to assess water allocation from the dam and leakages. Bulk revenue meters should be installed for revenue realisation from bulk consumers like MES, IAF, Railways, J A Hospital, etc., as these consume huge volume of the water supplied and pay a high percentage of the total revenue realised. In Gwalior, domestic consumer meters are not installed and all revenue is, therefore, realized on a flat rate basis. The absence of metering coupled with an irrational tariff structure results in huge losses to the service provider, which leads to inadequate funds for undertaking O&M activities properly. 13
It is suggested that energy audit should be carried out at all pump houses although at pilot phase. This should be carried out at pump houses located at the outlet of old WTP. It is also suggested that expenditure on power consumption should be recorded and tracked by installing energy monitoring systems near all pump houses and treatment plants. Site visits carried out, while assessing the supply system reveal that a considerable amount of water is lost during transmission and distribution of water. It is suggested that a dedicated team should be involved to carry out leak detection and repair. To begin with all visible leakages occurring from transmission pipes, valves and pumps should be identified and repaired. It was observed that there is an extensive leakage and wastage in the areas where water is supplied during night. There is a need to change supply timings in these areas. Pilot study areas like Ward 17, Indra Nagar (Morar) has been suggested for carrying out implementation of WDM strategies such as District-metering areas (DMA), domestic consumer metering, water audit, identification of leakages and repair, preparation of GIS database based on extensive survey of pipelines, pressure management, asset management programme, awareness campaigning and regularising illegal connection. Such studies will help in assessing financial and technical inputs required to carry out implementation of these strategies at city level.
Financial Assessment Currently, GMC charges are on a flat rate basis because of the absence of a metering system at the consumer end. A flat tariff not only encourages indiscriminate and illegal water usage, but also acts as a disincentive for consumers to conserve water.The existing tariff structure needs to be rationalized to address cost recovery principles, improve collection efficiency and provide clarity to tariff design. An alternative to the current tariff structure is the 'two part' tariff structure. Such a tariff design typically includes a consumption/ volumetric rate in addition to the fixed water charge. It is also suggested to modify the prevalent municipal accounting and financial reporting systems from singleentry cash based to double-entry accrual based system. This system scores over the cash based accounting as it also takes into consideration credit transactions.
Institutional Reforms As a first step to the reforms process, it is recommended that GMC formulates a vision statement for provision of water supply services by involving all relevant stakeholders. This vision statement should draw upon the existing national and state water policies and urban development policies adopted by the state and national governments and also the expectations of the consumers. GMC should also develop an Infrastructure Development Plan for provision of water supply services in Gwalior, which will help in better management of water supply networks. Restructuring of the water works department is needed so as to very clearly demarcate all functions like planning, construction, design, distribution O&M and plant O&M. Creating special cells for functions such as leak detection, consumer grievances and database management should be undertaken. It is proposed that an awareness campaign should be carried out to regularise illegal connections in the areas like Ramaji ka Pura, Ward 17, etc for better revenue realisation. It is also suggested that GMC should develop a comprehensive MIS that covers all aspects of water management and interlink with GIS, while also providing an opportunity to undertake performance measurement.
Over the past decade, sustainable access to water supply has emerged as one of the most critical development challenges facing the developing world. Scarcity of water resources coupled with inequitable distribution and inefficient use and distribution of water have led to a situation wherein a large percentage of the population in urban centres across the country have no access to safe drinking water and at the same time huge quantities of water is wasted through leakages and pilferages. Water Demand Management (WDM),which essentially encourages improvements in water distribution and use rather than augmentation of supplies has over the years has emerged as an alternative approach to securing access to water supply for everyone on a sustainable basis. In the above context TERI is partnership with UN-HABITAT and Water Resource Planning and Conservation (WRP), South Africa has undertaken a study to conduct a rapid assessment of the water supply services in Gwalior and develop a Water Demand Management Strategy and Implementation Plan. The assignment also aims at building capacities for mainstreaming WDM principles in water supply planning at different organisational levels in Gwalior Municipal Corporation. The study is supported under the Water for Asian Cities (WAC) programme, a collaborative initiative between UN-HABITAT, ADB and the Governments of Asia. The WAC programme supports Capacity building, Mobilizing political will, enhancing Human Resources, Water Education, and Pro-poor investments in Water and Sanitation sector aimed at meeting the Millennium Development Goal (MDG).
1.1 Objectives Aim of the study is to ensure long-term sustainability of water resources through interventions targeted at improving efficiencies in water distribution and use in urban water supply systems. he specific objectives of the study are: 1. Assessment of existing water supply operations including water balance apart from technical, financial and institutional issues. 2. Formulation of detailed WDM strategy and implementation plan for Bhopal, Gwalior and Jabalpur. 3. Capacity building at all levels in the four municipal corporations of Indore, Bhopal, Gwalior, and Jabalpur for developing WDM strategy and implementation plans for the cities.
1.2 Scope As mentioned above the study has three distinct components: – Current status assessment: The scope of the study included a rapid assessment of the current water supply situation with specific reference to estimation of Unaccounted-for water and preparation of water balance based on existing secondary datasets. In addition financial and institutional assessment of the municipal corporation was also undertaken which included identification of key issues and problems by a SWOT matrix analysis of institutional players and an analysis of the existing tariff structure including billing, pricing and recovery structure.
– Strategy and implementation plan: The findings from the assessment have been used to formulate a WDM strategy and implementation plan comprising of technical, financial and institutional strategies aimed at reducing UFW. In addition, pilot projects for immediate implementation have also been identified. – Preparation of GIS maps: Existing water supply distribution maps available with the municipal corporation have been digitised and converted to a GIS platform for use as base maps for future expansion.
1.3 Approach and methodology A WDM strategy essentially includes recommendations for improving the efficiencies in water use and distribution. Thus development of strategies for reducing NRW (Non Revenue Water) would require a thorough understanding of the water supply systems. In addition the root cause of inefficiencies in water supply systems are related more to the policy, institutional and financial challenges which get reflected in poor service delivery. Thus we had undertaken the study considering all the above issues. Given the limited time and scope, the study was essentially based on the secondary data collected through visits to each of the city. The study focused on carrying out a water balance using data provided by/collected from the Municipal Corporation. Different rounds of data collection have been undertaken because of the poor quality of data and inadequacies in data. Further limited flow monitoring was carried to fill in data gaps. Based on the above investigations, different WDM strategies have been recommended, which include various aspects of technical, financial, and institutional changes required for better and more efficient delivery of water supply services. Detailed methodology followed is given in Figure 1.1.
Figure 1.1 Detailed methodology
1.4 Partners and stakeholders As mentioned earlier UN-HABITAT, TERI and WRP have jointly undertaken the WDM study. In addition SGS Institute of Technology and Science has been involved with the training and capacity building component of the study. However, apart from the above, the following partners and stakeholders have also been involved in various stages of the study for providing data and feedback on the WDM reports as well as training. 1. Gwalior Municipal Corporation 2. Public Health Engineering Department 3. Project Management Unit (MP UWSEIP) 4. Project Implementation Unit (MP UWSEIP) 5. Project Management Consultants and Design & Supervision Consultants for MP UWSEIP 17
Status of Water Supply to Gwalior City
Gwalior is situated in the north of the State of Madhya Pradesh, at 26.12O N latitude and 78.18 O E longitudes in the Indo- Gangetic plains. The city consists of three distinct urban areas: Old Gwalior in the north, Laskar about 3 km to the southwest, and Morar towards the east (which covers the cantonment area). The climate of Gwalior is extreme with hot summers and cold winters. It experiences southwestern monsoon rains in June-September with an annual rainfall of around 766 mm. Gwalior is the fourth largest city in the State with a population of 9.83 lakhs as per the 2001 census. Its economic base is constituted of trade and commerce, small-scale industries, tourism and textiles. There are two large industrial estates within easy proximity: Malanpur Girungi in the Northeast and Banmore to the Northwest, both within 20 km radius of the city (GHK Report). The main source of water for the city is Tighra Dam. The total treated water availability, including supplies from the two WTPs and groundwater supplies, is about 155 MLD (37.5MGD), which theoretically translates into the per capita availability of around 160 lpcd considering no losses and equitable distribution. Theoretically, this supply is sufficient for the Gwalior city when compared to CPHEEO's norms for per capita supply of 135 lpcd.
2.1 Water sources The water supply system in Gwalior is mainly dependent on the Tighra-Kaketo system and ground water augments this supply. The supplies from Tighra dam located on the Sank River are supplemented by supply from another reservoir of the Kaketo dam on Narver River. In all, 190 MLD (41.85 MGD) of water is reserved for drinking water supplies to Gwalior. Water is supplied from the dam to the two WTPs (old and new) at Moti Jheel, through two PSC pipelines (17 km long and diameter 1200 mm). Water levels in the dam are inspected/recorded on a daily basis and point that there has been no shortfall in supplies over the last few years. A significant volume of ground water is also extracted through a network of borewells and hand pumps. Tubewells augment supplies from the WTP and in most of the cases these supplies are mixed with the treated water from Moti Jheel. It is reported that the quantity of ground water used for daily supplies is around 27 MLD (6 MGD) (GHK Report). This estimate is derived on the basis of the number of tubewells reported for different zones. Table 2.1 summarises the volume of water supplied in Gwalior from different sources. Table 2.1 Details of water sources and water supplied to Gwalior Source
Installed capacity MLD (MGD)
Inlet of WTP (measured) MLD
Outlet of WTP (measured/ estimated) MLD
Moti Jheel Old WTP
77.28 (17)
67.18 (14.8)
57.1 (12.5)
Moti Jheel New WTP
68.19 (15)
68.67 (15.1)
63.8 (14)
Ground water
27 (6)
2.1.1 Moti Jheel treatment plants Old Treatment Plant The old treatment plant was commissioned in 1928 and its capacity was further augmented in 1972. The present installed capacity of the plant is 77.28 MLD (17 MGD). However based on flows measured at the inlet of this WTP, it is estimated that this plant supplies 57.1 MLD (12.5 MGD) of treated water to Gwalior. It is estimated that there is a huge loss from this WTP on account of its treatment efficiency and losses during water conveyance within the WTP. The processes involved in the treatment includes sand filtration and disinfection. At the treatment plant there are three pump houses, the details of which are given in Table 2.2. Table 2.2 Details of pump houses at WTPs Pump house
Pump capacity
Supplies to
Pump house 1
1 pump of 22.7 MLD (5 MGD)
Aamkho, Lakshman Tallaya, Jayinderganj
Pump house 2
1 pump of 22.7 MLD (5 MGD) 1 pump of 18.16 MLD (4 MGD)
Aamkho, Lakshman Tallaya, Jayinderganj
Pump house 3
2 pumps of 9.08 MLD(2 MGD) each 2 pumps of 18.16 MLD (4 MGD) each 1 Pump of 18.16 MLD (4 MGD)
Rakkas Tank Rakkas Tank Aamkho, Lakshman Tallaya, Jayinderganj
Pump house-3 supplies 30.4MLD (6.7MGD) of water to the Rakkas tank (20.45 ML/ 4.5 MG capacity) located at a distance of about 3 km. A fraction of the water supplied to Rakkas tank is also supplied directly to distribution network (Gwalior and Lashkar West zones) through a bypass arrangement. The pump houses-1 & 2 along with a pump from pump house-3 supply 26.8MLD (5.9MGD) water to the Lashkar east zone through different tanks and rider connections. 2.1.2 New treatment plant The new treatment plant commissioned in 1986 has an installed capacity of 68.19 MLD (15 MGD) while the treated water supplied by this WTP was measured to be 63.8 MLD (14 MGD). Water supplied from Tighra directly reaches the plant through another 17 Km long PSC pipe line (diameter 1200 mm / 47.25 in), which runs parallel to line supplying to the old treatment plant. This new WTP comprises of two treatment units. The first is a sand filtration unit of 18.92 MLD (4.16 MGD) and the second has a clari-flocculator cum sand filtration unit of 37.85 MLD (8.33 MGD). The treated water is pumped through 5 pumps of 22.7 MLD (5 MGD) each (3 operational at a time). It is reported that about 13.6MLD (3 MGD) and 50MLD (11 MGD) of water is respectively supplied to the Rakkas tank and different reservoirs and riders of the city (covering Gorkhi (new and old), Noorganj, Thatipur, Morar, Sikandarpur and Sanjay Nagar).
2.2 Water supply network The water supply network in Gwalior city has been divided into four zones: Gwalior, Morar, Lashkar (East) and Lashkar (West). Details of each zone are discussed in the following sections.The information presented here has been collected following questionnaire and interview based approaches. Figure 2.1 is the schematic diagram for the water supply scheme.
Figure 2.1 Schematic diagram for Tighra-Kaketo water supply network
2.2.1 Lashkar (East) Lashkar (East) lies in the south-eastern region of Gwalior and has a population of 1,67,089 (2001 census) spread across 13 wards. The main sources of water supply for Lashkar (East) is the old treatment plant at Moti Jheel, through a 600mm (24�) diameter transmission line. This supply is distributed within the zone through overhead tanks, sumps and set of riders (pipes drawn from the main transmission line and other distribution lines). Overhead reservoirs exist at Amkho (capacity 4.54 ML/1MG), Jayenderganj (capacity 2.27 ML/0.5MG) and Lakshman Talliya (0.9ML /0.2MG). Besides two sump wells of capacity 90,000 litres also exist in the zone. Different sets of riders supply the zone and details of these riders, their sizes and number of connections they serve are available as Table 2.3. There are 287 tubewells in Lashkar (East) (5 nos defunct) and pumps of different capacities are installed on these. It is reported that there are 134 number of hand pumps in the zone but some of these are not in working condition. There are a total of 19,257 connections (representing 23,372 houses) while around 1538 illegal connections are also reported in this zone. Details of bulk consumers and water supplied to them is provided as Table 2.4.
Table 2.3 Details of riders in Lashkar (East) zone S. No. Rider's Name, Place
Ward No.
Feeding to
Total Number of Connections
Near Nasha Mukti Kendra
Vinay Nagar Sector 2, Central Jail Line, Mental Hospital and other areas
In front of Kanak Medical
Panchsheel Nagar, Shabd Pratap Ashram Sampurna Rampuri, Mahavir Colony
In front of Kanak Medical
Scindia Nagar, Kante Sa Bagh, Barwai Gate
In front of Kanak Medical
Sunaro ki bagiya, Ramdas Ghati Main Road
Ramdas Ghati
Pyau wali gali, Tiwari ke pas Adiwasi Mohalla
Ramdas Ghati Baljit wali Gali
Baljit wali Gali
Arora Bhawan Ramdas Ghati
Chawni area of Shinde
Pyau wali Gali, Karn sa ki Dyodi Main Road
200 50 500
Arora Bhawan
Adarsh Colony Area whole area
Chawni of Shinde
Whole Pardi Mohalla
Near Bijlighar
Rambagh Colony
In front of Dongarpur
Chawni of Shinde, Jaivilas
Palace, Parishad Bhawan
Khallasipura, Khateek Mohalla
To fill Laxman Tallaya sump
Aasmani Mata
Laxman Tallaya
Kuan of Nawab Sa Shinde ki Chawni, Police Chowki
Bagh of Kamalsingh
Palaka Bazar, Nagjara Road
31, 32
To fill tanki, 2 lakh gallon 250
Pool Bagh
Jyaendraganj Road
To fill Inderganj Tanki, 5 lakh gallon
Near Khalsa Hotel
Dal Bazar, High Court Road
Roshnighar Road, Harijan Basti Area
400 150
Near Bank of Allahabad
Khand Office Road
Roshnighar Road, Halipad
Near Achleshwar Mandir
Nagar Nigan Bangle and Roshnighar Road Ranipura, Mahal Gate, Chetakpuri Road
Near Telephone Exchange
Halipad Colony
Vijay Nagar
Cancer Hospital
Private Bus Stand Aamkhi
Pratap Lodge Pahari Area
Aamkhi Magistrate Bunglow
Aamkhi Magistrate Bunglow
Aamkhi Tank Road
Tanki Road
On Aamkhi Tanki
Sampurna Aankhi Pahari
200 20
Table 2.4 Details of bulk consumers in Lashkar (East) and water supplied Bulk consumer
Water supplied (Litres per day)
Water supplied (Gallons per day)
JA Hospital Connection I
JA Hospital Connection II
Scindia School (at Fort)
Cancer Hospital
Medical college
Central Jail
Narrow gauge Railway Station-I
Narrow gauge Railway Station-II
GR Medical College
2.2.2 Morar Morar zone lies in northeast part of the Gwalior city. Water to this zone is supplied from new treatment plant and then into the two overhead tanks at Morar and Thatipur. A 500 mm (20") dia CI pipe diverges from a 700mm (28") CI pipe leading from the new treatment plant supplies to the Morar tank. Although, the duration of supply in this zone is about one hour, the OHT at Thatipur gets empties within 40 minutes of supply. Thatipur tank is filled completely to its capacity. According to the authorities, the capacity of Morar Tank is 4.54 ML (1 MG), but the tank is filled only up to 5.2 m –5.3 m (17.4 ft), hence water supplied to this tank is only 3.93 MLD (0.86 MGD). The pressure at which water is supplied to the OHTs is 68m (6.8 kg/cm2) for Thatipur and Morar respectively. However, pressure available at the tail end of the distribution network is very low and hence these areas receive only 15 minutes of water supply in a day. Reported connections in the zone include 17,544 legal connections and 1318 illegal connections. Groundwater is also supplied through tube wells to this zone with 189 tube wells in this zone. Some consumers receive water from both tube well as well as Moti Jheel supply. But here tube well water is not disinfected at most of the places before supplying it to the consumers. Ward number 24 and 25 are supplied through groundwater and most of them get water through hand pumps as there are only few connections. The number of functional hand pumps is 336; out of which 25 are either dried or not working properly. There is one pressure gauge installed near Gole ka Mandir area that reads an average pressure of 27.5m (2.75 kg/cm2). Water is also supplied to bulk consumers directly from Moti Jheel. These bulk consumers are MES with 2.04 MLD (0.45 MGD), IAF with 0.9 MLD (0.2 MGD) and Railways 0.45 MLD (0.1 MGD). The number of illegal connections in this area till January 2005 was 2400, out of which approximately 1141 illegal connections have been legalized by August 2005. It has been reported that number of leakages per month is around 120, this information includes both active and passive leakages. Table 2.5 depicts the details of OHTs in different zones. 2.2.3 Lashkar (West) Water is supplied to Lashkar west zone from the new treatment plant through 4 OHTs, which includes old Gorkhi, New Gorkhi, Sikandarpur Kampu and Sanjay Nagar, as in Table 2.5. Sikandarpur Kampu and Sanjay Nagar tanks also receive water from Tube wells apart from Moti Jheel. Both old and new Gorkhi tanks have a capacity of 2.27 ML (0.5 MG) each; water is supplied to these tanks through a 500 mm (20") CI transmission line bifurcating (near Haddi mill) from another CI line of 28" leading from 22
the new treatment plant. Sanjay Nagar tank has a capacity of 0.9 ML (0.2 MG), which receives water from both Moti jheel and Tube wells. Sikanderpur tank has a capacity of 2.27 ML (0.5 MG), half of this capacity is filled with the treated water from new plant while the rest is supplemented by ground water. Water is also supplied through riders: 3 riders are directly connected from pumping mains coming from new treatment plant and 14 riders are connected to pipeline coming from Rakkas tank, which is fed by both old treatment plant and small portion by new treatment plant. Groundwater exploration is high in this zone also with around 248 tube wells in this zone. It is reported that a sluice valve at the Old Gorkhi OHT is leaking and hence supplies to adjoining areas are almost round the clock. Regularisation of connections has improved in this zone (from 635 regularised connections in 2003-2004 to 931 in 2004-2005). The number of connections disconnected in the year 2004-05 was 473 as compared to 301 in the year 2003-04 indicating that enforcement has improved. Table 2.5 Details of OHTs in different zones Tank
Capacity in ML (MG)
Filled capacity in ML (MG)
3.4 (0.75)
3.4 (0.75)
4.54 (1)
3.93 (0.86)
Gorkhi New
Lashkar West
2.27 (0.5)
2.27 (0.5)
Gorkhi New
Lashkar West
2.27 (0.5)
2.27 (0.5)
Sikandarpur Kampu
Lashkar West
2.27 (0.5)
2.27 (0.5)
Sanjay Nagar
Lashkar West
0.908 (0.2)
0.908 (0.2)
2.2.4 Gwalior Gwalior zone lies in the central region of Gwalior city and comprises of 17 wards. The water supply for Gwalior is mainly based on supplies from the Rakkas tank and Noorganj Tank. A large volume of water is also supplied through tube wells (300 in number), which are also connected to the distribution networks. Hand pump supply is also provided in the zone through about 565 hand pumps. However there is a huge uncertainty in the quantity of water supplied from these groundwater sources. Besides this, water tankers are also utilized to supply water in case of shortages. However, practically this is a daily routine and about 40,000 l of water is supplied everyday using tankers. The entire distribution network in this zone is estimated to be about 400 km. Rakkas tank supplies to the Gwalior zone through two pipes of 750 mm (30�) and 457mm (18�) diameter CI pipe respectively. A bypass mechanism is also in place to fill the supply line directly prior to the actual supply from the tank, in order to maintain pressure in the supply system. The bypass supply is for duration of 2 hours every day. The tank is filled up to the height of 4.26m (14 ft) and a dead storage of 2.13m (7 ft) is maintained throughout. The total number of households in this area is 21,379 and the total number of connections in this zone is 18287, of which 5100 connections fall in the JC mill, which has been closed down. As a result these connections do not contribute to revenue. About 3325 illegal connections are also reported in this zone. The capacity of Noorganj Tank is 2.27 ML (0.5 MG) and supplies to ward number 13 and 14 of the Gwalior zone. The tank is not completely filled to its maximum capacity and only 2.04 ML (0.45 MG) of water is actually supplied through the tank. A rider connection prior to Noorganj tank also supply to the Gandhi Nagar area of Gwalior zone. A number of bulk consumers are also supplied from the supply through Rakkas tank. Details of these bulk supplies in the zone are as Table 2.6.
Table 2.6 Details of bulk consumers in Gwalior and water supplied Bulk consumers
Water supplied in l/d (g/d)
Bhargave Ice factory-1
450 100)
Bhargave Ice factory-2
1000 (220)
Archaelogical IIIM J C Rayon Scindia School
658 (145) 32055 (7060) 103167 (22725) 26712 (5883)
2.3 Other observations Based on the site investigations and flow monitoring carried in Gwalior, the following conclusions can be drawn about the water supply system:
The current system for recording basic information on flows, connections, sources, etc. is highly unorganised and inaccurate. As a result, the information available from different sources when compared is ambiguous and contradictory. This makes the process of water balance analysis prone to a high degree of error.
There is practically no infrastructure to measure the amount of water in the network. Although some provisions such as level gauges have been provided at intermediate levels like OHT's, but they are not maintained properly. The only other provision made to measure flow at consumer end includes the meters provided at the office of the Archaeology department.
Updated information on available infrastructure like the size and length of pipe and the provision of valves is also inadequate. This complicates the process of flow analysis and measurement. As most of this information is not documented properly, the analysis relies only on estimates provided by the officials and these estimates vary from person to person.
Pipes from Tighra dam to Moti Jheel are made up of PSC pipes, which have a thickness of 150 mm (5.9 in) that makes difficult to monitor flow using flow meters in pipes of such thickness. However, following two methods can be used: – An ultrasonic flow meter can be used. The sensors can be glued inside specially made openings in the pipe wall. This method requires highly skilled work. The signal from the sensor to the meter will, therefore, not be affected by the PSC pipe wall. – An insertion meter (mechanical or electromagnetic) can also be used to measure the flows. This meter is inserted through any opening on the pipe (i.e. socket).
Pressure in different sections of the water supply network is not measured and only estimates of the pressure are available.
Adequate information on the water supplied to different wards or per capita supply in different wards is also not available to undertake an accurate water balance in the city.
Based on the investigations carried, it can be concluded that the present mode of operation is more like a crisis management exercise rather than a water management practice. As part of this study a rapid water balance exercise was carried out on the basis of the secondary information provided by the officials of GMC and other sources. The information base has been strengthened based on the comments received during the stakeholder consultation programme conducted in Gwalior.
Rapid Water Audit and Balance
A water balance study has been undertaken to estimate the status of non-revenue water (NRW) in the water supply system at Gwalior based on the available information. Water balance of a city requires accurate information on amount of water supplied to the city from different sources and amount of water consumed at the household level. This requires regular monitoring of water supplied using bulk meters at the outlet of treatment units and metering at intermediate levels like major pipe junctions and reservoirs. The consumption side can be assessed by metering at the consumer end (like household or industrial units). But in Gwalior, there are no bulk meters installed at the treatment units. There were few meters installed at the consumer end, out of which most of them were not in working condition. Hence, based on existing database system, an attempt has been made to estimate water losses in Gwalior city. It is difficult to carry out a water balance exercise in such a set of conditions and the level of accuracy of the calculations is based on a set of assumptions and thus prone to high degree of uncertainty. The results are indicative but yet useful for formulating WDM strategies and also serve as a baseline for extensive studies in future for the city of Gwalior.
3.1 Approach Most of the available information is crude estimate, so as a first step in our approach we have tried to estimate the validity of the basic information and hence make its quality better. Inferences have been drawn about the flow in different sections of supply network based on analysis of this available information and limited flow monitoring at the treatment plants. Flow monitoring was carried out using ultrasonic flow meters at the inlet and outlet of treatment plant, wherever possible. Flow was also measured at the inlet of open channels and public stand posts by crude methods. Based on analysis of this information and limited flow monitoring exercise, following data have been drawn about the flow in the different sections of supply network (refer Figure 2.1). It was thus necessary to make certain assumptions for carrying out the water balance. Though there is a high degree of uncertainty associated with the assumptions, best possible information has been used in consultation with the officials of GMC. Based on analysis of this information, following conclusions can be drawn about the flow in the different zones of supply network. 3.1.1 Supply from Tighra-Kaketo system 1. The Tighra-Kaketo system provides an assured drinking water supply of 190 MLD (41.85 MGD) to Gwalior. It was observed that the reservoir leaks at many points. A large volume of water was observed to have ollected around the dam. Water from this dam is supplied to the two treatment plants located at Motijheel (old and new) as explained in Chapter 2. 2. Measurement of flow in the canal leading to Moti Jheel, using crude method, suggests that only 155 MLD (34.15 MGD) of raw water is currently supplied to the treatment plants. It was observed that water from canal was also diverted for irrigation by local farmers and also used for washing clothes and bathing activities in general. 25
3. As the PSC pipes conveying water to the Moti Jheel plants was underground, leakage could not be ascertained in this stretch of network. 4. Leakages were however observed at the inlet to new treatment plant prior to the point of lime dosing. 5. Flow measured at the intake of both old and new WTP points that these plants receive 67.2 MLD (14.8 MGD) and 68.7 MLD (15.1 MGD) of water. Flow measured from dam and at the inlet of both the treatment plant indicates that more than 1o% of the water is lost in its conveyance between the dam and Moti Jheel. 6. Discharge from the Pump house, at the new treatment plant, observed on the common pipe (leading from the three pumps of 5 MGD) indicates a flow of 68.7 MLD (15.1 MGD). This indicates a loss of 7% in the treatment process. 7. Discharge could not be measured at the old treatment plant because of the non-availability of any adequate location to mount flow meters and scaling on the surface of old pipes. It was observed that many of the treatment units were leaking and hence the plant efficiency also gets reduced. Based on these observations and discussions, it is assumed that the efficiency of this plant is 85%, resulting in an estimated discharge of about 57 MLD (12.55 MGD) from the old plant. Based on the site visit of the old WTP, it can be concluded that there is a need for major renovation and repair. 3.1.2 Groundwater supplies Only estimates are available on the volume of ground water supplied to the city. Extensive supply is made through tube wells and hand pumps. There is a huge network of around 1000 tube wells, which are connected to pumps of different capacity ranging from 5HP to 20HP for supply either to the OHTs or to the distribution network. GMC has charge of these operations and its maintenance. A large number of hand pumps also account for ground water consumption. These observations suggest that more than 35 MLD (7.7 MGD) of water is supplied from the groundwater reserves.
3.2 Water supply in different zones 3.2.1 Morar Zone New Treatment plant at Moti Jheel supplies water to the Murar zone. A major portion of water is also supplied through tube wells. Flow metering at the outlet of new WTP points that Moti Jheel supplies 63.8 MLD (14 MGD) of treated water. A portion of this supply water 13.6MLD (3 MGD) is diverted to the Rakkas Tank. Remaining portion is diverted to Murar and Lashkar West zone. A 20-inch pipe carries water from Haddi mill to Murar under a pressure of 68 m (6.8 kg/cm2). About 189 tube wells supply water to this zone, which accounts to be 6.5 MLD (3.63 MGD). About 20000 lpd is supplied through stand posts and 30000 lpd is distributed through tankers. There are 17544 connections in this zone. Estimated number of illegal connections is 1318. Bulk consumption accounts for 3.4 MLD (0.75 MGD). 3.2.2 Lashkar (East) Zone The old treatment plant at Moti Jheel supplies water to this zone. 26.6 MLD (5.85 MGD) water is pumped from the pump house to Lashkar East wherein water is supplied mainly through riders and four OHTs. 287 tubewells augment water supply in this zone. Estimated consumption by the bulk consumers is 3.94 MLD (0.86 MGD). About 6.6 MLD (1.45 MGD) of water in this zone is supplied through the riders. 0.374 MLD (0.082 MGD) and 10000 lpd of supply is through standposts and tankers respectively. Number of authorised connections in the zone is 17689 with an average of 9 people per connection. Estimated illegal consumption by 1538 connections in the zone is 0.7MLD (0.15 MGD). 26
3.2.3 Gwalior and Lashkar (West) Zones Water supply for Gwalior zone and Lashkar (West) is primarily made through the treatment plants at Moti Jheel. Tube well supplies also contribute a significant fraction of overall supply. Based on the measured discharge at the outlet of pump houses of both the treatment plants, it is estimated that about 36.9 MLD (8.12 MGD) of water is supplied to Gwalior and Lashkar West zones through Rakkas tank. Individual supply to both these zones could not be ascertained because of gaps in the secondary information. These zones are therefore analysed together. About 300 tube wells extract 10.3 MLD (2.26 MGD) of water supply in the Gwalior region. Groundwater supplies in the Lashkar West zone is estimated to be 8.5 MLD (1.87 MGD) through 248 tubewells. About 6.7 MLD (1.47 MGD) of water is supplied to the Noorganj tank and to Gandhi Nagar (through a rider). Another 7.32 MLD (1.61 MGD) of water is supplied through a bypass arrangement at the Rakkas tank to networks in Gwalior zone and Lashkar West zone to build pressure in the network. Most of the water, in Gwalior zone, is supplied to the households through rider connections on the distribution mains. About 0.276 MLD (0.06 MGD) is supplied through stand posts and 40 000 LPD (8810 MGD) is distributed through tankers. An estimated volume of 1.34 MLD (0.3 MGD) is estimated to be tapped illegally through 3325 illegal connections in the Gwalior zone. Water supply to Lashkar West zone is from both new treatment plant and old treatment plant (through Rakkas). About 21.8 MLD (4.8 MGD) is supplied from New Treatment plant though 508 mm (20") pipeline from Haddi mill. Water is also supplied through riders. About 0.33 MLD (0.073 MGD) is supplied through stand posts and 20 000 LPD (4405 GPD) is distributed through tankers. Total connections in this zone are 24926 with an average of 9.25 people per connection. Number of illegal connections in the zone is 1795.
3.3 Water Audit using AQUALIBRE software A preliminary water balance/audit was undertaken for Gwalior using the AQUALIBRE software, which is based on the latest International Water Association (IWA) methodology. The 2005 version of the model is used here to evaluate the level of real losses occurring from a water distribution system based on traditional IWA top down water balance (Aqualibre Water Balance software Version 1.15, Ronnie Mckenzie, February 2005). The IWA Water Balance model calculates major forms of water consumption and water loss encountered in drinking water utilities. It also has a set of rational performance indicators that evaluate utilities on system-specific features such as the average pressure in the distribution system and length of water main. These features allow water utilities to make a meaningful assessment of water loss in the system, benchmark themselves with other water utilities and set performance targets (ILI). The model tells us how much of each type of loss that occurs in the water utilities. The key concept around this method is that no water is "unaccounted-for". All water supplied is accounted for in the components listed by using either measured or estimated quantities. Definitions of these water balance components are as follows: 1. System Input Volume: The annual volume input to the water supply system from different sources. 2. Authorized Consumption: The annual volume of metered and/or unmetered water taken by registered customers, the water supplier and others who are authorized like commercial and industrial consumers. 3. Water Losses: The difference between System Input Volume and Authorized Consumption, consisting of Apparent Losses plus Real Losses.
4. Apparent Losses: Unauthorized Consumption and all types of metering inaccuracies and data handling errors. 5. Real Losses: The annual volumes lost through all types of leaks, breaks and overflows on mains, service reservoirs and service connections, up to the point of customer metering. 6. Revenue Water: Those components of System Input Volume which are billed and produce revenue. 7. Non-Revenue Water (NRW): The difference between System Input Volume and Billed Authorized Consumption. Water balance for Gwalior city has been done on a zonal basis, as most of the secondary information is available on a zonal basis. Following assumptions were made in the analysis of these zones: 1. Decadal population growth rate is assumed to be 10% over the 2001 population values. 2. Assuming 10% losses in water treatment and on account of huge leakages in the treatment plant. 3. Treated water pumped to Gwalior city from Moti Jheel plants is 119.5 MLD (26.3 MGD) (error 10%). 4. Water supplied from Tubewells is estimated to be 35MLD / 7.7 MGD (error 25%). Supplies from tubewells are estimated assuming that TWs operate at 8172 litres per hour for 6 hours or 1800 gallons per hour for 6 hrs a day. It is further assumed 70% of the tubewells function at a given point of time. 5. Consumption by bulk consumers is reported to be 7.5 MLD (1.65 MGD) (error 15%). 6. Domestic supply from OHT tanks is reported to be 65MLD (14.31 MGD) (error 25%). 7. Supply from public standposts is estimated to be 1.0MLD (0.22 MGD) calculated assuming each standpost serves 8-10 households @20 lpcd / 4.4 gpcd (error 30%). 8. Supply from tankers per day is 0.1 MLs assuming tankers of 2000 l (440 gallons) capacity supply every day (error 10%) (as reported). 9. Estimated supply from riders is 15 MLD (3.3 MGD) (error 25%). 10.Estimated illegal consumption is 5.6 MLD (1.23 MGD) for 7976 connections with average consumption of 50lpcd (11 gpcd) (30% error). 11.Storage volume is assumed to be 65MLD (14.3 MGD), daily lossess as percentage of bulk storage is 0.25% (with percentage pressurised time as 20%). 12.System is assumed to be pressurised at 10m (error 15%) (as observed on some pressure gauges and based on discussions). 13.Average system trunk pressure assumed to be 6kg/cm2 (error 15%). 3.3.1 Calculated values for water balance in different zones The standard IWA water balance and figures for the estimated values for Gwalior are given in Figure 3.1. Absence of most of the data on leakages and reliability of the basic data has been a major concern in the calculations. The audit is therefore based on the best information available from different sources, which tends to be a mixture of assumptions that shall need formal vetting by the officials of GMC in due course. As more reliable data become available, the audit can be revised and a more realistic and reliable water balance can be developed. Comments shall be obtained on these 28
assumptions during the proposed stakeholder consultations and the calculations can be revised and more realistic water balance shall be developed. Based on these water balance calculations, done using AQUALIBRE software, following conclusions can be drawn for Gwalior city: 1. Authorised consumption accounts for only 57% of the overall system input volume. 2. With the available information, it is estimated that real losses are around 40% of the overall system input volume. 3. The best estimate for overall percentage of non-revenue water is about 44%. However because of an uncertainty of 23%, NRW in this zone could even be as high as 56%. Detailed calculations from the software are annexed as Annexure 3.1. Error percentage in calculation of all the values stated is given with the calculations from the software attached as Annexure 3.1. The calculated results here give an overall indication of existing trends and areas of improvement.
Figure 3.1 Standard IWA water balance
Introduction to Water Demand Management
To ensure long-term sustainability of water resources the focus of water management needs to shift from a traditional supply side management to demand side management, which has traditionally been neglected. Though augmentation of supplies would be required to meet the growing demand in urban centres, the future however lies in effectively controlling our demand for water resources and efficiently managing and using the available resources. The approach calls for the development of an integrated water demand management strategy, which would aim at reducing the losses in the system (UFW), improving operational efficiencies, promoting rationale use of water resources, equitable distribution of the resource and exploring alternative sources such as recycling of wastewater for non-potable uses. Implementation of such an approach would require reforms in terms of providing a regulatory, institutional and legal framework for delivery of services; tariff reforms which ensure financial sustainability of operations of the utility and; internal reforms within the utility which aim at improving the operational efficiencies and reducing UFW (Unaccounted for water) to acceptable levels. Water demand management refers to the implementation of policies and/or measures, which serve to control or influence the amount of water used and thereby lead to improved efficiency in production, transmission, distribution and use of water. The demand management approach differs from traditional supply-oriented approaches, by placing its emphasis on improvement management of existing systems rather than augmentation of supply. This method promotes optimum utilization of the available water resources through increased consumer awareness and better operational efficiency at the level of service provider. This approach should be viewed as complementing the supply management efforts and not replacing them. Economic concepts, such as effective water pricing are viewed as central to introducing demand management as one of the fundamental approaches to water management. Some of the expected benefits of WDM in Gwalior may include: 1. Deferring future investments in augmentation of water supply and sewerage systems. 2. Managing the system more efficiently and effectively till the proposed augmentation projects are implemented. 3. Reducing operational costs and improving the financial health of the service provider. 4. Bringing in more accountability and transparency in day-to-day operations of the Municipal Corporation. 5. Bettering service delivery and consumer satisfaction. 6. Identifying areas of improvement for future implementation. 7. Providing directions to several other initiatives being facilitated by the Government, the World Bank and ADB. Gwalior's water supply scheme draws 135 MLD of raw water for treatment while covering an estimated population of about 9.83 lakhs. Besides there is a huge withdrawal of groundwater through a systems of tubewells. The calculated average per capita supply therefore reflects that poor service delivery results primarily from mismanagement rather than any scarcity of water. Such a scenario therefore 30
builds the case for WDM. Important aspects that form part of WDM strategies in Gwalior are discussed in subsequent sections. Water demand management strategies can be broadly categorised and discussed under three heads: Technical, Financial and Institutional. Accordingly, this report discusses the proposed strategies and their implementation plan as individual Chapters 4, 5 and 6). A systems approach has been adopted while formulating different WDM strategies for Gwalior. Implementation of the proposed WDM strategies needs to be undertaken in a phased manner, as this shall require bringing in some changes in the existing framework. Short-term actions should ideally be implemented within 2 years of time and shall create a foundation for medium-term and long-term actions. Medium term actions need to be implemented within next 2 years of the implementation of short-term actions. Time frame for implementation of long-term actions could be decided on the basis of experiences and lessons drawn from the earlier phases of implementation. It is well realised that implementation of these strategies shall face different obstacles, which have been identified and an approach to address the same has also been recommended. The relevant institutions and stakeholders to be involved in the process of implementation are also identified. Some of these strategies1 need to implemented on a pilot scale and then replicated on a larger scale after incorporating lessons and best practices learnt in the process. It is further recommended that a Plan-Do-Check-Act (PDCA) approach, as shown in Figure 4.1, should be followed for implementation of the recommended strategies.
Figure 4.1 PDCA Approach
Not in any order of priority.
Water Demand Management Strategy: Technical
Technical WDM strategies described in this chapter essentially include actions such as metering, sectorisation, water auditing, leak detection and control, GIS, DMA and so on. All the above would help in improving the efficiency of water distribution. In addition tools such as GIS and approaches like establishment of DMA would also facilitate implementation of advanced techniques such as Pressure management, Night flow analysis etc in the long run. A total of fourteen strategies have been discussed in this chapter1.
5.1 Metering Accurate information on the quantity of water in and out of the system is paramount to track and control operational efficiencies as it would help in identifying and prioritising actions needed to reduce losses. One of the biggest problems facing water supply operations in Gwalior is the complete lack of information on the amount of water entering the system and consumed. Lack of metering/ flow measurement is one of the major reasons for the current state of affairs. In the above context, metering of water flows at the transmission, distribution and consumer end is one of the most important aspects of demand management. Metering of water flows is done basically for three purposes: – Measure the supply and consumer demand – Calculate water balance – Determine water loss Though traditionally most of the Indian cities did not have metering over the last decade, the importance of metering is being realised and many of the cities have installed both bulk management as well as revenue meters. Bangalore, Hyderabad and Chennai are some examples of the same. The cities of Bangalore and Hyderabad have installed meters at different locations in their network. This has helped in a better monitoring of flow and management in supplies and enhanced the financial soundness and popularity of these service providers contributed towards making these service providers financially sound and more popular amongst their consumers. Delhi Jal Board has also proposed installation of bulk meters on the transmission and distribution systems to facilitate greater operational control, better efficiencies and to ensure resourceful and equitable supplies to different parts of the city. Type of meters Water meters are available is size varying from 50mm to over 1500mm or even more depending of diameter of pipes. Mainly three types of meters (Picture 5.1) are used for measuring bulk flows: 1. Turbine meters 2. Electromagnetic meters 3. Ultrasonic meters 1
Not in any order of priority.
Table 5.1 gives a comparative analysis of various types of meters. Details of various types of meters are provided in Annexure 5.2a. Water loss occurs in all supply networks but it is the volume of water lost that decides the performance of the system. Currently there is a high level of uncertainty about the amount of water lost in the supply networks primarily because flow quantities are not monitored at all. Therefore there is a need to evaluate the flows accurately by installing flow meters at relevant locations, both on the transmission mains and at the consumer end in the distribution network. This exercise is particularly important for carrying out a water balance and facilitating an efficient management of water supply. Picture 5.1 shows the different types of meters. Table 5.1 Comparative analysis of various types of meters
Source: Daniel Meyers, 2006
Source: Daniel Meyers, 2006
Pictute 5.1 Types of water meters
The following section recommends the implementation plan for different sets of metering in the water supply network. Annexure 5.1 a highlights the proposed activity schedule for implementation of this strategy. From a management perspective, meters may be divided into Management meters and Revenue meters. While the former are used for the purpose of water balancing and management including estimation of losses the latter are used for recording the actual quantity of water used by consumers. The sections below detail out strategies for both management and revenue metering. 5.1.1Bulk management meters Bulk meters may be installed at various strategic locations in the entire network which may help in estimating the total volume of water at any given point of time and also estimating losses in the transmission/distribution mains. Details of proposed meters locations with types are given in Table 5.2. Picture 5.2 shows an electromagnetic flow meter installed in Bangalore. During the field visits conducted by the team, it was observed that there is practically no metering or Picture 5.2 Electromagnetic flow meter monitoring of the flow at most of the points where bulk installed in Bangalore flow is handled in the system. Consequently, all flow values reported are estimates based on the various assumptions and experiences of the staff. This information is, therefore, of poor quality and not very reliable enough to facilitate proper assessment and management of water supply. Hence, it is essential that the service provider realizes the significance of metering in water management and makes adequate provisions for metering in all existing and upcoming projects. 18.104.22.168 Implementation plan 126.96.36.199.1 Short term 1. It is proposed that in the first stage of implementation bulk meters be installed at outlet of new and old treatment plants and at the outlet of Rakas tank (near Haddi Mill). As the water passes through an open channel before entering New and old WTP, it is proposed that V-Notches or Level gauges should be installed to monitor the flow as well as to ensure the efficiency of treatment plant by comparing inflow and outflow. 2. Feasibility of installing other low cost metering options Picture 5.3 Open channel at the like V-notches and level gauges should also be outlet of Dam explored. For instance, a combination of a V-notch (at the inlet of WTP) and bulk flow meter (at WTPs outlet) can help in knowing accurately the extent of water lost in treatment, which can then be related with possible causes like changes in the quality of raw water at the source or concentration of contaminants or the efficiency of treatment process. It is also proposed to install V-notches to measure water flow in open channels (Picture 5.3) to assess water supplied to Moti Jheel from the dam.
Table 5.2 gives details of the proposed locations for bulk metering (in short term). Annexure 5.2 (a – b) lists details of different kinds of meters and the guidelines for the procurement, installation and calibration.2 Table 5.2 Proposed locations for bulk metering of flow (bulk management meters)
3. It is suggested that the reliability of installed meters be ascertained before implementation on a larger cale.Therefore bulk meters approved by agencies like FCRI (Fluid Control Research Institute), CWRPS (Central Water and Power Research Station), IDEMI (Institute for Design of Electrical Measuring Instruments) etc. should be installed. It is also advised that the meters should be capable of being logged using standard logging equipment and documented properly. A proper maintenance and calibration schedule should be worked out for bulk meters. 4. GMC should formulate a calibration and maintenance schedule for all bulk meters in association with the manufacturer/supplier of these meters. Another alternative is to sign an annual maintenance contract with the manufacturer/supplier for the upkeep of these bulk meters. 5. GMC should also consider purchasing portable flow meters for measuring flows at different intermediate locations so as to assess losses in any particular stretch. This can be used to detect any major hidden leaks in the systems and carrying out flow measurements wherever it is not possible to install permanent meters. 6. Gwalior has 12 over hand tanks, which supplies water to different zones and so installing level gauges at these locations will not be very costly. Regular monitoring of flow in pipes through portable flow meters will assure reliability of measurement from level gauges. To monitor supplies from storage reservoir level gauges should be installed. Currently crude methods are used for monitoring water stored in the reservoirs and it is recommended that all faulty level gauges be 2
The list is not comprehensive, yet could serve to be a good starting point for judicious selection of meters.
replaced within 2 years. This shall be useful for estimating water flow in and out of all reservoirs and shall also help in avoiding overflows, if any. Hydraulically controlled valves may also be installed at inlet of the reservoirs. These valves will automatically close if the reservoir level reaches a certain level – thereby preventing water losses and also avoiding manual operation. 7. Level gauges made of corrosion resistant material should be installed for an increased life. Proper selection of material is necessary, as corrosion of the level gauge due to the presence of chlorine has been observed in the past. There should be a possibility that these level gauges could be logged using standard logging equipment. 8. All bulk management meters must be connected to an online logging device to enable electronic data transfer to a database management system. Further location of bulk meters should be marked on GIS maps with regular updation of maps, including any changes in adjoining roads and pipe networks. 9. The existing procedures for documentation of water flows also need a re-look. Information from all locations, where bulk metering is done, should be compiled centrally (in electronic form) and analyzed regularly for variations in flow, losses in different stretches, and discrepancies in recorded/ reported values. 10.There is also a need to change the mindset regarding the significance of metering water flows. Capacities should be built for proper upkeep, calibration and troubleshooting related to the operation of all bulk-metering infrastructure (bulk meters, V notches, portable meters and level gauges). There is also a need to change the current attitudes towards the significance of metering water flows. 11.All new augmentation schemes should be planned in light of the information generated from the bulk metering exercise. Adequate provisions should be made for metering of the flow in all new augmentation and upgradation projects. 12.Further all management meters must be connected to an online logging device to enable electronic data transfer to a database management system. 22.214.171.124.2 Medium to long term 1. At a later stage, in the 2nd phase, meters should be installed at the inlet/outlet of select storage reservoirs and tube wells depending on local supply schematics. These locations should be representative of the entire infrastructure and should facilitate analysis of information on groundwater withdrawals and health of storage infrastructure like OHTs, GSRs and sumps. 2. Water supply in Gwalior is both from Moti Jheel water works (supplied through riders) and direct supply from tube wells. It is recommended that disinfected water from both the sources be collected in a reservoir before supplying it to the consumers. Such a scheme of supply shall help in ensuring appropriate water pressure in the mains (as riders shall become dysfunctional) and measuring the actual amount of water that is distributed in the supply system. 3. In a long term, GMC should think about investing amount in installing bulk meters at the out let of major water storage tanks in order to measure flows and carry out water balance. 4. Electronic open channel flow meters may be installed to measure the discharge at the inlet channel. 5. All the reservoirs must be connected to an online telemetry system wherein the reservoir levels can be transmitted (in real time) to a central computer. This will help in avoiding manual checking of reservoir levels and also help in planning for daily activities. Further the online data logging system for flow metering devices may also be connected to the same telemetry system. 36
5.1.2 Bulk revenue meters These meters are used to record flow that provides inputs for generating bills. Currently revenue from different bulk consumers, commercial and industrial consumers is realised on the basis of estimated flows (or flows recorded long back). Since resistance to metering is likely to be the least in case of large bulk consumers, it is recommended that GMC may initiate the consumer metering process by installing meters in all bulk/commercial connections. As mentioned in the water balance and financial assessment, although bulk consumers like MES, IAF, Railways, J A Hospital, etc., (17 nos) consume less than 5% of the total water supplied, they pay a high percentage of the total revenue realised. The revenue realised from bulk consumers has been declining over the years. It is therefore necessary that the flow supplied to bulk consumers be measured accurately and billing be done realistically. Moreover, there is no difference between commercial consumer and industrial consumer, GMC supplies water to both of them at the same rate. This exercise shall be useful to impress conservation at the end of these bulk consumers and shall also better revenue realised from these sources. There is also a possibility that resulting conservation by bulk consumers will generate additional water resources that could be diverted to the water scarce regions/ uncovered areas of Gwalior. This would thus also check an inequitable distribution of domestic water supplies. 126.96.36.199 Implementation plan 126.96.36.199.1 Short term 1. There is also a need to redefine the existing definition of bulk consumers. Currently the definition is based on the revenue realised from these consumers. It is however recommended that the redefined list should cover all consumers withdrawing bulk volumes of water. Accordingly the proposed list shall also include domestic consumers drawing water at one point before supplying to their respective inhabitants. Table 5.3 lists the existing bulk consumers and proposed list of consumers. Table 5.3 Proposed locations for installation of bulk revenue meters Bulk Consumers
Metering using
Mechanical meters
Mechanical meters
Mechanical meters
Bhargav Ice Factory
Mechanical meters
Archaeological Survey of India
Mechanical meters
Mechanical meters
J C Rayon
Mechanical meters
JA Hospital
Mechanical meters
Scindia School (at Fort)
Mechanical meters
Cancer Hospital
Mechanical meters
Medical college
Mechanical meters
2. It is recommended that bulk revenue meters should be installed at the inlet of all bulk consumers (refined list) like J.A. Hospital, Scindia School, etc., at their own cost and industrial consumers. The cost of the meters and their installation should be borne by the respective consumer. Bulk meters should be installed at mutually decided locations and GMC should guide the consumer on meter procurement and installation. Installation, maintenance and calibration of these meters should be on mutually decided terms. Water losses on downstream of the installed meter should be a responsibility of respective consumer. GMC could however provide guidance to the bulk consumers on tapping losses and wasteful use. 3. In certain cases, where bulk meters are available, calibration/replacement of existing meters should be initiated immediately. 4. GMC could consider signing a 3-5 year agreement with these bulk consumers for assured supplies to them based on their current and likely demands. Such an agreement could also cover some clauses on quality of service by GMC and should ensure 100% revenue realisation. 18.104.22.168.2 Medium term In the medium term, all non-domestic connections should be metered. 5.1.3 Domestic consumer metering All domestic consumers (domestic and commercial) in Gwalior are currently billed on a flat rate basis, as no functional consumer meters exist. Such a billing system encourages wasteful use of water as consumers pay the same flat tariff irrespective of the amount of water used. As discussed subsequently in other chapters, tariff reforms is one of the most important tools for Water Demand Management as it is imperative for consumers to realize the economic value of water. Charging water of volumetric basis one of the first principles of tariff reform. Further, with such a billing approach, no one considers water to be an economic good and engages in wasteful and careless use. Absence of metering coupled with irrational tariff structure results in huge losses to the service provider and in inadequate funds for proper O&M. But at the same time, GMC should also ensure an adequate supply to its consumers before taking any initiation on domestic metering. Experiences from reforms in the electricity sector indicate that metering and tariff rationalisation is the basic premise for effective demand management. Accordingly different service providers like Bangalore Water Supply and Sewerage Board, Chennai Metropolitan Water Supply and Sewerage Board (CMWSSB) have metered all of their consumers and rationalised tariff structures enabling better water management, effective service delivery and greater financial sustainability of their operations. Annexure 5.1b highlights the proposed activity schedule for implementation of this strategy. Some of the areas recommended for pilot study are mentioned below: 1. Ward number 17, which falls in Gwalior zone, can be considered for pilot study area. Although this zone is not a discrete zone, yet distribution from different sources can be carefully controlled through valves. 2. Indra Nagar in Morar Zone has 250 household connections, this area is mainly fed through tube wells and some of this area also receives water from Moti Jheel water works. This is not lying in a discrete zone but by operating valves, this area can be made discrete.
126.96.36.199 Implementation plan 126.96.36.199.1 Short term 1. Representative pilot areas need to be identified in select water supply zones where domestic meters can be installed and their performance be monitored properly. GMC could consider identifying 3-5 areas, preferably in different zones, for such pilot implementation. The pilot area identified for such implementation should be selected judiciously in line with the following considerations:
The pilot area should have high revenue realisation so as to also assess the financial viability of metering water supplies
The pilot area should have limited number of connections (500-1000) and adequate service delivery levels in terms of quantity and pressure.
The source of water to the selected pilot area should ideally be from a single pipe connection fed from reservoir / OHT / Booster pumps
Adequate cooperation from households where meters are installed like openness to the idea of metering, willingness to pay for better service, and facilitation of round-the-clock access to monitor individual meters and consumption patterns.
2. During the pilot phase, the water utility should consider installing different makes of domestic meters to assess their reliability and suitability for the local conditions. 3. A list of approved manufacturers should be prepared based on the experience of GMC and subject to review of the accreditations provided by agencies like FCRI, CWRPS and IDEMI etc. 4. GMC should properly document information on their experiences vis-à-vis meter installation, calibration, recording and performance; consumer reaction to metering; revenue realisation and; resource conservation etc. This information shall be handy for future implementation on a larger scale. 5. Modifications need to be made in the existing system of water bill generation and collection, which is based on flat tariff structure. Therefore GMC should also train the staff both about the advantages of metering as well as the metering and billing procedures. 6. There is a need to parallely create consumer awareness at a city level, on the likely benefits of metering. This should also address likely misconceptions on metering like the life of meter, its accuracy and apprehensions on inflated bills, while linking it to correct installation practices. 7. It should also be ensured that any tariff restructuring is undertaken in a manner, which avoids any tariff shock as it may create opposition to metering. 8. Implementation on a larger scale should be done in phases and wards/zones for the next phase of implementation should be identified alongside. 9. Possible arrangements for the installation and cost of meter should be worked out in advance before scaling up on this activity. Different options that could be provided to a consumer include: a. Option 1: Consumer gets the meter installed from a select list of manufacturers approved by GMC. b. Option2: GMC bears the responsibility to install a domestic meter at the consumer end. The consumer may be given the option to either pay the entire amount (towards meter cost and its installation) immediately or as instalments spread over a period of 12-18 months which may be included as meter rental, which may be included in the water bill as meter rental. 39
These options have to be worked upon judiciously as Option 1 may have fewer takers on account of poor willingness or the costs involved. The success of Option 2, on the other hand, depends on the collection efficiency of the system. 22.214.171.124.2 Medium term 1. Successful implementation on a pilot scale needs to be followed by the installation of meters in other areas with similar characteristics in terms of consumer awareness, revenue realisation and water supply. It is recommended that the entire billing system should be modernised within 3 years of implementation (discussed in the section on Institutional reforms). 2. It has been observed that more than one household is connected on a single connection. GMC should discourage such a practice and should have an updated database of consumers by the end of 3rd year of implementation. 22.214.171.124.3 Long term (about 4-5 yrs) In the long term all connections (domestic, consumer and industrial) should be metered and linked to a modern billing system. Obstacles in implementation The process of metering is likely to face a lot of resistance from different stakeholders like consumers, politicians, decision makers, and staff etc due to the following reasons: 1. Costs involved in the process 2. Quality of service provided currently 3. Apprehension of an increase in water bill 4. Increased workload for the billing staff, especially the collection staff 5. Political sensitivity of the issue 6. Limited consumer awareness on the need for water conservation etc. It is therefore essential that within the first two years of implementation, a consensus on the subject be built amongst all stakeholders. This shall require showcasing the advantages of a metering system and disseminating the success story to the consumers in particular. Implementation using the PDCA approach shall be handy for meeting the above obstacles. Institutions and Stakeholders to be involved 1. Consumer awareness groups 2. Resident Welfare Associations 3. Water meter manufacturers/suppliers 4. Bulk consumers 5. Funding agencies 6. Staff of GMC and PHED 7. Media 8. Elected representatives and Politicians 9. Research and Engineering institutes
5.2 Development of database management system using GIS One of critical bottlenecks in implementation of water demand management is the lack of updated data on various aspects of water supply. Database generation is an important step to account and analyze the performance of GMC and also equip it with necessary information required for decision making at all levels. Thus it is imperative to couple WDM strategies such as metering with an effective data acquisition, compilation and processing system to use it as an aid for decision-making. A database management system would essentially consist of formats and tools for collection and compilation of data. It is thus proposed to set up a spatial data base system wherein all records related to water operations under the GMC are maintained on a GIS platform. Database management can be categorized into collection as alphanumeric and maps format. 5.2.1 Data requirements The utility needs to record data basically on three parameters: Consumer data, operational data and asset data. A framework for a GIS based database system is given in Figure 5.1 below.
Figure 5.1 A framework for a GIS based database system
Although some data sets are available with GMC, current information is not sufficient for an efficient and effective management of resources. It is thus recommended that a robust database should be maintained on both the supply side as well as the consumer end. Given below is an indicative list of the datasets to be collected. 5.2.2 Asset data 1. Source details: Number, capacity (yield), type etc. 2. Treatment plant details: capacity, units, pumping details etc. 3. Transmission mains 4. Gravity mains: Length, MOC, Diameter etc. 5. Pumping mains: Length, MOC, Diameter etc. 41
6. Distribution network: Length, Diameter, MOC etc. 7. Number and capacity of reservoirs like OHT's, GSR 8. Pumping stations: Number of pumps, capacity, rated capacity, efficiency etc. 9. Appurtances: Details of joints, valves etc. 5.2.3 Operational data 1. Flow records: 2. Details of flow meters: type, specifications etc. 3. Flow records: Instantaneous and totalised flow records to be maintained as a spreadsheet. 4. Supply timings 5. Complaints 6. Leaks/Bursts 7. Pressure records On the consumer end, database should include: 1. Number of zones in the city 2. Name and number of each ward 3. Population in each ward 4. Number of legal and illegal connections 5. Per capita consumption based on domestic meter reading 6. Customer Details: Details of domestic, commercial and industrial consumers: type and size of connections, metering records etc. 7. Billing records 8. Property details Although these databases are generated in an alphanumeric format, these can also form an attribute in GIS database by linking it with maps and locations. Further it is very important that this information is updated timely. The data acquisition should capture any changes in the above parameters and suitable modification should be made to the database. 5.2.4 Map format Conventionally, data on the pipeline networks were collected and stored in paper format. In most of the cases these information are just sketches rather than a proper network layout maps. Such an approach of network data management and storage is not only labour intensive and prone to errors but also less useful for efficient utilisation and management. Further with frequent developments in the network, updation of such paper-based maps is a laborious assignment. Unlike paper maps, digital maps can link database features to supporting documents making the updating process relatively simple, faster and accurate. Moreover, paper maps degrade over the years whereas digital maps can be stored and easily upgraded from time to time. Digital maps also ensure that all knowledge is not lost in the case of changes in guard/responsibility and enable linking of information with other tools for management and analysis.
Once such a comprehensive and accurate information base is created in GIS platform, it can be easily shared/transferred for use by different departments (based on the scope of their work) and such an approach of centralized data management system makes the process of updation and management of information efficient and easy. As a starting point city maps containing information on water supply network for the Gwalior city is available as paper maps on an individual ward level. As part of this project's activities, and at the beginning of the process of a development of a comprehensive information and management system, existing ward wise Auto CAD maps have been converted into a GIS database (ArcGIS, ESRI) and integrated to generate a city level holistic information base. The greatest advantage of such a system is that the data and information are geographically referenced that supports accurate measurement based on maps and the facility of location based search. But an attempt has been is made by engineers to document different information like number of connections, number of illegal connections, revenue collected from each ward, etc. in a tabular format. Such information can easily be filled in GIS database, once accurate ward maps are generated. This can therefore facilitate a better understanding of the system and hence improved management. GIS maps were prepared by TERI for Gwalior based on existing paper maps at scale 1: 5000. These maps were geo-referenced and different layers were created from it. Table 5.4 shows different layers and its properties. Pipe material and diameter were used as mentioned in the map provided by Municipal Corporation. Since existing maps were old and it was not accurate, the accuracy of prepared GIS maps will be affected. But these maps serve as a starting point of big project for GIS database. As the existing maps are obtained from various sources and of different scale, integration of such data and information poses the major challenge in GIS database generation. Figure 5.2 shows a part of Gwalior generated in GIS environment. GMC is also planning to carry out extensive Arial and topographic survey for Gwalior city at very high scale with the help of NRSA. This will certainly help in creating accurate maps for future use. In addition to the water supply network information the database also contain several other ancillary information that is important for efficient management of water supply resources.The data comprises of ward maps, water distribution network, tanks, pipes, railways etc. for entire Gwalior city in GIS format.
Figure 5. 2 Map showing a part of Gwalior in GIS
As the existing maps are obtained from various sources and of different scale, integration of such data and information poses the major challenge in GIS database generation. Figure 5.2 shows a part of Gwalior generated in GIS environment. However, it is worth noting that, such a database is developed based on secondary information and relatively low level of accuracy are always prone to certain level of inaccuracy, specially in the case of pipeline network distribution. In this regard it is highly recommended that accuracy assessment of such database need to done based on stakeholder consultation and selective ground survey. Such an database can be considered as a baseline and further refinement, updation and development can be done based on information to make it more accurate, updated and comprehensive. Details of development of database in Bangalore Water Supply and Sewerage Board are attached as Annexure 5.3. The Table 5.4 provides the details of various GIS themes generated under the current study and the information associated with these themes. Soft copies of the GIS maps prepared by TERI are being submitted with this report. Annexure 5.1c is the proposed activity scheduled for implementation of this strategy.
Table 5.4 Details of various GIS themes
5.2.4 Implementation plan 126.96.36.199 Short term 1. Since the existing maps were in paper maps, TERI has already converted them into GIS format, which will create a base for generating maps in GIS format. However, extensive primary survey needs to be conducted to update existing information (more accuracy is needed) using differential Global Positioning System (GPS). Attributes that need updation include valve locations, pipe characteristics, location of leakages etc. Survey should be accompanied by detailed engineering drawing of entire water distribution network. 2. A separate department should be formed in the GMC to handle such databases and carry out updation of data on a regular basis. Unless GMC takes concrete steps to update the GIS database on a regular basis, the very purpose of the exercise shall be defeated and the database shall become outdated. Any addition or alteration in the existing water supply infrastructure should be communicated to the cell responsible for maintaining this database. Besides information on adjoining roads, railways, important buildings, other pipelines etc also needs to be updated on this database regularly. It is also recommended that the database be updated on a quarterly basis. As there is no Sewage Treatment Plant (STP) located in Gwalior and entire sewage is disposed into streams, a analysis can be done for impacts of sewage on neighbouring areas and location of treatment plants. 220.127.116.11 Medium term Details of all attributes at ward level like revenue generated in each ward, concerned staff and their contact details; staff strength; number of legal/ illegal connections, number of leakages reported/ unreported and other administrative details should be included. Most of these data sets are already available with Municipal Corporation, so it is easy to update the information in GIS database. Some of these information have been already incorporated into the GIS database prepared by TERI. This information shall be very handy to assess the performance of each ward on a regular basis and benchmarking performance. These details should be updated regularly every financial year.
126.96.36.199 Long term This database should be integrated with a consumer MIS wherein information about consumption, feedback etc is also recorded and could be analyzed. The most important part is regular updating database across all divisions for better management and revenue collection. Obstacles in implementation 1. Initial updation of maps can be very costly and laborious as primary survey needs to be carried out 2. Limited capacity within the GMC 3. High installation cost 4. High skilled labours 5. Administrative hindrances for new cell formation Stakeholders 1. Staff of GMC/PIA cell and PMU (UWSEIP), GMC and PHED 2. Research and engineering institutes 3. Private GIS consultants 4. Funding agencies
5.3 Water audit and balancing Water audit and balancing provides a comprehensive appraisal of the availability, distribution, utilization and the extent of losses in the system. Such an assessment is extremely useful in resource assessment, policy formulation and decision-making particularly on future investments in infrastructure.Water audit and balancing provides a comprehensive appraisal of the available water resources, their utilization and the extent of wastage in the system. Such an assessment is extremely useful in resource assessment, management and development of water policies, decision making particularly on future investments in infrastructure and information management. A water audit, therefore, is a thorough examination of water systems records and field control equipment and helps in accounting for all the water distributed through a water system. In simple terms, auditing the water usage implies doing a mass balance study wherein the inputs to a system are compared with the aggregate of consumption and outputs to assess the difference, which is the loss or unaccounted water. Water audit exercises have been carried for urban water supply systems in the cities of Bangalore, Jaipur, Delhi, Hyderabad to assess the extent of water and revenue losses in the supply system and to identify areas where improvements need to be made. As concluded from the water balancing exercise (in Chapter 3), basic information for water balancing is either unavailable or only conflicting information is available. There is therefore an urgent need that significance of such an exercise in water management be understood well and all missing information be generated to facilitate water auditing and balancing. There is also a need to procure necessary infrastructure and develop capacity to undertake water audits on a regular basis. Some of the areas recommended for pilot study are mentioned below: 1. Ward number 17, which falls in Gwalior zone, can be considered for pilot project area. Although this zone is not a discrete zone yet distribution from different sources can be carefully controlled through valves.
2. Indra Nagar in Morar Zone has 250 household connections, this area is mainly fed through tube wells and some of this area also receives water from Moti Jheel water works. This is not lying in a discrete zone but by operating valves, this area can be made discrete. 5.3.1 Implementation plan 22.214.171.124 Short term 1. As no meters are installed currently, the first step in this direction shall be the installation of bulk management meters at appropriate locations as mentioned in the earlier section. Water audit should then be undertaken in pilot areas to assess extent of water losses in the network. These pilot areas should ideally form a closed and discrete loop and should be representative of the condition of the water supply network in different stretches of the city vis-Ă -vis its age and health. 2. The audit exercise should preferably be carried out in those networks (transmission and distribution) for which accurate information is available on parameters like layout, size, material of construction, branching of the distribution network etc. In cases where such information is not available or accuracy of information is questionable, water audit exercise should be used as an opportunity to update maps of the distribution network. 3. Water auditing of riders becomes a difficult task, as there are about 40 riders in Lashkar zone alone. Monitoring / metering all riders becomes an expensive task. Apart from these, the area is also fed by number of tube wells. GMC should try to phase out supply from the riders slowly. 4. During the pilot exercise, auditing should be carried out at regular intervals to obtain multiple sets of information, preferably for two seasons, so as to have a better understanding of the behaviour of system under different demand scenarios. 5. GMC should select a team and build their capacity to undertake auditing and balancing in pilot areas. This team should then train relevant staff in other zones on how to carry water audits and translate the lessons into better water management practices. 6. GMC should consider procuring more portable meters for carrying out water audit for riders, tube well supplies etc. Capacities of the staff need to be built on undertaking such an exercise and on operation, calibration and upkeep of such infrastructure. 7. An auditing of the performance of new and old WTPs should also be carried out to gauge the extent of water lost during treatment and take possible measures upstream of treatment and within the treatment process. 8. Water auditing should become a regular feature and hence a part of the planning phase for all existing, upcoming and up gradation projects. Planning phase should consider making provisions, as and where ever possible, for locations where flow metering could be done. This would facilitate water audits and balancing on such networks. 9. The data set generated from water balancing should be used to calculate ILI for pilot areas and suggest measures to be taken to reduce the index value. 10. There is also a need to undertake auditing of water usage at the consumer end to build a case for conservation at the consumer end. This exercise should be initiated at a pilot scale to make the consumers more aware about efficient practices of water usage.
184.108.40.206 Medium term 1. A comprehensive water audit program should be undertaken in a larger area and should also cover water usage patterns at the consumer end. The ultimate aim of this phase of the exercise should be to reduce leakages, wasteful use of water and better revenue realisation. This exercise shall also help in:
Reviewing the existing distribution network to identify stretches where pipelines need to be replaced
• • • • •
Check and calibrating meters Analysis of water supplied for, free Leakage control Equitable distribution of supplies Share of each source in water supplied
2. Once bulk meters are installed in OHTs and GSRs and respective households are metered, auditing should be carried out at these locations. 3. The data set generated should be used to calculate ILI on a city level and frame policy for repair and replacement of the pipe infrastructure. 220.127.116.11 Long term Once metering is done across the city, water balancing could be done on a zonal level regularly so as to continuously monitor the quality of service delivery and analyse possible impacts on any proposed changes in the supply scheme. Obstacles in implementation The process of water auditing and balancing is likely to face many challenge on account of: 1. Costs involved for procuring water flow meters 2. Inadequate information on layout of pipelines 3. Identification of pilot zones and preparation of discrete areas for water auditing 4. Manpower required for carrying such a comprehensive exercise and its capacity Institutions and Stakeholders to be involved 1. Consumer Awareness Groups 2. Resident Welfare Associations 3. Staff of GMC and PHED 4. Research and Engineering Institutes
5.4 Sectorisation/District metered areas Gwalior is currently divided into 4 zones and 60 wards with population in each ward varying from 7000 to 25000. The existing demarcation of wards and zones is more from an administrative perspective and probably does not consider effective water management (based on the hydraulics) as one of the criterion for delineation. Although major advantage in Gwalior, as compared to Bhopal, is that water supply in each zone is usually independent of supply to other zones. Hence, a reservoir 48
does not feed more than one zone except Rakkas tank. Each ward gets water supply from different reservoirs at different times of the day and some wards get water from riders drawn from the transmission mains. It is recommended that the entire city be divided into small discrete units called District Metered Areas (DMAs), for effective management of the water supplies. This assists in a better monitoring of the water-supplied vis a vis the quantity supplied (total and lpcd), water consumed (total and lpcd), leakages in the system before and after the property line/consumer meter. Such sectorisation on hydraulic principles also assists in:
A uniform and rational allocation of resources to each unit (water, finance, manpower, subsidies etc); effective and systematic maintenance and, better revenue realization etc.
• • •
Comprehensive rehabilitation of the water supply facilities in the DMAs Implementation of pilot projects in a small area and showcasing best practices Establishing costs of introduction of DMAs, metering programme and network
5.4.1 Implementation plan 188.8.131.52 Short term 1. As Gwalior is supplied by 12 reservoirs, DMAs can be established in one of these areas. As water is also supplied from tubewells, monitoring and accounting of flow from tubewells are also required. 2. In a short term, it is recommended to identify DMAs in some of the progressive zones of Gwalior. These locations should preferably be representative of the different operational conditions in the city vis-à-vis age of pipelines, topography of the area, duration of supplies etc. The pilot project implementation can be conducted in areas such as ward 13 and 14, in the Gwalior zone, supplied by Noorganj tank, ward 31 supplied exclusively by tubewells or in the area supplied by Laxman Tallaiya in the Lashkar West zone. 3. As most wards in the city receive water from multiple sources from both Moti Jheel and tubewells, the city should be divided into various sectors with 20000-30000 connections at a time, based on the distribution network and supply scheme. Discreetness of the zone should be preserved, at least by controlling the valves, if not by a separate set of pipes. 4. Identify feeding points for each DMA and install bulk meters at all feeding points. 5. Check the functionality and accessibility of all valves, pressure gauges in the DMA. 6. Remove interconnections with other supply areas as much as possible. Isolate the selected DMAs and test whether full isolation has been achieved. 7. A network analysis of the water flows should also be undertaken in the identified DMA to comprehend behaviour of the system. This shall be useful for implementation of any changes in the network ranging from leakage repairs to augmentation to metering and to planned maintenance etc. 8. Execute a minimum night flow test as an initial indication of the level of physical leakage and to determine the need for system rehabilitation. 9. Test run the possibility of a round the clock water supply to the identified DMA and analyse performance vis a vis total leakage, consumption patterns and water losses.
18.104.22.168 Medium term 1. An internationally accepted norm is to have a zone with 2000 to 4000 properties. However, it is advisable that DMAs (in the second phase of implementation) be identified in the city in line with the existing administrative zoning, and layout of the distribution mains and valves. 2. Water supply to each zone should be properly controlled by valves and a boundary of each zone should be defined and mapped in the GIS database. 18.104.22.168 Long term 1. In the long term, the entire Gwalior city should be divided into DMAs and each boundary should be mapped into a GIS environment. 2. All zones should be monitored and flow from each zone should be documented properly. Such documentation helps in network modelling and in accounting of flow in each pipe across the network. 3. Modern techniques such as pressure management, night flow analysis etc should be used for reducing losses. Obstacles in implementation As of now the entire system has been laid out in an unplanned manner on 'as and when/where ever required' basis. The city has also developed in an unplanned way. Therefore, limited information or information of a limited accuracy is available on the system layout, especially of the distribution network. Further, accurate information is not available about the scheme of supplies and the quantities supplied. As a result of all this lack of adequate information and the uncertainties involved, it is difficult to develop DMAs in the city and demonstrate the usefulness of the same. Therefore, a pilot stage implementation is suggested initially. Limited capacities of the staff and their awareness on usefulness of the concept could be another major obstacle to be addressed before implementation. It would therefore be difficult to justify the cost of such an implementation. It is desirable that accurate information should be available on network before such an implementation. Therefore, for this activity to be undertaken, accurate GIS map for the pilot DMA area should be ideally available.
5.5 Energy auditing Water utilities are intensive energy users and continually seek ways to improve their productivity through the effective and judicious use of energy. An effective manner of reducing energy consumption is to conduct an energy audit. An energy audit involves a critical examination of an energy consuming facility. It determines the performance of a facility in terms of energy use and relates its energy consumption to production and compares it with the performance of similar organizations. An energy audit is an imperative first step for any organization interested in implementing an energy management programme within their facilities and assists with identifying areas where potential savings can be made. Increasing the energy efficiency will enhance the facility's operations and products in numerous ways:
It can reduce energy costs: Reducing the energy expenses can help the water utilities to redirect the resulting savings to improve the facility. For municipal water utilities especially, the energy cost reduction can help achieve a lower water tariff, increased service connections, and additional operational funds for expansion or improvement of service.
It can help the utility to improve the quality of its product. For example, improving pump performance in a water utility can ensure the right volume and pressure of water that needs to be supplied.
It can lead to corollary benefits such as reduced maintenance costs and improved worker safety. It can also help in reducing pollution.
Municipal water utilities in India spend more than 60 per cent of their budgets on energy used for water pumping. The CII (Confederation of Indian Industry) estimates that the typical Indian municipal water utility has the potential to improve water pumping system efficiency by 25 per cent. Box 5.1 highlights the experiences of some of the Municipalities'/Municipal Corporations' post energy auditing. Water from the Dam is supplied through gravity for about 17 km, hence there is no pumping of raw water till Moti Jheel water works. GMC's expenditure on power consumption for pumping water from Moti Jheel accounts for a considerable percentage of the overall expenditure. This expenditure head therefore provides a big opportunity for improvement and thereby generate more financial resources for other activities. 5.5.1 Implementation plan 22.214.171.124 Short term 1. Pumps are operated under throttled conditions in an attempt to deliver water to all reservoirs, which returns in a huge loss of energy.Water from Moti Jheel is pumped directly into reservoirs, which necessitates operation of pumps at higher than the required head for some of the reservoirs. It is recommended to use separate boosters near OHTs or replace the existing pumps. Morar / Gorkhi Tank can be selected as a pilot project for filling up tanks using boosters. Picture 5.4 Pump house at Old WTP 2. Energy audits are specifically required for both new and old treatment plants, supplying treated water to Gwalior city. As a part of pilot project, energy audit can be carried out at the old treatment plant (Picture 5.4).
3. As the water is pumped directly to reservoir and tapping is done on the rising mains, the system pressure reduces making pumps to operate at low heads. This in turn reduces the supply made to areas like Amkho tank. 4. Replacement of old pumps and proper management of transformers will reduce power consumption. 5. Expenditure on power consumption should be recorded and tracked by installing energy monitoring systems near all pump houses and treatment plants. 6. In a short term, this activity could be out sourced to a consultant. There is a need to simultaneously build the capacities of GMC staff on energy audit.
22.214.171.124 Medium to long term 1. A team of Mechanical and Electrical engineers should be constituted in PHED/ Municipal Corporation to carry out regular energy audits. 2. Energy audits of all pumps and transformers at each treatment plant needs to carried out regularly, at least once in every six months.
Box 5.1 Experiences post energy auditing in some municipalities/ municipal corporations I. Energy efficiency drive – Karnataka In May 2002, the Alliance to Save Energy launched its state-wide municipal water and energy efficiency outreach programme to disseminate the concept of water in the south Indian state of Karnataka. The Alliance entered into a strategic partnership with the Karnataka Urban Infrastructure Development Finance Corporation (KUIDFC). As part of a sustained capacity building process, the Alliance helped establish an EMC (Energy Management Cell)at KUIDFC and trained its engineers in energy efficiency best practices. In its initial stage of capacity building, the Alliance identified four municipalities of varying sizes and located in different revenue divisions as pilot cities. These cities were Hubli-Dharwad, Mysore, Bellary City and Tiptur-Arasikere. The Alliance, in partnership with The Energy Resources Institute (TERI) facilitated energy audits of bulk water supply systems and efficiency assessments of street lighting systems in these municipalities.The resulting audit reports indicated a tremendous potential for energy and water savings with limited financial investments and rapid payback periods. The proposed energy savings measures are of two types: no cost and low-cost, and larger capital investments. The no-cost/low-cost measures have a pay back period of less than a year and involve measures such as surrendering excess contracted electric demand, maintaining a good power factor for electrical equipment, improving water flow distribution, rescheduling pump operations and improving pumping efficiencies. These simple measures account for about 15-20% of the energy and financial savings. Measures requiring large capital include replacing inadequate pipelines, replacing impellers, installing energy efficient motors and replacing old inefficient pumps with energy efficient pumps that are better integrated to the system. The implemented energy savings measures in these audited bulk water supply systems of the four pilot municipalities will result in an energy savings of close to 8.2 million kilowatt hours annually, thus reducing 8200 metric tons of CO2. The simultaneous reductions in municipal water waste, through more effective supply and distribution, will allow the municipalities to deliver water to more homes. Approximately 1.3 million people can be served with water by the energy saved. Alternatively the energy saved can be supplied to 71,000 additional homes. II. Vishakhapatnam Municipal Corporation (VMC) VMC has implemented different energy audit recommendations made by TERI. Measures range from no-cost/low cost to high cost and include retrofitting of pumps and motors, optimum utilization of contracted demand, segregation of low tension and high tension, and trimming of impellers. As a result of these measures, VMC is now accruing an annual energy savings of 1.4 million kWh amounting to an annual financial savings of approximately US$ 60,400 with an investment of only US $24,500. This has reduced VMC's annual energy bill for pumping water by about 5.4 percent, and has also led to a reduction of about 2,400 metric tonnes of CO2 emissions. The simultaneous reductions in municipal water waste, through more effective supply and distribution, will now allow the Municipal Corporation to deliver water to more homes (www.ase.org).
5.6 Active and passive leakage control Leakage management refers to the identification and repair of leaks (visible and underground) in the water supply system and reducing water losses to an acceptable level. Leakage management is a continuous process and needs to be undertaken continuously rather than as a one off initiative. Picture 5.5 shows some of the leak detection equipments. Leakages were prevalent in the entire water distribution network starting from Picture 5.5 Leak Detection Equipments Tighra Dam, which was constructed in 1938. Dam was leaking at various locations, which can prove out to be very dangerous for the people living in the adjoining villages downstream of the dam. The mains carrying water from the dam to distribution network is underground, hence leakages from these pipelines could not be observed. But a huge loss to the tune of about 10% plus is estimated in the 17km stretch of pipeline between the outlet of the dam and inlet of treatment plant. There was a major leakage occurring at the inlet chamber of new treatment plant. Although there were not much treatment losses occurring in this treatment plant, there was leakage occurring at the 28" pipeline carrying treated water at the outlet of the new treatment plant. In the old treatment plant, leakages were prevalent in the treatment units, which further decreases the efficiency of treatment plant. Leakages were also observed in the pipeline carrying treated water to Rakas tank (Picture 5.6). There was pipe burst near the treatment plant, which was being replaced with a new pipe, during our visit to the plant. There are frequent leakages occurring daily in the city, on an average about 1 - 2 major leakages per month per zone. These leakages occur mainly during the laying of telephone lines and repeated wear and tear of underground pipes due to traffic movements. Pictures 5.7, 5.8 highlight some of the observed leakages, which reflect poorly on GMC's commitment to Picture 5.6 Pipe leaking near Rakas tank conservation and efficiency. Though exact figures on the amount of water lost from leaks cannot be determined in the absence of bulk management meters it can still be concluded from field investigations that a significant amount of water is lost from visible leaks and it is estimated that an even greater amount may be lost from underground /invisible leaks. The field visit conducted at 2:30 a.m by TERI team near Ramaji ka Pura (water supply at high pressure between 2:00 am to 4:00 am) area indicated that there was a heavy wastage of water (Picture 5.7) instead of the problem of leakages from distribution lines. This is because the people in these areas leave their taps open to fill their tanks and these tanks overflow. In Gwalior, lineman carries out leakage detection by inspecting the networks. However, currently no means are adopted to detect small leakages from underground pipes. Complaints about leakages are also given by local people to control rooms in respective zones.
Picture 5.7 Wastage of water at Ramaji ka Pura during supply hours
Picture 5.8 Valves leaking at the out let of Old WTP
This state of affairs can be attributed to poor O&M and low priority given to leak detection and control. Currently leak repair is carried out on an adhoc basis with no regular planning. Further leak control is limited to repair of major bursts while hardly any attention is given to the large number of smaller leaks in the system. Further no data or information gathering system exists for recording leaks. A leakage management strategy would, thus necessary, seek to address the above-mentioned issues. Leakage management refers to monitoring the flows into supply areas in order to measure leakage and prioritise leak detection activities. This has now become the most cost-effective strategy for reducing water losses and hence most widely practiced approach. Annexure 5.1d highlights the proposed activity schedule for implementation of this strategy. 5.6.1 Implementation plan 188.8.131.52 Short term 1. As a first step, GMC needs to have a strong policy towards active leakage control. This has to be followed by identifying a dedicated team for leakage detection and control. Formation of a leak detection cell within GMC may be considered for this purpose. 2. All visible leakages occurring from transmission pipes, valves, and pumps should be repaired immediately. It is also neccessarynecessary to repair leakages occurring from the dam. However, in addition to the above leaks a number of other leaks also exist in the system. It is recommended that separate teams be formed for leak detection and repair. The first team should do a survey of the entire network and mark out the leaks on the map, which may be used by the second team responsible for leak repair. A survey of the entire network must be commissioned on a priority basis. 3. A huge leakage was observed in sections of the dam and these need to be repaired immediately. 4. As discussed earlier, there is an extensive leakage and wastage in the areas where water is supplied during night. There is a need to change supply timings in these areas. It was also observed that the taps in these households are not regulated with caps. Such households should be identified and caps be installed on the taps. 5. Active leak detection must be carried out in pilot project areas for underground pipelines. This will help in assessing amount of leaks, time taken to detect leaks and repair it etc. Such study will also help in preparing leak detection management for entire city. This is a good approach to identify stretches that are prone to ingress of sewage or soil because of leakage in the pipeline and a negative pressure. 6. Capacities of the staff have to be built on leak detection using simple techniques as discussed in Box 5.2 to identify leakages in underground networks. In a short term, GMC could consider out sourcing a comprehensive exercise of leakage detection and repair. 54
7. Changes in the quality of treated water during its conveyance in distribution mains should be assessed and analysed. 8. There is also a need to enclose all existing small pipes in a small conduit to avoid any chances of likely pilferage and water thefts. 9. In the distribution network the "tanker" method may be used to temporarily pressurise the pipes in a given stretch and then detect the leaks. 10.While active leakage control is recommended, there is also a parallel need to revamp the existing system of passive leakage control wherein action is taken once leaks are reported. The system should be tuned to:
Systematically record complaints on bursts and leakages in a proper format (date, time, type, reason, previous history etc) and maintain a history of the same. Information on all types of leakages, their location, age of pipes and replacement of pipes should also be recorded in the GIS database.
Reduce time taken for the communication and location of leakage.This can be done by creating adequate consumer awareness on the subject, as consumers are likely to be the first ones to observe leakages. Consumers should be encouraged to report telephonically and the information should be obtained in a comprehensive manner seeking all relevant details. Accurate and timely communication is the key to efficient action. This can help in fixing the leakage problems without much loss in resource and avoiding further damage to pipe infrastructure.
GMC could consider out sourcing this exercise of receiving complaints using the services of a private call centre.
18.104.22.168 Medium to long term In the medium term, GMC should consider procuring leak detection equipments (Picture 5.5). Further adequate training on leak detection and control should be given to the leak detection cell on the use of the equipment. Proper sounding techniques are needed to identify underground leakages. It is suggested that simple amplified sounding rods may be procured in the medium term to detect leakages. In addition there is a need to build capacities (of the zonal level staff, especially line men) on their use. Box 5.2 Methods for identification of leaks (a) Walking Walking over the mains looking for signs of accumulated water, damp soil, etc., indicating leakage of water (b) Sounding Sounding is the cheapest and an effective method of detecting leaks in a medium sized water supply system. Sounding could be categorized into two types: Direct & Indirect
Direct sounding is made either on the main or fittings on the main such as sluice or air valves, fire hydrants stop taps or any other suitable fittings.
Indirect sounding consists of sounding made on the ground surface directly above the mains for locating point of maximum sound intensity. This method is a good supplement for confirming location of leak noise identified through direct sounding Water escaping from a pressurized pipe emits a sound similar to the sound that can be heard when a seashell is held up to the ear.
Other sounding techniques used include listening sticks, ground microphone and leak noise co-relator.
5.7 Asset management programme Asset management programme involves developing a time bound plan for retrofitting and replacement of existing infrastructure in a manner, which ensures that the system keeps functioning at optimum efficiency. This further involves developing an active policy for timely replacement and retrofitting of the operational infrastructure like pipes, valves or treatment units etc. Usually in a stressed system with limited financial resources, as in case of GMC, there is no focus on a proper upkeep of the system and the infrastructure out lives its age. Infrastructure replacement is the last measure that a utility takes because of the expenses involved. It is therefore important that any replacement is properly coordinated to avoid wastage of limited resources. To move towards the long term objective of providing 24-hour water supply to the city in a sustainable manner the existing infrastructure in the city needs to be replaced or rehabilitated in a phased manner. A major part of leak repair would also overlap with infrastructure replacement programme in Gwalior. Most of the water supply network to Gwalior is around 30-40 years old and requires major rehabilitation to service the entire population. Infrastructure replacement would be one of the most expensive part of the WDM strategy and should thus be undertaken in a phased manner. Infrastructure replacement may be broadly be divided into 3 main categories. 1. Water treatment plants/pumping stations 2. Transmission network 3. Distribution network 4. Appertances (valves, expansion joints etc) 5.7.1 Implementation plan 220.127.116.11 Short term 1. Pump houses: Field surveys reveal that pumping station at old treatment plant needs major renovation. Renovation work is required for the both old and new WTP. These treatment plants require water proofing for many of their units, as seepage was evident at many locations. Putting a wire mesh cage can protect tampering of these valves. 2. There is also a need to improve the housekeeping practices in both new treatment plant and old treatment plant. 3. There is need to evaluate the conditions of electrical units and wirings in the pump houses and have safer installations. 4. A survey of all valves in the network is recommended to identify leaking and faulty valves (Picture 5.9). The valves may then be repaired or replaced accordingly. This is an essential activity as valves have been identified as a major source of leakage in the network. Besides preventing leaks, repair of valves will also help in better management of pressure. 5. A detailed survey of the entire network is being undertaken as part of the ongoing UWSEIP. It is thus proposed that, subsequent to the mapping of the entire network in GIS, and a detailed project report Picture 5.9 Valve leaking on replacement of the existing network may be undertaken. Further a leak recording system may be set up and used to highlight pipes with a high number of leaks which can then be used to prioritise replacement. 56
6. Leakage and seepage from OHTs should also be assessed and repair works undertaken immediately. Leakages were visible from Rakkas Tank as shown in Picture 5.10. It is also necessary that inventorisation of the entire infrastructure be carried out and recorded properly. This shall help in a better assessment of the health of infrastructure and resources needed for its maintenance. Budgetary allocation for such activities can be made accordingly. Depreciation of the assets can also be gauged and reflected in the financial statement.
Picture 5.10 Leakage in Rakkas Tank
22.214.171.124 Medium to long term 1. Once a detailed survey of existing pipelines and its leak detection is completed and mapped in GIS platform, it is necessary to prioritise leakage repair and pipe replacement programme. 2. Replacement of old pipelines in the distribution network should be carried out in accordance with a worked out plan. A replacement programme for the mains may be worked out depending upon the frequency of bursts/leaks and the age of the mains. 3. Proper concealment and protection of existing and proposed bulk meters, pressure gauges, air release valves and other valves. 4. Replacement/repair of pumps should be evaluated after each energy auditing exercise. In the medium term the infrastructure replacement programme should be designed and implemented based on the outcomes of the leak detection programme and the DPR for infrastructure replacement. 5. It has been observed that infiltration of sewage from septic tanks and pipelines affects the quality of water in supply lines. It therefore becomes essential that besides maintaining the health of water supply pipeline infrastructure, a formal system should be constituted to regularly inspect the infrastructure available for sewage collection (and its treatment). This shall check any possible contamination of potable water supplies. 6. In the long term it is envisaged that the city will be sectorized into hydraulically discrete zones and water supply shall be round the clock. The transmission and distribution mains, OHT etc may need to be redesigned according to the new water supply regime. Obstacles in implementation 1. Capital requirement for such replacements may be huge and will be subjected to resistance. 2. Efficient management is required for analysing and prioritising the replacement programme, which required skilled managers and engineers.
5.8 Planned maintenance As analyzed induring the financial assessment of GMC, only a miniscule portion of the total expenditure goes towards maintenance. Maintenance is based on 'as and when required' approach rather than being systematic, planned and regular.There is a need to realise the significance of planned maintenance, especially in an over stressed system like in GMC which caters to a big population, so as to increase the overall equipment/infrastructure availability and reliability of the system. A properly planned maintenance schedule would not only help in improving the service life of the infrastructure but other benefits such as improved efficiency and efficiency use of resources would also accrue with it. 57
It is necessary that regular monitoring of system health be undertaken to covering all infrastructure i.e. pumps, water treatment units, pipes, valves, meters and storage units etc. GMC should have a system for planned maintenance with adequate resources allocated to the activity and this should strictly be adhered to. The history of the health of the infrastructure should be duly maintained as this can facilitate decision making on maintenance and replacement. 5.8.1 Implementation plan 188.8.131.52 Short term 1. In the short term, there is a need to collate information on the age of the infrastructure. In the first stage, assessment of all valves should be carried out as leakage from the valves is most visible and reflects very poorly on the commitment levels of the service provider. Besides the valves, immediate attention is required for all pumping infrastructure as also pointed out during the discussion on energy auditing. 2. It is important to prioritise expenditure on maintenance in the annual budget. Based on existing conditions and severity of deterioration/depreciation of different units, funds should be allocated for maintenance. 3. Identify dedicated staff for the activity and launch training and campaign within GMC on the subject. There is also a need to promote the following steps to build the diagnostic skills of the staff of GMC: a. Initial cleaning b. Counter measures for the cause and effect of dirt and dust c. Cleaning and lubricating standards d. General inspection e. Autonomous inspection f. Organisation and tidiness 4. In the short term, GMC could also consider involving an outside agency to prepare a schedule for planned maintenance of its different operations. For this some of the representative facilities and infrastructure could be selected. 18.104.22.168 Medium to long term In the medium term, staff capacities should be built on organized approaches for planned maintenance aiming at zero breakdowns. Obstacles in implementation In the absence of any policy and vision on the need for regular maintenance, it would be difficult to take adequate measures. Further lack of financial resources may also create hindrance for the proposed implementation.
5.9 Alternative delivery mechanisms Traditionally water supply in urban areas has been through piped systems with either a household connection or public stand post at the user end. However given the resource constraints and technical barriers it may not be possible to cover the entire population with piped water supply. The current approach of providing tankers in areas not served by PWSS (piped water supply scheme) is also inefficient and raises concerns related to water quality and poor service delivery levels. It was observed
that standposts are a regular feature of the water supply in some areas of Gwalior, which are not covered by piped supply extending to individual households. It is thus recommended that in addition to these traditional supply means GMC should also explore the possibilities of alternative service delivery mechanisms. Some of the approaches, which may be taken up, include: – Water kiosks – Decentralised community managed small piped networks – Group connections as a replacement for Public standposts – Rainwater harvesting There is also a need to monitor and improve the existing tanker supplies aimed at ensuring adequate water quality. Field observations point that huge quantity of water is lost in the process of filling and transporting water through tankers. Another critical issue is the quality of water supplied through these tankers. No regular cleaning schedule is maintained for these tankers and there is no check whatsoever on the quality of water supplied. Similar observations were made for supplies from the standposts. 5.9.1 Implementation plan 188.8.131.52 Short term Following actions are recommended in the short term:
Improvements in tanker supplies through some of interventions listed below: - Modernise tanker filling points to reduce wastage while filling - Improve condition of tankers so as to avoid spilling and leakage. - Regular cleaning schedule for tankers. - Inspection schedule to ensure adequate residual chlorine - Metering of water supplied through tankers.
Supplies based on stand posts should be gradually replaced by household piped water supply system. A detailed plan for providing coverage to the entire city may be developed by the municipal corporation.
Rainwater harvesting should be made mandatory for all new building and a confidence building measure on Rainwater harvesting may be implemented in all GMC buildings. Further a cell may be constituted within GMC for providing technical guidance to general public on Rainwater harvesting. This shall be useful to demonstrate implementation of rainwater harvesting and show case GMC's commitment towards water conservation. Harvested rainwater could be used for recharging the groundwater or gardening or consumption by the livestock.
Possibilities of reuse of wastewater, post recycling, should also be explored.
Obstacles in implementation Lack of community involvement and limited skill sets of GMC with regard to community led initiatives may be an impediment to implementation of the strategy. Stakeholders In a community-based project forging, the right partnerships holds the key to success of the initiative. It is imperative to involve all stakeholders for any such project right from the inception stage. It is 59
further recommended that NGOs be involved for implementation of such project with the municipal corporation playing a facilitation and advisory role.
5.10 Water conservation at consumer end One of the most neglected aspects of Water Demand Management in the Indian context is water conservation at consumer end. Large inequalities in water supply and abysmally low tariffs have led to a situation wherein there is a big difference in the way water is used in different households. 5.10.1 Common water-saving technologies Several technologies are available to save water and include:
• •
Ultra low flow toilets consume as little as 1/5th to 1/7th of what traditional toilets consume.
Xeriscaping involves planting native species that are able to survive under local rain and climate conditions can save large amounts of water. Even though the water consumed for gardening activities in these cities may be very less, there is a need to look at such water consumption. This is all the more important as the government maintains most of public grdens.
Toilet dams or other Water displacement devices block part of the tank so that less water is required to fill the toilet following each flush. Some problems may occur with the need to double flush but water savings from these devices are estimated at more than 10 percent.
As a more aggressive strategy, a Municipal Corporation can enact standards for water-using appliances, at least for upcoming localities with new construction. In the medium term, alongwith the construction of sewage treatment facility, the Municipal Corporation should also consider exploring opportunities for reuse of treated wastewater. The cost effectiveness of many of these methods and technologies in practice, however, requires different pricing of water to consumers so as to convey the true cost of the water supplied. In addition to proper pricing, other factors that determine the applicability of certain demand-side measures to water utilities include the market penetration of water-using appliances, the types of industries linked to the system, and the technologies available for the domestic market. Obstacles in implementation The existing tariff structure does not encourage the consumers to save water and hence enforcing or imbibing conservation at the consumer end. Stakeholders to be involved NGOs, RWAs, Architects and Builders, Bulk consumers and Commercial consumers, Media etc.
5.11 Pressure management Pressure in the supply lines is often used as one of the performance indicators to assess the quality of service provided by any water utility. A water supply system is generally designed to operate at pressures, which lead to minimum head loss while also ensuring adequate pressure to the consumers located at the tail end of the network or on levels above the ground floor. In contrast to utilities in many other countries, water supply in the Indian cities generally faces problems related to supplies at low water pressure. Consumers in most of the cities complain of low water pressure and resort to the use of online booster pumps. Intermittent supplies coupled with the above-mentioned problems result in a network wherein it is virtually impossible to control pressure and run the system at designed pressure. Frequent filling 60
and emptying of the system also leads to hammering effects, which cause leakages/ bursts and hence seriously hamper the life of the system. The undulating topography in some of the areas in Gwalior results in very high pressure at certain points and low pressures in other areas. A severe lack of pressure was observed in many localities supplied by the Amkho Tank. Another critical issue is the complete lack of information on the pressure being maintained at various points of the system. Pressure gauges have been installed at new and old treatment plants (8 kg/cm2; Picture 5.11); Gole ka Mandir (2.75 kg/cm2); Haddi ka Mill and on pipes carrying water to Morar and Picture 5.11 Pressure gauge Thatipur Tanks (6.8 kg/cm2and 5.6 kg/cm2). But more pressure near Old WTP gauges need to be installed at locations like outlet of all OHTs and at tail end of the distribution system. Further municipal officials reported that most of these gauges last only 6-8 months; this calls for a change in procurement practices. Pressure management is one of the key aspects that GMC needs to address so as to ensure adequate service levels, minimize the leakages and ensure long term sustainability of the infrastructure. In the current situation, wherein the water supply is for limited duration, excess pressure may not be an immediate issue but maintaining adequate pressure in the network should be a priority. However, in a long term a pressure management strategy should be formulated and it should take into account the variation in pressure in the system on a 24-hour time scale and results be analysed to assess leakage from the system. 5.11.1 Implementation plan 22.214.171.124 Short and medium term measures 1. The first step to management would be to monitoring pressure using pressure gauges. It is thus recommended that a detailed survey of the entire network be conducted to establish the locations for installation of pressure gauges. Recommended locations include the transmission network, outlets of OHTs and critical locations in the distribution network (like locations where pipelines split into two or more distribution lines). Such an exercise may also be necessary to carry out a hydraulic network modelling exercise of the city. It is proposed that at locations mentioned above should have a quick fit coupling after a small stop cock. The pressure gauge can be clipped in when required.This method is more suitable than a permanent gauge as it is prone to get damaged soon. 2. In addition to pressure gauges it is also recommended that pressure loggers may be installed at select locations in the network which can give a 24-hour detailed pressure profile. 3. Selection of localities for pressure management could also proceed hand-in-hand with the auditing of water. As a part of the pilot study, pressure gauges should be installed at various locations in ward 17 and monitor these pressures regularly. 4. A pressure gauge replacement/retrofitting programme may also be undertaken to enable monitoring of pressure on a regular basis. Since the quality and life of gauges is an issue of concern it is recommended that only pressure gauge makes certified by BIS be used. 5. Currently water supply in most of the areas is through riders. As a result, it is difficult to maintain pressure in the system. It is therefore recommended that some new reservoirs be constructed and water from Moti Jheel and tube wells should be first supplied to these reservoirs and then to 61
the distribution network. As a part of pilot phase activities, Ward Number 17 can be considered to carry out this action. 6. Analysis of the pressures in the system should be used as an input to the network modelling exercise, which may result in identification of critical stretches, in the network for the infrastructure replacement program. 7. A system of recording and documenting pressure should also be developed while should ultimately be in an GIS environment. 8. As system of recording and documenting pressure should also be developed. 22.214.171.124 Long term In the long term it is envisaged that the city would move from an intermittent supply system to a 24-hour water supply system. Pressure management in such a context is an important tool for controlling leakages. The basic principle behind pressure management is that the pressure required in the system is not the same throughout the day and during non-peak hours controlling pressure can lead to a significant reduction in water losses without even plugging leaks. 5.11.2 Obstacles in implementation Major hindrance is the assessment of pressure in the network of Gwalior is its undulating topography. Since pressure keeps changing with every alternative elevation and slope the number of measurement points needs to be large for a precise mapping.This would therefore require a significant manpower and financial investment for comprehensive monitoring. A list of recommended projects is available in Table 5.5 and 5.6 on the following pages.
Table 5.5 Pilot projects for immediate implementation
Table 5.6 Proposal for projects to be implemented within two years
Financial Assessment of Waterworks Department, Gwalior Municipal Corporation
6.1 Background Since 1995, the Public Health & Engineering Department (PHED) has been responsible for the planning, design and construction of water supply, sewerage and drainage projects within the municipal limits of the Gwalior city. Administratively, while the staff reports to the Gwalior Municipal Corporation (GMC), its salary is entirely borne by the PHED through grants. Moreover, while PHED gives the financial sanction for waterworks projects, assets are ultimately transferred to the GMC for operation and maintenance purposes. Obviously, this arrangement not only creates operational duality, but also results in lower financial transparency. In terms of financial performance1 over the past five years, the Waterworks Department has been consistently incurring losses. During this period, losses have fluctuated between Rs. 5.79 crores in FY 2001-02 to Rs. 4.78 crores in FY 2004-05. However, the department incurred only a marginal loss of Rs. 0.27 crores in the first 6 months of FY 2005-062. An aspect worth noting here is that both, income received and expenditure incurred, are only a minuscule portion of the comparable previous fiscal figures. This could either reflect a surge in income-expenditure activity in the second half of the financial year or inadequate reporting of the revenues and expenses. During the five-year period under study, while annual income grew at a Compounded Annual Growth Rate (CAGR) of 9.30%, the corresponding expenditure increased at only 1.00%. However, as the difference in absolute income and expenditure amounts is still high, the Municipal Corporation is continuing to incur losses. A summary of the income-expenditure position of the department along with the profit/loss trend is given at Table 6.1: Table 6.1 Income-expenditure trend of the Waterworks Department S.No.
Financial Year(s)
Annual Income Amount (In Rs. Crores)
Annual Expenditure CAGR
Amount (In Rs. Crores)
2005-06 (April -September)
Based on information obtained from the Accounts Department, GMC. The income & expenditure figures exclude administrative grants for calculation of profit/loss levels. The total expenditure amount does not include the expenses on employees salary and other emoluments.
This chapter attempts to appraise the financial health of waterworks department based on the actual budget figures from FY 2000-01 to FY 2004-05 and performance till September 2005. The water tariff schedule, which became effective from April 2002, is considered for analyzing the Municipal Corporation's existing tariff structure and methodology. It may be noted that some part of the current analysis relies on inputs from senior officials of the department, as documentation of key financial information was found to be inadequate. For assessing the financial health of the department, this section initially discusses the existing income-expenditure position of the department and builds scenarios by assuming varying levels of collection efficiency. Subsequently, the current tariff methodology and structure is discussed. The section concludes by presenting broad recommendations on ways to improve the structure of financial statements & information reporting at GMC's Waterworks Department.
6.2 Analysis of income-expenditure statement Most of the Urban Local Bodies (ULBs) in the state of Madhya Pradesh follow the government system of accounting, rather than accrual based accounting methodology. Under the current reporting system, transactions are accounted for only when payments are made or receipts are obtained. However, it is not possible to track and manage receivables & payables, as well as assets & liabilities in a precise manner. To streamline and update financial records, GMC has initiated a computerized accounting system, with effect from December 2004. The income from water supply operation of the Municipal Corporation increased from Rs. 3.71 crores in FY 2000-01 to Rs. 5.29 crores in FY 2004-05, representing a CAGR of 9.30%. The upward trend in annual income levels of GMC's water supply operations over past few years can be attributed to better revenue realization from domestic water charges. The consolidated income statement of the waterworks department along with its various components is highlighted in the Table 6.2.
Table 6.2 Income statement of the Waterworks Department
The expenditure incurred by the Waterworks Department has increased marginally from Rs. 9.68 crores in FY 2000-01 to Rs. 10.07 crores in FY 2004-05, which reflects a CAGR of 1.00%.The Department's actual and projected expenditure along with its components are highlighted in the Table 6.3.
Table 6.3 Expenditure statement of Waterworks Department
Presented below is the sub-component wise analysis of the income-expenditure statements of the Department. Analysis of the income statement According to the current financial reporting, the Waterworks Department derives its income from two broad sources, i.e., administrative grants3 and water charges. However, within these categories, income is reported only under a few heads. This either reflects low diversification of revenue sources or inadequate reporting procedures being followed by the department. The break-up of income by originating sources is presented in the following chart.
For clarity of analysis, the receipts and allocation of administrative grants are dealt with separately.
Currently, the Municipal Corporation services about 80,114 consumers4 , which have been broadly classified as domestic and non-domestic. The latter is further sub-categorized under commercial and industrial consumers. An analysis of available information suggests that almost the entire income is currently reported under domestic water charge revenues, with no reporting whatsoever under commercial and industrial consumer categories . On the other hand, the Accounts Department has provided the following data on consumer categorywise break-up of average revenues that is contradictory to financial reporting of accounts. Table 6.4 Consumer category-wise revenues S.No
Consumer Category
Percent Contribution
12.00% 100%
Clearly then, reporting under various heads of the income statement is currently inconsistent and unclear. Additionally, the income statement has limited reporting under important heads like collection of outstanding dues, revenues from domestic & commercial new connections and from legalization of connections. Analysis of the expenditure statement The waterworks department has been administratively divided into two distinct divisions i.e. Division A and Division B. While the former is responsible for operation & maintenance (O&M) of tubewells & motor pumps as well as the overall water distribution, the latter primarily oversees the maintenance of the Moti Jheel pumping & filtration plant. The Expenditure Statement of PHED therefore reports expenditure incurred by Division A and Division B separately. Additionally, it also reports the allocation of administrative grants. The graphs below show the composition of total expenditure for Division A & B for FY 2000-01, FY 2004-05 and FY 2005-06 (April - September).
Calculation based on zonal-level information of the PHED
Division A: The expenditure incurred by Division A has registered an increase from Rs. 3.82 crores in FY 2000-01 to Rs. 9.03 crores in FY 2004-05, which amounts to a CAGR of 24.01%. It can be readily observed from above that the share of this division in total PHED expenditure has been consistently rising since FY 2000-01. During April to September 2005, Division A contributed to 93.52% of the total expenditure incurred by the department (excluding the grant component). In FY 2004-05, repair works constituted over 45% of the total expenditure of Division A, followed by costs incurred on maintenance of tube well, hand pump and new pipeline. Simultaneously, there has been a decline in the Division's expenditure on electricity payment (both in absolute and relative terms). These electricity expenses as a proportion of total annual expenditure have dropped from about 20.0% in FY 2002-03 to 10.4% in FY 2004-05. This either implies reduced electricity consumption (in kWh) or lower annual payments for power consumption. As the former seems improbable, the waterworks department probably is making lower payments to MPSEB for electricity consumed. A recent report5 suggests that Gwalior Municipal Corporation owes a total of Rs. 10 million to the MPSEB. Our field visits and questionnaire responses from senior municipal officials also confirm that payment for electricity consumed is made only depending upon the availability of funds with the Municipal Corporation. Division B: As mentioned above, the relative expenses towards Division B (Moti Jheel Waterworks) have declined over the past few years. The expenditure of Division B, which was Rs.5.86 crores in FY 2000-01, declined to Rs. 1.04 crores in FY 2004-05. As in the case of Division A, repair works form a major portion of Division B's expenditure. Similarly, payment to electricity suppliers has shown a declining trend since FY 2000-01. According to department officials, the Madhya Pradesh Government directly pays Rs. 3.0 crores to MPSEB on account of electricity arrangements at Moti Jheel Pumping Station. Administrative Grants This component of income-expenditure statement reflects the annual grant from the Government towards supporting GMC's water supply operations. In the above analysis, it may be noted that administrative grants have not been considered for computation of annual profit/loss levels of the department. In case grants are included as income sources for the department, the loss levels of water supply operations are reduced to levels indicated below. Table 6.5 Income-expenditure gap from FY 2000-01 to FY 2004-05
It may be observed that while the department has received a major portion of its grants for the 'Maintenance of water treatment plants', the expenditure statement does not correspondingly reflect 5
Integrated Urban Development in Madhya Pradesh, GHK International
any allocation under this head. This is true for nearly all other components of administrative grants and reflects inappropriate reporting. This implies that funds received through grants for maintenance are being utilized for other routine expenditure. The long-term impact of such action is rapid decline in loss of water infrastructure in the city. Summary of income-expenditure analysis & collection efficiency Based on analysis of currently available information, the Table 6.6 presents a brief assessment of the revenue and expenditure position of Waterworks Department. Table 6.6 Assessment of the revenue-expenditure position of Waterworks Department Parameter
Revenue Collection/KL of water supplied
Rs. 0.93/KL
Expenditure*/KL of water supplied
Rs. 1.76/KL
Revenue - Expenditure Gap (In Rs./KL)
Loss of Rs. 0.83/KL
Revenue Collected per no. of connections (Assuming 80,114 consumers)
Rs. 660.63/consumer
Expenditure* per no. of connections
Rs. 1256.94/consumer
Revenue - Expenditure Gap (In Rs./connections)
Loss of Rs. 596.31/consumer
Actual Loss (In Rs.)
Rs. 4.78 crores
* Excluding Administrative Grants
In light of the current high levels of revenue-expenditure losses highlighted above, it is imperative to either improve collection efficiency or increase revenues through tariff rationalization. These aspects are discussed below: Collection Efficiency The Municipal Corporation currently follows a bi-monthly billing cycle. The bill documentation and processing has been outsourced to a private company.The sub-engineers within each zone are directly responsible for water revenue collection. Typically, a charge of 10% is levied as penalty if a consumer fails to pay the bill amount within 15 days of due date. Thereafter, a second notice is sent to the consumer, subsequent to which the supply is discontinued and the department issues a revenue recovery certificate. In practice however, field interviews reveal that these procedures are not being rigorously adhered & pursued. While collection efficiency figures for the Municipal Corporation as a whole are unavailable, the estimated range is between 53% and 60%. The reasoning for this range is detailed below: a. Field Visits and Interaction with Zonal Officials Based on the zonal information for revenue billed and collected, the overall collection efficiency for Gwalior in FY 2004-05 has been estimated at 52.67%. Field visits & data analysis reveals that collection efficiency figures vary widely across zones and that the underlying reasons are unique to each region. This is highlighted below (Table 6.7).
Table 6.7 Estimates of zonal annual collection efficiency based on field surveys/interaction S.No.
Collection Efficiency (FY 2004-05)
Reasons for current level of Collection Efficiency*
Morar has the highest collection efficiency amongst all zones, primarily attributed to presence of 3 bulk consumers & predominantly urban residential area.
Lashkar (East)
42.59% (Municipal officials – 50%)
Presence of large number of disputed properties, low revenue recovery from bulk consumers and ineffective collection mechanism due to non-cooperation from local administration & police officials.
Lashkar (West)
Largely semi-urban residential consumers (90%). The zone accepts even part payment of bills.
About 20-25% of the Gwalior zone is comprised of low-wage labour workers. The zone also has about 5100 households that have been identified as 'affected from JC Mills closure'. These water consumers therefore do not contribute towards the revenues of the zone.
Total Collection Efficiency - 52.67% (Based on field surveys) * Inputs from field interviews with senior officials of Waterworks Department
b. Based on financial statements of the Municipal Corporation, the annual collection efficiency is estimated to be 60%. The underlying methodology is explained below under the title 'Base Case Scenario 1'. Obviously, with higher levels of collection efficiency, the revenues and hence loss levels could have reduced. The alternative scenarios that would have emerged in FY 2004-05, with higher levels of collection efficiency are as follows:
Table 6.8 Profit/Loss scenarios with varying collection efficiencies (In Rs. Crores, excluding administrative grants) S.No.
Collection Efficiency
1. 2. 3. 4. 5. 6.
52.67% (Actual) 55% 65% 75% 85% 95%
5.29 5.53 6.53 7.54 8.54 9.55
10.07 10.07 10.07 10.07 10.07 10.07
-4.78 -4.54 -3.54 -2.53 -1.53 -0.52
It can be observed from the income-expenditure figures of FY 2004-05 that even at 100% collection efficiency, the department would incur a loss of Rs.0.02 crores. This clearly calls for an urgent review of the existing expenditure items as well as tariff rationalization measures. It is therefore important to undertake a detailed analysis of prudency of expenditure being incurred and subsequently rationalize tariffs accordingly. Inconsistencies and data gaps in financial statements
One item appearing in both the income and expenditure statements is 'Administrative Grants'. As mentioned earlier, while grant receipts are explicitly stated in the income statement, their allocation is not correspondingly shown on the expenditure side. It is therefore imperative to scrutinize these grants and restate them correctly in financial statements.
There exists limited information on the current and past liabilities (including bad debts) of the Municipal Corporation. Field visits and analysis suggest that the total outstanding amount6 of the
Total outstanding amount of PHED has been calculated on the basis of zone-level financial information
department as on March 2005 stands at Rs. 19.93 crores. Currently, the Waterworks Department does not have a bad-debt policy. The dues keep compounding, in some cases for as long as 15-20 years. Therefore, for better financial management, the department should prepare a summary of liabilities and identify the recoverable and non-recoverable portions of the same.
Currently, there is limited reporting in the income statement on revenues received from various consumer categories. Most revenues are identified to be from domestic consumers, rather than being reported under bulk, commercial and industrial categories. This could imply that some commercial and industrial consumers are being charged domestic water supply tariffs, causing losses to the GMC. Some officials of Lashkar (West) accepted that this practice is widely prevalent in their zone.
Another major inconsistency is the absence of salary expenses in the Expenditure Statement of the Municipal Corporation. While this expense is borne by the PHED, it should be necessarily reflected in the financial statements for sake of accounting clarity.
The Waterworks Department currently follows a cash-based system of accounting, in which a transaction is recorded only when there is a movement of cash. In other words, entries are made in the cashbook only when expenditure is incurred or when income is received. Under the cashbased system, receipts & expenditure do not differ on the basis of time period (current/previous) and type (revenue/capital). Therefore, this system inherently fails to provide the correct financial position of the Municipal Corporation. Our stakeholder meeting revealed that GMC would be moving to double-entry accrual system of accounting in FY 2006-07. This system, which has distinct advantages over the cash-based system, is elaborated later in this section as part of the recommendations.
6.3 Current water tariff structure There are generally three major sources of funding for water supply operations of the Municipal Corporation. These are: 1. User charges or water & sanitation charges 2. Grants from the State Government, external and funding institutions 3. Loans from funding agencies The water user charges of Gwalior Municipal Corporation are mentioned in its tariff schedule (effective April 2002). The Municipal Corporation has broadly classified its water supply consumers as Residential/Domestic, Commercial and Industry. A flat tariff structure is being currently followed by the GMC. The Municipal Corporation services 6 major bulk consumers (3"-16" connections) i.e. Indian Railways, Military Engineering Service (MES), Indian Air Force (IAF), Cancer Hospital, J.A. Hospital and Scindia School. Even though some of these bulk consumers have metered connections, they are being charged a fixed rate based on flow estimation done at the time of installation. This is because most of these meters are non-functional. For all its consumers, the Municipal Corporation charges a fixed service charge, levied on bi-monthly basis. The chargeable amount from each category has been broadly classified on the basis of furrule size (i.e. diameter of the supply pipe). The second part of the schedule lists the miscellaneous levies (charges for new connections and legalization). These charges are classified on the basis of connection mode and income category. The existing water tariff schedule is presented at Table 6.9.
Table 6.9 Existing Tariff Schedule (Effective from April 2002)
As stated earlier, the above water tariff rates were made effective from April 2002. Prior to this, the domestic water tariff was Rs. 60/- per month (increased from Rs. 9/- per month in 1997). According to inputs from senior GMC officials, the number of illegal water connections has risen consistently in the past few years, especially amongst the domestic consumers. This has been largely attributed to the sharp water tariff hike, introduced in 1997-98 and 2002-03 (from Rs.9/- to Rs.60/- and subsequently to Rs. 80/-). Therefore, any further tariff changes should be orchestrated based on implications of revenue realization and willingness to pay parameters. Rationalization of tariff structure Currently GMC follows a method of charging flat rates for water supply, primarily because there is no metering at the consumer end. This methodology is inherently based on the following two assumptions.
It takes approximately the same amount to service each customer, irrespective of the water amount supplied and the time of supply.
The Waterworks Department is able to recover all costs, irrespective of the consumption level.
As these two assumptions generally do not hold true, this methodology of charging flat tariffs for water supply leads to inefficiencies as well as defies economic logic. A flat tariff not only encourages indiscriminate and illegal water usage, but also acts as a disincentive for consumers to conserve water.
An alternative to the current tariff structure is the 'two part' tariff structure. Such a tariff design typically includes a consumption/ volumetric rate in addition to the fixed water charge. The former is primarily a variable charge that recovers costs based on usage. The two-part tariff design is beneficial over current structure as it encourages conservation, recovers costs of holding unused capacity for peak demand and reflects tariff efficiencies for servicing various customer categories. International literature on water tariff reform suggests that the following factors determine the structure of twopart tariff:
• • •
Level of metering (total, partial or no metering)
• • •
Fluctuations in demand patterns during different times of the year
Extent of cross-subsidization between consumer classes Number of customers and disproportionate customer structures (e.g. numerous high volume users or high proportion of small volume users)
Age of the system that determines the level of operating & capital cost requirements Existing rules and water tariff structure
To operationalise the two-part tariff structure, the Waterworks Department needs to develop appropriate information and monitoring systems that collect and report the following financial details:
• •
Allowable costs and cost allocation procedure
Tariff setting procedures
Profit, return on investment and return on assets, i.e., the Department is allowed a mark-up or return over its economic costs
It should be noted that two-part tariff structures are most suited for metered systems. Field visits by our project team have shown that currently there is only limited or no metering across customer categories. In few cases where meters exist (e.g. some bulk meters), they were found to be erratic and non-functional. Additionally, the existing tariff structure needs to be rationalized to address cost recovery principles, incentivise metering, improve collection efficiency and provide clarity to tariff design. In this context, it is important to discuss in detail the concept and relevance of the full cost recovery (FCR) principle. FCR for water services primarily covers all costs associated with operating, maintaining and financing a Municipal Corporation's water system. In other words, this concept implies that revenues from water sales, primarily through tariffs, are equal to or exceed the amount required to cover all costs related to obtaining, processing and distributing water to the ULB's customers. Therefore, revenues should not only cover the Operation & Maintenance (O&M) costs, but also if possible, the depreciation, taxes and cost of capital. Clearly, achieving FCR can be an important determinant of a utility's ability to improve and expand service/infrastructure. There are however several factors that typically inhibit a utility from embracing the FCR principles. These include political pressure against water tariff increases, operational inefficiencies, poor water supply infrastructure and mismanagement of existing resources. The diagram below highlights the importance of Cost Recovery and its inter-relationship between technical, financial and governance factors.
Source: Regional Assessment Survey & Workshop on Full Cost Recovery for water utilities in Southeast Asia: Sharing International Experience & Best Practices
While improved water pricing strategies are one of the important mechanisms for improved cost recovery, financial sustainability also depends upon other factors, such as sound financial management, technical expertise, infrastructure coverage, balanced water consumption and production, low Non Revenue Water (NRW), effective metering & record keeping, billing & collection practices and quality of service (QoS). The afore-mentioned factors are detailed as part of the recommendations in the section below. Meanwhile, it is important to note that any reform measure should not only focus on the tariff design/structure, but also on the underlying economic logic (cost recovery principles) behind rate setting. Before we discuss the approach to be adopted for tariff rationalisation of the GMC, it is also important to study the experience in other sectors (especially electricity) with respect to tariff reforms. The Box 6.1 gives in brief the experience in electricity sector reforms in India. Box 6.1 Electricity Tariff Reforms in India One of the most important demand side management measures in infrastructure service provision is designing an appropriate tariff structure based on cost allocation principles. Since the early 1990s, the power sector in India has been going through a process of reforms and restructuring. Undoubtedly, the most important problem in this sector is irrational tariff structure. Before the setting up of Regulatory Commissions at the state level, the tariffs were being fixed and realised by the State Electricity Boards and Electricity Departments. However, the state governments have constantly interfered in this process so as to provide concessional tariffs to certain sectors - mainly agriculture and domestic consumers. These sectors are generally cross-subsidised by the commercial and industrial sectors and also directly subsidised by the Government. At the same time, the SEBs are not adequately subsidized for this loss in revenue and they have been incurring heavy losses. The attempt to make up these losses by raising industrial tariffs has led to increasing migration out of the grid through the captive generation route. As a result, the financial position had been deteriorating every year. The Electricity Act 2003 notified in June 2003, empowers the SERC's to specify the terms and conditions for the determination of tariff and ensure transparency in the tariff setting process. SERC's have to constitute proper measures to allocate revenue requirement in an economically efficient manner by reducing the extent of cross subsidies. This is primarily achieved by increasing the low-tension (LT) tariff to a greater extent as compared to high-tension (HT) tariff. The Act also provides the guidelines and the procedure to be adopted for the purpose of tariff determination and issuing of tariff order. The draft National Tariff Policy was introduced in March 2005. Till date, 21 states have already issued their first tariff orders aimed at rationalizing tariffs.
A number of commissions have instituted measures to allocate revenue requirement in an economically efficient manner by reducing the extent of cross subsidies. This has primarily been achieved by increasing the LT tariff to a greater extent as compared to the HT tariff. Also, a number of commissions have initiated an increase in the tariff of agricultural consumers despite it being a highly politicized issue. However, in some states including Andhra Pradesh and Maharashtra, the State Government decided to continue fee power to agricultural consumers and this led to huge burden on the state's finances. In Andhra Pradesh, there were considerable debates and discussion on the issue and it was finally decided that the subsidy that will be provided to farmers will have to be target properly and criteria for the same were established. There is also a movement towards determination of tariff based on the cost of supply approach. These regulatory reforms have in-turn resulted in a progressive reduction in the differential between average tariff and average cost of supply, as well as a greater orientation to base tariffs on cost allocation principles.
Approach Based on available financial information, the Waterworks Department needs to rationalise its existing tariff structure. As the first step, revenue under the base case scenario, i.e., the existing scenario has been estimated to assess the current financial position of the Municipal Corporation. The base case scenarios are based on the existing tariff schedule of the GMC. There are two base case scenarios as per this schedule: Base Case Scenario 1: Case when all revenue comes from fixed charges. Base Case Scenario 2: Case when revenues come from variable charges (variable charge is the Rs./KL charge that the GMC has in its tariff schedule for metered customers who pay on the basis of actual consumption). However, field surveys and discussion with the GMC has revealed that at present there is limited metering at the consumer level and therefore Base Case Scenario 2 mentioned above does not exist in actuality. The GMC only has a provision in its tariff schedule for charging consumers on the basis of their consumption, but since there is no metering, this is not taking place. As the next step, revenues that the GMC would generate in three alternative scenarios have been estimated. These three alternative scenarios have been prepared to assess the financial situation of the GMC in future and thereby suggest tariff reforms. These are scenarios corresponding to short term, medium term and long term. The commencement and terminal years for the three scenarios envisaged for tariff rationalisation and reform are given at Table 6.10. Table 6.10 Commencement and Terminal Years for the 3 alternative scenarios Scenario
Commencement year
Terminal year
Short Term
Medium Term
Long Term
In this study, we have analyzed the existing financial position and tariff structure of the GMC and suggest changes that need to be made for it to move forward on the path of tariff reforms. All the above scenarios are based on certain critical assumptions that had to be made in the absence of requisite information. Data on category wise consumption, water loss level, revenue billed and collected, etc was not provided as according to the Municipal Corporation such database is not maintained by it. The basic requirement of tariff reforms is a robust database. These assumptions are discussed in greater detail in the section that follows. 78
The expenditure of the GMC under various heads for the above three scenarios has also been projected. This is explained in detail later. The resulting gap between the revenue and expenditure is the amount that the GMC would need to recover through tariff rebalancing and further efficiency improvements.
6.4 Tariff rationalisation The assumptions that have been made to assess the revenue-expenditure status of the Municipal Corporation are given below: a. Based on flow estimation and evaluation, the total water supply to Gwalior city is estimated at 155 MLD (excluding bulk consumption). b. The water loss during treatment process is approximately 5% (or 7.8 MLD). c. The water transmission and distribution loss is estimated at about 30% (or 46.5 MLD). d. Based on the above assumptions, water available for consumption by domestic, commercial & industrial and bulk categories is estimated to be 100.8 MLD. e. Consumption by bulk consumers is estimated to be 7.51 MLD. f. While the commercial category is estimated to consume about 4.03 MLD (4% of water available for consumption estimated in 'd' above), the industrial category is projected to consumer another 2.02 MLD (2% of water available for consumption estimated in 'd' above). g. Based on water balance analysis & estimation, water supplied to tankers & to public standposts is approximately 0.1 MLD and 1.0 MLD respectively. h. The water available to domestic consumers is approximately 86.1 MLD. i. Based on flow estimation and evaluation, illegal water consumption in Gwalior is about 5.6 MLD. Based on our discussions during stakeholder meetings, the number of illegal connections is estimated to be 10,000. j. Water left for legal domestic consumption is estimated to be 80.50 MLD. k. Based on available Municipal Corporation estimates and some assumptions, the number of domestic water connections is approximately 79527. The methodology for calculating categorywise connections is as follows:
As highlighted earlier, the revenue from various customer categories viz. Domestic, Nondomestic, Industrial and Bulk, as provided by the Municipal Corporation officials, is 86.34%, 1.42%, 0.24% and 12.0% of the total revenues.
Assuming that the entire revenue is coming solely from water charges, the consumer categorywise revenues for FY 2004-05 and the applicable tariffs are as at Table 6.11. Table 6.11 Customer category-wise break-up of revenues & applicable tariffs Category
Revenue Break-up (%age)
Revenue (In Rs. Crores)
Applicable Tariffs (In Rs.)
Rs. 4/Kl or Rs. 375/-
Based on the above two assumptions, the number of connections for each customer category has been calculated by using proportionality rules. Table 6.12 Customer category-wise connections S.No.
No. of Connections
l. As per the Census of India 2001, the household size in Gwalior is 6.0 (urban+rural). However, for the purpose of this project, the average household size in Gwalior is assumed to be 9.0. This is primarily based on observations made during the field survey that more than one family staying together have taken only one connection. Further, it was also observed that portions of houses have been sub-let and a second connection has not been taken for that. m. The total population being currently served water by the Municipal Corporation is approximately 7,15,740 based on the average household size of 9.0. n. Based on all the above-mentioned assumptions, the per-capita consumption of connected population works out to be 112.47 LPCD. o. Collection efficiency is 100%: Since the Municipal Corporation follows a cash-based accounting system, the correct level of annual collection efficiency cannot be estimated. TERI has estimated the revenues from the number of connections as provided by the Municipal Corporation for different consumer categories and from the consumption as estimated based on the assumptions above. Therefore, the estimates assume 100% collection efficiency. p. All bulk consumers are being currently charged a volumetric rate of Rs. 4/KL (the domestic bulk rate for more than ½" ferrule size connection). The box below summarizes these assumptions:
• • • • • • • • • • • • • •
Total water supply - 155 MLD Water Loss during treatment - 7.8 MLD (5% of the total water supply) Water Loss during T&D - 46.5 MLD (30% of total water supply) Water available for consumption - 100.8 MLD Commercial consumption - 4.03 MLD (4% of water available for consumption) Industrial consumption - 2.02 MLD (2% of water available for consumption) Water to Tankers - 0.1 MLD (Water Balance Analysis) Public Stand posts - 1.0 MLD (Water Balance Analysis) Water left for Domestic Consumption - 80.5 MLD Illegal consumption - 5.6 MLD Number of illegal connections - 10000 Water left for legal domestic consumption - 80.50 MLD Average Household Size - 9.0 members, Population connected - 7,15,740 Per-Capita Consumption of connected population (domestic)- 112.47 lpcd
Base case tariff scenario Base Case Scenario 1: Only fixed charges are levied - Based on the above-mentioned set of assumptions and existing fixed tariff rates, the expected revenues for FY 2004-05 are highlighted below. This essentially is the revenue that GMC is projected to generate from its various customer categories. Table 6.13 Base Case Scenario 1
The Table 6.13 shows that the GMC should earn Rs 8.88 Crore through revenue from tariffs in a given financial year. However, as per the financial data provided by the GMC, it actually collected Rs 5.29 crore in FY 2004-05. It can be inferred from above that the remaining part is billed by the Municipal Corporation but is not actually collected i.e. a measure of collection efficiency, which in the present context is about 60%. However, the correct estimation of collection efficiency level is possible only after proper segregation is done between the current and the arrear income for any financial year. If we assume that Rs. 0.70 crores of Rs. 5.29 crore revenue in FY 2004-05 is arrear income, the collection efficiency works-out to be 52%, which was revealed by our field visits. The Table 6.14 gives the consumer category wise tariff per connection and the cost per connection of the Municipal Corporation as per existing information and data. Table 6.14 Existing consumer category-wise average tariff and average cost (Rs/KL) S.No
Customer category
The Table 6.14 shows that at present, GMC is charging its non-domestic, industrial and bulk consumers more than the costs being incurred to provide water to them and correspondingly under-charging the domestic category. This implies that in the existing tariff structure, high level of cross subsidy exists especially for the domestic category as it contributes most to the overall tariff-cost differential calculated above. Base Case Scenario 2: Variable charges are levied as per the schedule of the Municipal Corporation for tariffs based on actual consumption. This case obviously assumes the extreme scenario in which there is a 100% metering and water tariffs are completely volumetric. Table 6.15 Base Case Scenario 2 S No
Customer Category
Ferrule Size
No. of Connections
Variable charge
Revenue from Variable charge
Rs Crore
1/4"-1/2" Connection
More than 1/2" Connection
More than 1/2" Connection
Public Standposts
As per Base Case Scenario 1, the GMC earns Rs 8.88 Crore in a given financial year. In Base Case Scenario 2, this figure rises to Rs 18.0 Crore, i.e., an increase of 102.72%. It can thus be observed from the above base case scenarios that the Municipal Corporation will earn more than twice the revenues from levying variable charges as compared to the revenue it generates through the levy of only fixed charges. This also implies that a consumer would pay nearly double the amount under variable charges vis-à-vis the existing fixed charge regime. Hence, in such a scenario there is no incentive for consumers to move towards metering. Therefore, it is imperative for the Waterworks Department to carefully examine its tariff structure so as to determine the appropriate charges for the various customer categories. These should not only promote efficiency, equity and metering but also help it to achieve financial sustainability. Analysis To assess the alternative revenue-expenditure scenarios in terminal years of the short (FY 2007-08), medium (FY 2009-10) and long-term (FY 2011-12), TERI has used the available financial information from FY 2000-01 to FY 2004-05. For undertaking this analysis, the component-wise expenditure trend of the Waterworks Department was studied and subsequently a suitable growth rate was determined for each component. This methodology is detailed below: The Waterworks Department reports its annual expenditure under two broad heads i.e. Division I (responsible for water distribution & maintenance of tube-wells) and Division II (maintenance of Moti Jheel Waterworks). The expenditure items in these divisions can be categorized as follows:
• • •
Repair & Maintenance (R&M) work Payment towards electricity consumption Miscellaneous Expenditure including Administrative & General (A&G) expenses 82
The expenditure trend for Division I & II based on the above-mentioned expense heads is shown below:
It can be observed that the expenditure trend for both Division I & II has been extremely erratic over the past five years. Hence, no financial year can be considered as a representative base year for expenditure extrapolation over the short, medium and long-term. For purposes of data projection, we have therefore used an average estimate for each expense item. The applicable growth rate on each expenditure item and the underlying rationale for choosing such trend rate is detailed below:
While R&M expense at Division I is assumed to increase at a Compounded Annual Growth Rate (CAGR) of 24.83% over the short, medium and long term, the R&M expense at Division II is expected to grow by about 8%. This is primarily based on the assumption that more expenditure will be incurred by the GMC in the coming years on R&M, as well as upgradation of the existing waterworks infrastructure.
The electricity expenses for both divisions are expected to follow the Wholesale Price Index trend (5.1% during FY 2004-05). However, as there is likely to be some efficiency improvement (3%) in energy usage over time, we assume the trend growth rate for this component at 2.1% annually.
A&G and other miscellaneous expenditure: This expense item is expected to follow an annual inflation trend i.e. 5.1% annually.
Additionally, the short, medium and long-term scenarios assume:
• •
During the entire period, GMC undertakes no tariff revision. Consumer category wise per-capita water consumption in Gwalior city remains constant over the period under study (2006-07 to 20011-12). 83
The annual increase in new water connections is approximately 3% for all consumer categories from 2008-09 except for bulk consumers and public standposts, which remain at the FY 2004-05 levels.
Changes that may take place in supply scheme on account of the new augmentation schemes and projects have been taken into account in the analysis.
Illegal connections are assumed to follow a reduction trend as percentage of the previous year's illegal connections. The trend of regularising these connections will be as follows: Table 6.16 Trend of regularization of illegal connections Year Connections legalised (%) Connections legalised
Existing Illegal Connections: 15000
It is assumed that correct reporting of connections based on household size and number of families staying in one house will take place gradually. This means that if two families are staying in one house, they will have to take two connections and accordingly pay for the same. It is assumed that the average household size will decrease from 9 to 6. The trend in achieving this is given at the following Table 6.17. Table 6.17 Additional connections due to changes in family dependence on a particular connection Year
Additional Connections (%)
Additional connections (numbers)
Based on the above two assumptions, the total number of domestic connections will be as follows: Table 6.18 Total new domestic connections added during the short, medium and long term scenarios Year
Total Domestic connections
The income-expenditure position of the Municipal Corporation and the resultant gap in the terminal years in the short, medium and long-term scenarios is given in the Table 6.19.
Table 6.19 Revenue-expenditure projections for Waterworks Department (Rs. Crores)
It is clear from the above Table 6.19 that the GMC will incur huge deficits in the future if current trends were to continue. The above gap would translate into a tariff increase of 32.6%, 59.1% and 110.3% respectively over the revenue generated in terminal year only if the existing tariffs were to continue. Moreover, the domestic tariff needs to be necessarily rationalized, as it is not based on cost 85
recovery principles. This is substantiated in the Table 6.20, which clearly shows that the difference between tariffs and cost per connection is projected to steadily rise over the short, medium and long term. Table 6.20 Difference between tariff and cost per connection in the short, medium and long-term scenarios
To stem this rising tariff-cost differential in water service provision, it is imperative for the GMC to not only undertake tariff rebalancing & rationalization, but also examine the prudency of the expenditure being incurred by it and on a regular basis. It may be noted here that the current expenditure projections are understated, as they do not include expenses on staff salaries. Therefore, the actual gap is projected to be much wider than that envisaged in all the above-mentioned scenarios. Strategy The three scenarios for tariff rationalisation and reform in the short term, medium term and long term are given below: 1. Short-term: Continuation of single part, fixed charge based tariff for all consumer categories. Volumetric charges will be introduced for consumers of those pilot areas where 100% metering takes place during this period. 2. Medium-term: Two-part tariff (combination of fixed charge and variable charge) in approximately 40% of the area where 100% metering is completed. For rest of the areas, single part, fixed charge based tariff structure continues. 3. Long-term: Transition to a two-part tariff structure with 100% metering in the entire city. The important points that need to be considered while determining the category wise tariff rates in the above three scenarios are given below.
In all the above scenarios, the variable charge should be gradually increased over the years as metering takes place and consumers start paying for the water they consume.
Consumer categories that are not being charged for the water supplied, for example, worship places need to gradually start paying for the same. If the State Government wants to provide free water to these consumers, they need to provide subsidy to the Municipal Corporation for the same.
The tariff schedule needs to be made more exhaustive, so that it clearly details the applicable charges for each consumer category, including bulk consumers. Tariff rationalization should also include some collection efficiency improvement measures for e.g. rebate/discounts on early payment and penalty of delayed payment.
Continuation of lifeline slab for "poorest of poor" domestic consumers keeping in view their capacity to pay.
Currently, there exists high level of cross subsidy in the existing tariff structure. Bulk consumers getting treated water and industrial consumers are subsidising the consumption of domestic, non-domestic, worship places and public stand-post categories. This cross subsidy should be gradually reduced and all categories be moved to pay the costs of supplying water to them. However, as highlighted earlier, there is a need to continue lifeline tariffs for the 'poorest of poor' consumers.
The Municipal Corporation needs to maintain an exhaustive database to be able to undertake tariff rationalisation. More specifically, costs incurred on inputs to water supply provision such as manpower, materials, equipments, fuel & energy and transportation etc. need to be properly documented and accounted for. Further, GMC's accounts should be audited on time.
Apart from adopting cost-coverage principles for tariff rationalization, two other operational parameters need to be considered by the Municipal Corporation. These are: a. Cost-containment: The Municipal Corporation should make all efforts to reduce operational wastage and improve cost-effectiveness. For a piped water system, measures such as minimizing non-revenue water (including water unaccounted-for and all other water not paid for) and maximizing efficiency of billing and collection can significantly reduce the cost structure of Waterworks Department. b. Liquidity-maintenance: The Municipal Corporation needs to also maintain adequate cash on hand to meet expenses for construction, debt servicing and O&M.
In the short-term, the Municipal Corporation needs to maintain billing and collection reports in accordance to its billing cycle. The format for such reports is presented in Annexure 6.2.
Data required for tariff rationalisation & financial assessment needs to be collected in an unambiguous and easily interpretable manner. This would enable the Waterworks Department to not only assess its current financial performance regularly but also undertake corrective measures as and when required. Based on information availability, the various financial ratios that could be reviewed by the Municipal Corporation are listed below: a. Rate of return: Ratio of income to average net fixed assets in operation b. Operating ratio: Ratio of operating expenses to operating income c. Current ratio: Ratio of current assets to current liabilities d. Debt equity Ratio: Ratio of long-term debt to equity e. Debt service Ratio: Ratio of internal cash generation to total debt service f. Self-financing ratio: Ratio of net internal cash generation less debt service to capital expenditure.
Recommendations & implementation plan 1. Tariff Rationalization: So far, the above analysis has assumed that there will be no tariff increase for any customer category during the implementation phase. However, if the Municipal Corporation were to charge a tariff that allows it to break-even or achieve revenue neutrality, the domestic category would have to pay more to that extent. The fixed tariff for domestic consumers at which the Waterworks Department would be able to break-even in each terminal year is given at Table 6.21. Table 6.21 Fixed domestic water tariff to break-even S.No
Term and Financial Year
Existing Domestic Flat Rate (In Rs.)
Fixed Domestic Water Tariff to break-even (In Rs.)
Short Term(Terminal Year: 2007-08)
Medium Term (Terminal Year: 2009-10)
Long Term (Terminal Year: 2011-12)
In addition to undertaking successive domestic tariff rationalization, the Municipal Corporation also needs to put in place an exhaustive tariff structure that includes charges for all types of consumers and ferrule sizes. The tariff schedule should also include miscellaneous charges such as those for road cutting (as per type of roads), for new connection, for illegal to legal conversion of connection etc. The GMC should begin to maintain a database and accounts for the Waterworks Department separately and get the accounts audited. The last section of this chapter gives suggestions on the data and information that the Municipal Corporation should maintain in order to undertake tariff reforms and achieve financial sustainability. In the medium and long term, the GMC should attempt to reduce the water loss level and bring in further efficiency improvements in its expenditure items. It should also in the long run, not only increase the tariff of the subsidised categories towards the average costs of provision, but at the same time, reduce the tariffs of the subsidising categories of industrial and bulk consumers and thereby reduce the high level of cross subsidies present in the existing tariff structure. It is necessary that in the long run tariff should sustain for actual unit cost of water produced and delivered for domestic consumption and therefore the tariff should need to be suitably modified. Economic Survey 2004-05 also recommends that reasonable user charges need to be levied for services provided as a mandatory reform to be undertaken at the ULBs level. Annexure 6.1 clearly shows that the tariff for domestic consumers in other cities is much higher than that in Gwalior. The Box 6.2 gives the rate for domestic consumption in Bangalore and Delhi.
Box 6.2 Water tariff for domestic consumption in Delhi and Bangalore Bangalore Consumption (KL) 1) 0-8000 2) 8001-25000 3) 25001-50000 4) 50001-75000 5) 75001-100000 6) 100000 & above
Rs./KL 6.00 9.00 15.00 30.00 36.00 36.00 Delhi
Consumption (KL) Upto 6 7- 20 21- 30 Above 30
Rs. per KL 0 2.00 7.00 10.00
The above strategy for the short, medium and long term will not be free from obstacles. The basic principles of tariff setting will have to be carefully studied and implemented. These are:
• • • • •
Promote economic efficiency Non discriminatory tariff structure Simplicity of tariff design Avoid tariff shocks Internalise non-economic considerations
Undoubtedly, these are complex and multifold challenges. As tariff reforms are undertaken, customer expectations start evolving. This implies that the Municipal Corporation will have to pay adequate attention to improving the quality of supply and service. With increasing transparency and consumer awareness, the hidden inefficiencies and cross-subsidies driving tariff reforms are uncovered. The consumers expect to know the following:
• • •
Whether the investments and expenditures are incurred prudently. Level of cross-subsidy and information on beneficiaries. Utility's plan for improving services
Therefore, the Municipal Corporation will have to take into consideration the above factors to be able to implement tariff reforms strategy successfully. 2. Accounting System Reforms: An accounting system is efficient if it is able to provide updated, accurate and clearly defined information on finances. As highlighted earlier, municipal bodies in Madhya Pradesh (except Indore Municipal Corporation) follow a cash-based system of accounting, which is nothing but a summary of cash as per various accounting heads. Under the cash system, a periodic or annual statement called 'Receipts and Payments Account' (RPA) is prepared. In such financial statements, the 'receivable and payable information' is absent and to that extent, the correct financial position of a Municipal Corporation cannot be ascertained. For example, if water tariff from a particular consumer is due on a certain date, the cash based system is not capable of noting whether or not 'an amount is receivable or is yet to be received'. In other words, a transaction is reported only on its receipt, even though it was due/billed earlier. 89
In view of the above, it is suggested to modify the prevalent municipal accounting and financial reporting systems from single-entry cash based to double-entry accrual based system. The accrual system has already been adopted in several ULBs across Tamil Nadu & Maharashtra and in cities such as Hyderabad, Bangalore, Ludhiana and Jaipur. This system scores over the cash based accounting as it also takes into consideration credit transactions. Briefly, the accrual system of accounting provides the following additional information not provided by the cash system: 1. Portion of income earned and portion outstanding/receivable. 2. Expenditure of an organization during a period and the amount due/payable. 3. The net worth of an organization i.e. assets owned by an organization and obligations owed by it. The accrual system of accounting is based on the following three financial statements:
• • •
Receipts and Expenditures Balance Sheet (Assets and Liabilities) Cash Flow Statement
Given below is a brief description of these financial statements: Receipts and Expenditure Statement – This type of accounting statement gives a summary of transactions recorded in the books as well as transactions for which physical movement of cash has not taken place. It primarily informs the Municipal Corporation of the various heads under which transactions remain receivable or payable. For example, in case of water tax revenues, charges pertaining to a period are accounted as gross revenue in the receipt and expenditure statement, and the portion that remains uncollected is shown in the Balance Sheet as 'Water Tax receivable relating to a financial year'. Similarly, in case of water supply expenditure, the account shows the gross expenditure pertaining to that year, and the portion that remains unpaid is reflected in the Balance Sheet (e.g. rent payable or interest payment). Balance Sheet – The balance sheet is a summary of all transactions of an organization since its inception and hence is supposed to indicate its cumulative financial position. It is termed as a balance sheet as it reflects balances carried over in the books of accounts from one financial year to the next. This statement primarily summarizes all capital transactions. It also reports revenue transactions (Surplus/Deficit for the year derived from the Revenue-Expenditure Statement) reported under 'Fund Balance'. Additionally, the balance sheet provides information on both shortterm assets and liabilities called the 'Current Assets and Current Liabilities' and on long-term assets and liabilities called the 'Fixed Assets and Long-term Liabilities'. Cash Flow Statements are structurally similar to the 'Receipt and Payment Accounts'. However, it provides a summary of all cash transactions, whether revenue or capital. Apart from shifting to the double-entry accrual system, GMC should follow a more prudent system of accounts reporting. The existing reporting inconsistencies for the Municipal Corporation have been highlighted separately earlier. 3. Introducing program-linked financing arrangements/Linking administrative grants to output & performance parameters: The annual grants received by the Municipal Corporation from the Government should not only be linked to yearly fund allocation on waterworks, but also be tied to the actual benefits/output derived at each financing stage. It is widely recognized that an appropriately designed governmental transfer scheme for the municipalities can significantly hasten decentralization efforts and improve local service delivery of water supply.
Governmental transfers can be basically of two types:
• •
General transfers that allow local governments discretion in usage Conditional transfers that are linked to usage and contribution to some activity.
However, the following 3 aspects need to be borne in mind while determining the transfer design:
Transfers/Grants should not discourage efforts at the Municipal Corporation end to mobilize revenues.
• •
The grants scheme needs to be simple, transparent and predictable. There should be an independent and rigorous monitoring system to track utilization of administrative grants: This would enable an utility to generate reliable
Currently, the GMC is receiving an annual grant from the Government to improve pay water arrangements in Gwalior city. However, there seems to be limited basis for this grant allocation, as the Municipal Corporation is not maintaining adequate expenditure accounts detailing grant utilization. This ad-hoc system of governmental transfers could ultimately result in unsustainable investments having limited delivery outcomes. 4. Prudent financial management & planning: As a first step towards financial sustainability, the Waterworks Department could tap additional revenue sources either by increasing user fees & charges/tariff rationalization, by ensuring maximum coverage & collection or by introducing new taxes & charges. The Municipal Corporation as a whole could raise resources through external funding such as municipal bonds (as done by Indore Municipal Corporation) and pooled financing. The alternatives available to Waterworks Department for resource mobilization are highlighted separately in various recommendations. On the expenditure front, possibilities of savings through efficiency improvements should be vigorously explored. In this direction, adequate emphasis should be laid on setting & prioritisation of various expenditure items, as well as on justifying the geographic benefit of service provision. The Waterworks Department also needs to make provision for increases in expenditure on account of inflation, prior service commitments and uncommitted proposals for service expansion. Additionally, for effective planning and control of municipal expenditure, the Department could adopt the following measures: a. Municipal Action Plans: Action planning at the municipal level has been widely implemented by ULBs in Brazil. This system is implemented in a phased manner i.e. from the level of strategic objectives to a medium term financial & programme plan, to an annual work programme and budget; and finally to a quarterly implementation plan. b. Performance Indicators: The annual expenditure performance of Waterworks Department could be assessed in terms of such indicators as cost-to-output ratio. c. Quarterly Rolling Plan: Short-term quarterly plans could be implemented for ensuring continuity and more effective expenditure planning. 5. Proper treatment of Capital Expenditure & Depreciation: The Waterworks Department is currently not segregating expenditure items as 'revenue' and 'capital' expenses. It can also be observed from the GMC's financial statement that the Municipal Corporation is not considering the diminution in value of assets through wear and tear due to use, passage of time and obsolescence, in other words depreciation. Sound accounting practices require the value of fixed assets to be written off on a percentage basis (cost minus scrap value) over certain number of years against revenues of an organization. Presented below is a general approach on treatment of capital expenditure and depreciation. 91
Capital expenditure (primarily to augment infrastructure and improve quality and reliability of supply) and means of financing the same are critical inputs in determination of tariffs. The proper treatment of Capital Expenditure is exacerbated by the fact that new projects aimed at augmenting water supply infrastructure are generally long-term and require investments spread over a number of years. Therefore, the capital costs cannot be recovered from the consumer in any particular financial year and needs to be spread over a number of years. The first step in treatment of capital expenditure is to apply two tests to determine whether such costs should be included in overall expenditure calculations. The 'used and useful test' examines whether the investment or expense was necessary for the provision of supply. A 'prudence test' asks whether or not the investment or expense was prudent or least cost option. In this context, it is important to compare available costing options of capital assets, as well as parameters such as reliability and quality of supply. A further consideration should be made on whether a capital expenditure due for completion towards the end of a financial period should be brought to account in the current regulatory period or deferred until the commencement of the next period. In the electricity sector, the capital expenditure is recognized when the assets are brought into service. Another important consideration in the rate making exercise is treatment of capital expenditure as part of fixed assets, which are included in tariffs by a component of return on capital and depreciation on assets. These rates in-turn depend upon the capitalization policy of the Municipal Corporation/service provider. The return on capital is calibrated to yield an acceptable rate of return to the investor (here, the Government) based on a reasonable level of capacity utilization and operating efficiency level. Simultaneously, depreciation on fixed/capital assets over its useful life should be duly accounted. 6. Inventory & Materials Management: Like all other ULBs, the Gwalior Municipal Corporation (GMC) holds a significant amount of fixed assets. However, it has been observed that very few ULBs are currently exploiting the real commercial benefit of these properties to generate non-tax revenues. This is because of the following reasons: a. Currently, ULBs (including GMC) do not maintain proper records of asset inventories. This obviously constrains implementation of strategy for optimum utilization of resources and sound inventory management principles. b. Generally, executives in the production & purchase departments take decisions relating to municipal inventories. However, sound inventory management requires the proactive involvement and participation of finance officials, who would help ensure that key resources are being efficiently monitored and controlled. It is also necessary to devise methods to arrive at the optimum quantity of inventory based on the average consumption pattern, lead time and economic considerations such as cost of carrying inventory, procurement cost and stock-out cost. To gauge the effectiveness of inventory & materials management, it might also be useful for GMC to examine the following ratios and indices.
Table 6.22 Key ratios/Indices measuring effectiveness of inventory management S.No.
Inventory Ratio/Index
Material Inventory Turnover Ratio
Annual consumption of materials
Weeks' Inventory Turnover Ratio
Material inventory on hand/Weekly consumption of materials
Average age of Materials
Average materials inventory at cost/Average daily purchase of materials
Out of stock index
Number of times out of stock/requisitioned
Spare parts index
Value of spare parts inventory/Value of capital equipment
7. Sound Billing and Collection System: As highlighted earlier, a sound billing system is extremely essential in respect of the duties and taxes levied by the municipal authority and the amount collectible from customers. This is because only a sound billing system can ensure timely serving of demand notice and collection of dues from customers, thereby enabling efficient cash recycling. A sound billing system generally has the following objectives: a. Clear accounting of dues for various customer categories b. Timely raising of bills for the water dues c. Establishing time schedules between the time of raising the bills and serving the same to the customers. d. Paying adequate attention to disputed cases and defaulters e. Accurate computation of arrears of dues in cases of water charge revision and ensuring their billing f. Balancing of manpower with work load, involved in billing consumers On the administrative front, the billing system should be decentralized to the extent possible. This system should also be amenable to incorporate changes in water tax rates/charges as and when they are imposed. Our field visits reveal that while the GMC has introduced computerization in its billing mechanism, information on customer-category wise connections and revenues is not readily available. Moreover, information on outstanding dues and bad debts is also not available with the Municipal Corporation. These lacunae in the billing system obviously need to be addressed & plugged at the earliest. On the other side of the water charge recovery spectrum is an efficient and well-functioning collection mechanism. Broadly, the objectives of a sound collection system are as follows: a. Collection from the consumers of the right amount and on due date b. Facilitate willing consumers to pay at convenient collection centres such as bank branches and corporation sub-offices. c. Prompt clarification to customers of disputed & incorrect items of billing d. Accounting for daily collections and their remittances e. Elimination of avoidable delays f. Minimizing the cost of collection g. Rigorous follow-up of defaulters h. Establishing an efficient collection machinery/establishment 93
It is recommended that the Waterworks Department conduct an in-depth survey of customer clusters, so as to properly profile the convenience of key customer categories. Moreover, the Municipal Corporation could formalize a collection target and incentive mechanism for officials/ inspectors involved in dues collection from customers. 8. Introducing fiscal autonomy: An important indicator of fiscal autonomy for any Municipal Department is the extent of own resource mobilization to its revenue expenditure requirements. Clearly, regular assessment of this ratio could help assess the extent of autonomy or dependence of the Department on the overall municipal resources. In the context of water supply operations, the GMC should ideally consider its Waterworks Department as a 'Profit Centre' and therefore devolve greater fiscal autonomy to it. Simultaneously, revenue-expenditure accounting/budgeting pertaining to its water supply operations should be done separately. While on the revenue front, the Department should be given greater independence on determination of new water charges/ taxes and revision of existing tariffs; on the expenditure front, all expenses accrued solely on water supply operations should be accounted together and covered from revenue receipts of the department. This would enable the Municipal Corporation to accurately assess financial sustainability of water operations and undertake timely corrective measures wherever necessary.
Water Demand Management Strategy: Institutional and Policy Reforms
7.1 Introduction To achieve the targets set out in the Madhya Pradesh Urban Water Supply and Environmental Improvement Project (MPUWSEIP) that of an improved coverage and transformation to a roundthe-clock water supply system with significantly less losses (<15%), sweeping changes would be required in the way the municipal corporations functions today. The institutional structure of the organization needs to be geared up for promoting managerial efficiencies and ensuring a greater level of accountability. It is thus imperative to analyze the institutional issues plaguing GMC and develop a reforms package to address these issues. This chapter tries to analyse the current institutional and legal framework for provision of water supply services in Gwalior and suggest a strategy for future action. A SWOT (Strength, Weaknesses, Opportunities and Threat) approach has been followed to identify critical issues for GMC. However since a SWOT is always more effective if carried out by the institution under consideration itself, it is also proposed to undertake a SWOT during the stakeholder consultations. Reform strategies to gear up GMC towards better efficiency are thereafter suggested. 7.1.1 Rationale for reforms It has been found that official reports tend to give much greater weightage to physical and financial progress rather than the quality, reliability and sustainability of water supply services (TERI 2002a, IRC 2003). Reported statistics usually indicate the population covered and hide important parameters like regularity or duration of supply, financial sustainability of the system, water security and longterm sustainability of the source. The Urban water supply sector in India has traditionally been plagued with high levels of inefficiencies leading to poor service delivery and a high level of losses. The sector is characterised by a low level equilibrium (Figure 7.1) wherein the low level of service and poor accountability of the water utilities leads to a poor willingness to pay among the consumers which on the other hand translates into a financial crunch for the utility making any improvements, including day to day O&M, very difficult.
Source: Deb 2003
Figure 7.1 Key issues in urban water supply: The vicious circle
Urban Local Bodies (ULBs) suffer from several deficiencies and are yet to respond adequately to emerging challenges posed by the rapidly changing urban scenario. The critical issues are service coverage and quality, per capita water supply, increasing demand for water, inequitable water supply, deficiencies in the treatment of raw water and in the distribution system along with poor revenue collection (Pachauri and Batra 2001). These drawbacks have in many ways resulted in the establishment of informal "water markets" where urban poor are the main sufferers and pay more than the affluent for the service. The solution to water supply is often seen as capacity augmentation, rather than operating the existing capacity more efficiently. This bias in favour of new projects is partly due to the lack of accountability of agencies at both local and state levels and also because inefficient management of systems goes un-noticed (The World Bank, 1999). Over exploitation of groundwater, degraded watersheds, lower water supply and sanitation service coverage, poor construction and operation & maintenance can be traced to lack of monitoring and control, low tariffs and a lack of revenue to undertake development. High Non-Revenue Water (NRW) and low water accountability results from inadequate metering and meter reading, inadequate billing and leakage of water on one-hand and illegal connections on the other. (McIntosh 2003). According to Pachauri & Sridharan (1998), since the low quality of service is the single biggest obstacle to the levy of reasonable user charges, efficient operation will help improve acceptability of higher user charges. Further over the last decade, the responsibilities and problems to be tackled by the Urban Local Bodies (as managers and service providers) have increased manifold. The 74th CAA has led to decentralization of powers and responsibilities to the Local Bodies. The Constitution thus envisages urban local bodies as being totally responsible for all aspects of development, civic services, and environment in the cities, going far beyond their traditional role. However these institutions as mentioned earlier are still in the process of building their financial capabilities and institutional capacities to address the issues in service delivery. It is a known fact that most municipal corporations in India face problems related to poor financial health, sub optimal service delivery levels, inefficiencies and a general lack of accountability. This problem has been recognized at the national level and the tenth five-year plan aims to address the problem. Box 7.1 Problem recognised in Urban Local Bodies in 10th Five-year Plan "……the focus should not only be on the investment requirements to augment supplies or install additional systems in sanitation and water supply. Instead, greater attention must be paid to the critical issues of institutional restructuring, managerial improvement, better and more equitable service to citizens who must have a greater degree of participation." "Institutions dealing with water supply and sanitation have very little autonomy on personnel and financial matters. Information systems necessary for effective management are generally lacking." Source: Tenth Five Year Plan document – Chapter 6.2
The Water works department of the Gwalior Municipal Corporation was also found to be facing this problem. It is thus important to implement a reform package, which would essentially aim at putting in place a policy and institutional framework thus addressing the root cause of inefficiencies in GMC. The huge investment requirements for urban infrastructure and the policy directives of the national and state governments also make it necessary for the local bodies to reforms their governance and management structures. Annexure 7.1 details some of the reform initiatives being undertaken at the national level, which make it imperative for ULB's to enhance their efficiencies and ensure greater transparency and accountability in their functioning.
7.2 Current legal and institutional framework for provision of water supply services Water supply services in all towns of Madhya Pradesh are provided by the Municipal corporations/ municipalities in accordance with the provisions of the Madhya Pradesh Municipal Corporation Act 1956 and the Municipalities Act. The act governs the functioning of all ULB's, defining their powers and responsibilities. The composition of the Gwalior Municipal Corporation has been fully ensured as per the provisions of the Act. The State Government has also nominated persons having special knowledge and experience in the municipal affairs recently. Wards committees/ Zonal Committees have also been constituted by Gwalior Municipal Corporation as a step towards a decentralized approach. Gwalior Municipal Corporation has been established according to the provisions of the Madhya Pradesh Municipal Corporation Act, 1956. Currently has the responsibility of overlooking a total of 60 wards. As per the act, GMC is mandated with provision of water supply services in Gwalior city and collecting charges/taxes for the same. It is vested with powers to source, treat and distribute drinking water supply in all areas of Gwalior city. The specific responsibilities of GMC (water works department) are: Key Functions of the Water Works Department, Gwalior Municipal Corporation 1. Management of Water supply schemes within the area of jurisdiction of the Gwalior Municipal Corporation.
2. Prepare proposals for Public Stand Posts. 3. Approving half-inch water connections for domestic users under existing applicable rules. 4. Stopping the proliferation of illegal connections by disconnection and regularizing illegal connections based on the existing situation, need and availability of water. 5. Monitoring the water supply arrangements using tankers and supplying water as and when the need arises. 6. Arranging water for supply from alternate sources under emergency conditions as well as advising the General Store keepers of the consequences of wastage and misuse of water. 7. Preparing proposals for preventing the misuse of water, generating awareness among General store keepers to prevent water misuse and taking action against those obtaining water from online booster pumps. 8. Assisting in the collection of water rates. 9. Suggesting water rates based on the incurred costs of the department to ensure self-sustenance of water supply schemes. 10. Proposing timelines for distribution of water based on the availability. 11. Preventing pollution of water to be used for the purposes of drinking, bathing and cooking as well as examining proposals for putting up public standposts. 12. Suggesting security measures for assets with the department such as Pump Houses, Filtration plants, Overhead Tanks as well as pipelines. 13. Executing the functions assigned to the department under Water (Pollution and Control) Act 1974 and Air (Pollution and Control) Act 1981. 14. Maintaining the underground drains as well as proposing the creation of new drains. 15. Ensuring that norms and standards for all materials used in water treatment and distribution are met as well as physical verification of the materials used is undertaken from time to time.
7.2.1 Institutional arrangement: GMC In accordance with the 74th CAA, Gwalior Municipal Corporation comprises of an elected body supported by administrative machinery. The elected wing consists of a Mayor and 66 elected councillors (one from each ward). A Mayor-in-Council is also in place according to the provisions of the MP Municipal Corporation Act, 1956 that constitutes of the Mayor and 10 council members chosen from the elected councillors. The Urban Administration and Development department is the nodal department at the state level and is responsible for providing urban services in all cities and towns. The UADD allocates funds and provides policy directives for provision of urban service. In addition the PHED (Public Health Engineering Department) is mandated with the responsibility of design and execution of water supply and sewerage schemes, which are to be handed over to ULB's for operation and maintenance. Figure 7.2 gives the institutional arrangements for delivery of water supply services.
Figure 7.2 Institutional arrangements in Madhya Pradesh for provision of urban water supply
7.2.2 Composition of Gwalior Municipal Corporation 220.127.116.11 Elected representatives The GMC comprises of 60 municipal councillors elected through direct elections from the wards headed by the Mayor. A Mayor-in-Council constituted from the councillors is also in place. 220.127.116.11 GMC staff Water supply operations in Gwalior are headed by the Municipal commissioner who is assisted by a team on engineers from the Water works department. Figure 7.3 below gives the institutional structure of the Gwalior Municipal Corporation.
Figure 7.3 Organisation chart of GMC
22.214.171.124 GMC staff (Waterworks Department) The functioning of the Waterworks Department is looked after by two Executive Engineers; one responsible for the water supply to the city and the other looking after the Head works, Pumping and the Over head tanks. Both the Executive Engineers report directly to the Commissioner. There are four Assistant Engineers (AEs) for each of the four zones who report to the Executive Engineer (City Water Supply) and two Assistant Engineers reporting to the other Executive Engineer. The structure of the Water works department is described in Figure 7.4 . 99
Figure 7.4 Organisational chart: Waterworks Department
7.2.3 Key institutional issues concerning water supply operations in GMC As is the case with many cities in India, GMC is also plagued with issues concerning inefficiencies in service delivery and low consumer satisfaction. Moreover the existing legal and regulatory framework does not allow the Corporation to work on commercial principles. It is thus essential to identify the root cause of inefficiencies in terms of the institutional issues and develop a strategy to address the same. It is also a good approach for transition to a commercial orientation of GMC. A SWOT approach is used for identifying the critical issues facing GMC in both the short term and the long term. This section aims at introducing the SWOT concept and identifying the key issues. However it is proposed that a SWOT analysis be carried out with the GMC staff during the stakeholder consultation process/training programmes to develop the detailed SWOT matrix.
7.3 Introduction to SWOT SWOT is an acronym for Strengths, Weaknesses, Opportunities, and Threats. The SWOT analysis is an extremely useful tool for understanding and decision-making for all sorts of situations in business and organizations. Table 7.1 explains the framework for analysis. The SWOT analysis approach seeks to address the concept of strategy formulation from a two fold perspective: from an external appraisal (threats and opportunities in an environment) and an internal appraisal (of strengths and weaknesses within the organization). The SWOT analysis template is normally presented as a grid shown below: Table 7.1 SWOT framework A strength: resource or capacity organization can use effectively
A weakness: a limitation, fault or defect in the organization that will keep it from achieving its objectives
An opportunity: any favourable situation in the organizations environment
A threat: any unfavourable situation in the organization's environment that is potentially damaging to its strategy
Due to its many advantages, it is proposed to use it for the purpose of strategy formulation for Gwalior. The detailed SWOT Analysis would be undertaken at the stakeholder's consultations. The major issues of concern have been identified to guide the discussion and brainstorming for the SWOT analysis. 7.3.1 Key Issues for SWOT Analysis Key issues have been identified under various broad headings, which require immediate attention. 184.108.40.206 Lack of policy guidelines for service delivery Currently water supply services in Gwalior are provided as per provision of Municipal corporation act, 1956. However there is a lack of policy directive from the state government/municipal government to promote managerial efficiencies and customer orientation. Further leads to a fragmented approach wherein water supply schemes are designed on a adhoc basis rather than taking a holistic approach for ensuring long terms water supply to the city. 220.127.116.11 Legal framework As per previous studies conducted by ADB, FIRE-D etc at present there are inconsistencies in the various laws governing urban planning in Madhya Pradesh. e.g. municipal law, town and country planning law, district-planning law etc. Further the byelaws for provision of water supply need a thorough revision with clear guidelines on cost recovery and empowering GMC to take punitive action against defaulters. 18.104.22.168 Organisational structure There are no clear responsibilities on the role of the elected representatives and the reporting relationship between staff and elected representatives. – The powers of mayor, mayor in council and the local body are not defined adequately. – Further the current institutional structure of the GMC as discussed before includes mainly engineers, some of which are on deputation from PHED to the GMC. This arrangement needs to be clearly defined in terms of power, roles and responsibility, reporting etc. – Within the Municipal Corporation itself, there is a clear lack of interdepartmental coordination. – Overall there is lack of accountability and transparency. There is also a complete lack of civil society in the planning and implementation of programmes. – The current institutional structure makes it very practically impossible to have customer orientation and improved efficiencies. It is thus imperative to review the existing framework with an objective of having specialised cells for customer grievances, GIS, MIS etc. 126.96.36.199 Internal Management One of the weaknesses of the GMC is the complete lack of internal procedures and information management including financial management. Further the planning capacity, human resource development and financial management functions are not adequately developed, as a result of which these are operating inefficiently. 220.127.116.11 Operational Aspects
There is a lack of information on consumption of water in the city, the length of the distribution network, pressure in the pipelines etc. This is due to the fact that all connections (Domestic/ Commercial/Institutional) are unmetered and the available information on the production and supply of water in the city is improperly recorded. 101
The available data is also conflicting in nature and constitutes mainly of poorly recorded estimates, which could prove to be a major hindrance in the efficient planning and management of the department. The data is also inadequate to enable a good financial assessment.
Either maps are not available or available as a sketch. This kind of information is highly inadequate for carrying out GIS mapping or further planning work in this sector.
22.214.171.124 Financial Aspects The financial data is poorly recorded. Only single digit accounting system for recording of financial information is used which does not clearly indicate the existing situation. Also, there is no monitoring and accounting of the funds allocated/ grants received and their usage. Transfer of funds from one project to the others is a common practice thus making the situation even more chaotic. 126.96.36.199 Infrastructure
A large amount of the existing infrastructure for the operations and management of water supply is either out-lived or poorly maintained. Further there is a urgent need to modernize the infrastructure specially for data recording and transmission. There is also no policy in place for ensuring regular upgradation or replacement of old and out-dated infrastructure.
Modernization and upgrading of systems and procedures in city management through equipment, skill-enhancement and application, and updating of manuals and codes (e.g. GIS and MIS) have not been carried out to meet the current and emerging challenges.
22.214.171.124 Staff Capability/motivation
• •
The Municipal Corporation is technically sound with a work force constituting mainly of engineers.
Based on limited interaction with the municipal employees it can be inferred that the motivation levels and job satisfaction is very low due to the following reasons:
Though the Municipal Corporation has a technically competent staff comprising mainly of engineers, most of the staff of the municipal corporation were found woefully unaware/lacking in modern skills for water management. Further the staff lacks basic public interaction, financial management and social skills.
– The poor working condition and multiple pressures from community, department and politicians. – There are no incentives for the employees to perform. – Political intervention in the GMC also reduces the motivation and performance of the employees. – As observed during the interactions with the officers of Municipal Corporation, employees of PHED on deputation to GMC lack a sense of belongingness as they are estranged from the PHED and GMC treats them as outsiders being paid for by PHED. This eventually results in low motivation for performing their duties. 220.127.116.11 Public participation/ consumer interface
One of the major issues facing GMC right now is to improve its civil society interface and emerge as a responsible customer oriented organization. Currently GMC is perceived as an inefficient and corrupt organization.
Gwalior Municipal Corporation has taken the initiative to formulate a citizen's charter. The existing citizen charter for water supply provides only a listing of services provided, the contact persons for malfunctioning services and the time lines for addressing such complaints.
No RWAs or NGOs working in the sector of public water supply. There is a pronounced lack of role of the civil society and the urban poor in policy formulation, decision making and implementation of civic plans as the Municipal Corporation has never encouraged the participation of the public in these.
There is a major communication gap between the GMC and the consumers. The public has a poor image of Gwalior Municipal Corporation due to poor service delivery. As a result, the pubic has lost faith in GMC and have since shifted to other sources of water supply i.e. groundwater supply. This in turn increases groundwater exploitation.
There is low level of expectation of the consumers but also low willingness to pay for piped water supply. Water is still considered as a social good and not an economic good. There is a lack of awareness about the economic costs of water. This can be attributed to low awareness among the citizens regarding the costs involved in delivery of water services.
7.3.2 Results of SWOT Analysis Results of SWOT analysis carried out by GMC during the training workshops is given in Table 7.2. Table 7.2 Results of the SWOT analysis
7.4 Recommendations for Policy and Institutional Reforms Based on the critical issues identified in sections above it is proposed to initiate a comprehensive reform programme for management of water supply to Gwalior city. The proposed strategies also aim to facilitate the implementation of the Water Demand Management Strategies proposed in the earlier chapters. Short, medium and long-term implementation goals for each of the strategies have been identified to ease the load on the Municipal Corporation for their implementation and also to provide the Municipal Corporation with measurable targets. The key underlying principles that have been adopted while formulation of the strategies are:
Promoting a commercial incentive based environment for water supply based on cost recovery principles while ensuing services to the poor.
• • •
Greater public participation and involvement of public in managing water supply systems. Enhanced capacities of the Municipal Corporation to manage the reform programme. Reorientation of the utility to have a customer focus facilitating improvements in service delivery.
To achieve the above objective following reform strategies are proposed: 7.4.1 Formulation of a vision and policy for provision of water supply services To achieve the objectives it is recommended that GMC sets out a vision for itself, which should incorporate the principles stated above, and act as a guiding document for the water utility. As of now there is no policy or vision document for provision of water supply services to Gwalior. As a first step it is thus recommended that a vision be developed for provision of water supply services by involving all stakeholders such as GMC employees, NGOs, academia, RWAs etc. The vision statement should draw upon the existing national and state water polices and urban development plans adopted by the state and national governments and also the expectations of the consumers. The policy should address issues such as consumer awareness, up gradation of infrastructure, reducing losses/NRW, cost recovery and financial sustainability of operations, improved service delivery and customer satisfaction. It is also recommended to have a legislation in place which could address the issue of over exploitation of groundwater and its recharging. 22.214.171.124. Defining a water services policy and vision for GMC The present project is instrumental in identifying some of the key issues plaguing the Gwalior Municipal Corporation. On the basis of this analysis it is proposed that a brainstorming session be conducted to develop a vision for water supply in the city. It is important to involve the stakeholders in the process right from the start process. The current citizen charter of GMC for provision of water supply services provides only a listing of services and the suggested time frames for action. This needs to be revised and a much more comprehensive charter including the vision for GMC, details on the various services provided by GMC and the mechanisms for availing those services should be developed. 126.96.36.199 Infrastructure development plan for water supply On the basis of the vision document GMC should develop a master plan for provision of water supply services in Gwalior. It may also draw-up annual plans and short-term plans for a period of 5 years focusing the areas identified in the city level master plan and policy as needing immediate attention. It is important to understand here that such plans are instrumental in the implementation of the water policy and thus should have clearly defined targets. The plans should also outline the approach 104
that should be used for achieving these targets, the possible constraints as well as suggest methods to overcome these constraints. It would be highly beneficial in the implementation and monitoring of the annual plans if it incorporates an activity schedule on a time scale. 7.4.2 Organizational restructuring As discussed in sections above, the Gwalior Municipal Corporation is responsible for provision of water supply services in Gwalior in line with the provisions of the Madhya Pradesh Municipal Corporations Act 1956. GMC provides water supply services through the water works department, which is primarily staffed with engineers some of which are on deputation from the Public Health Engineering Department. Further there is an ambiguity in the roles of various departments. Following broad recommendations are suggested for consideration by GMC for improved service delivery. Each of these would require brainstorming and stakeholder consultations to develop further. 1. Restructuring of the water works department with clear demarcations for planning, construction, design, distribution O&M and plant O&M. 2. Reorganization of the institutional structure in parallel with the proposed reorientation of the distribution network into hydraulically discrete zones such that each function is taken care by one engineer. 3. In addition it is important to clearly define roles for each functionary in the demand management strategy and provide adequate training to carry out the desired tasks. 4. Further it is important to build in an incentive scheme for the employees to motivate them to achieve improved efficiency. 5. Certain engineering posts may be re-designated as managerial posts in wake of the responsibility to be assumed by these professionals after the reforms. 6. Creating special cells for functions, which have been neglected till date such as leak detection, consumer grievances and database management. This has been discussed in detail below. 184.108.40.206 GIS Cell The Municipal Corporation has a computer wing. To set up the computer/GIS cell, the services of the computer cell could be used. The computers and the software could be purchased and installed by this wing. Hiring of specialized manpower for preparation and updation of GIS maps needs to be undertaken. 220.127.116.11 Consumer Grievance Cell The consumer grievance cell needs to be created for registering consumer complaints, sort them according to the action that is required and hand it over to the concerned personnel. The short-term measure for consumer grievance cell calls for a minimum facility of telephonic registration of complaints besides the existing system of personal complaint registration. The possibility of involving the private sector can be explored for this cell. It is expected to maintain a complete database on the type of complaint, area/ward/zone from which the complaint is registered, concerned personnel/ department and also a follow up on the action taken. 18.104.22.168 Leak detection The leak detection cell is proposed to be set up, first to enhance the leak detection facilities of the
water department, second to draw attention to the problem of leakage in the system and ultimately to delegate manpower which looks after only the leak detection and leak repairing functions. It is proposed at the short-term level to outsource this function to a private player till the time capacities of the GMC are built to handle it on its own. The private sector involvement could be based on an 105
incentive based approach, where incentives could be provided to the private body for attending above a certain number of complaints on a daily basis. 22.214.171.124 Billing and collection The aim of setting up a separate cell for billing and collection is to segregate this function from the rest of the water department functions. The short-term aim for this cell is to have completely computerized records and the analysis of the available information. It is also proposed to decentralize this process to the zonal levels for ease in billing and collection. As a first step towards increasing the bill collection efficiency, it is proposed to club the water bill with the electricity bill. The electricity department has better capacities for handling bill collection. This system is practiced in Chandigarh and has been quite successful. The possibility of commissionbased outsourcing can also be considered for bill collection. 7.4.3 Legislation for control on groundwater use It has been observed that the Gwalior Municipal Corporation is not very comfortable with the idea of bringing in substantial changes in the existing tariff structure. This is partially because of the apprehension that such a strategy may lead to a reduction in their consumer base, especially with the consumers (mainly bulk consumers) increasing their reliance on groundwater supplies. It is therefore necessary that legislation should be formulated in the state so as to regulate and control the development of groundwater resources. This may include providing permission for sinking new wells and registering the existing users, especially in sensitive areas wherein unsustainable withdrawls have been observed. Delhi Government has a similar legislation in place. Model Bill circulated by the Union Ministry of Water Resources has underlined the broader issue of regulation and control of development of the groundwater in the country. The Model Bill provides for an independent regime for this purpose obviously looking at the geographical size of the States and multiple problems of regulation and development of groundwater in urban and rural areas of these States. In line with this, Delhi Water Board (Amendment) Bill was introduced in 2002. Similarly, legislation for harvesting rainwater in the state should be developed. Different states have already enacted such legislation or are in the process of doing the same. The Central Ground Water Authority (CGWA) has made rainwater harvesting mandatory in all institutions and residential colonies in notified areas (South and Southwest Delhi and adjoining areas like Faridabad, Gurgaon and Ghaziabad). This is also applicable to all the buildings in notified areas that have tubewells. Such legislations will not only check the misuse and over use of resources but shall also bring in awareness on the need to conserve resources, especially rain water. 7.4.4 Management Information system It has been observed in the Gwalior Municipal Corporation that important information is usually scattered, non-standardized, and improperly reported. An MIS (management information system) can help public managers achieve greater efficiency and effectiveness, especially when there are resource constraints. It is a tool that can be useful in making all types of decisions-at the operational, strategic, and policy levels. One of the most critical bottlenecks in implementing the water demand management strategy is the lack of baseline information/ unavailability of authentic information even with the middle/junior management level. Thus it is recommended that as a first step to the reform process GMC should develop a comprehensive MIS that covers all aspects of water management.
An MIS is basically a system for recording and reporting information in a way that promotes efficiency and effectiveness, and facilitates long-term planning and decision-making. Hence, information has to be presented in such a manner that is useful for decision-making instead of remaining just as data, which may not serve the needs of the corporation. Box 7.2 Bangalore Information System on Networks (BISON) Bangalore Water Supply and Sewerage Board (BWSSB) has recently completed the development of a Geographic Information System (GIS) and computerization of water supply and sewerage networks for 100 sq.km. of its service area in Bangalore. The project was implemented with a funding of 7.8 million francs from the Govt. of France. The consultancy services for the Project were provided by SCE (Nantes, France) and IRAM Consult (New Delhi, India). After the successful completion of the Phase-1 of the GIS development for the 100 sq.km. pilot zone, the Project has been extended, with additional French assistance of 5 million francs, to cover the full BWSSB service area of 300 sq.km. in Bangalore. BWSSB plans to ultimately implement a GIS based system for about 600 sq.km. covering the total Bangalore Metropolitan area and some other areas. Source: Change Management Times, September 2003, by Abdullah Khan, President, IRAM Consult Intl. Pvt Ltd., New Delhi
An MIS can thus help the municipal corporation to achieve greater efficiency and effectiveness, especially when there are resource constraints (Box 7.2). The approach to develop a structured MIS is presented here. The key features of the approach are: – Information collection and compilation: Data is captured at the operational level viz. Accounts, Finance, Field Units, site offices, etc. in standardized formats. Thus, it constitutes a major part of the short-term strategy proposed for GMC. A key part of the process is to identify the right kind of information required at each level and then develop indicators to capture the required information. – Information Technology (IT) infrastructure: It forms the backbone of the system and facilitates timely & accurate collection/compilation and analysis of data. – Performance Measurement: At the middle level and top level, the information is validated, reviewed and corrective action initiated. Performance measurement is undertaken at this level to optimally judge the performance of the Municipal Corporation and its employees. 184.108.40.206 Short and Medium term Strategy As a first step to the establishment of a computerized information management system in GMC, it is imperative to undertake a detailed assessment of information requirements for decision-making process. This may be compiled in the form of performance indicators to be used at all levels. Formats for collecting the relevant information to feed into the indicator framework may subsequently be developed along with the frequency of reporting. The information to be collected may broadly be divided into three sets (refer GIS Strategies, page 41-43) as indicated in the strategy for developing a GIS database: – Asset database – Operational data – Consumer data
22.214.171.124 Long term interventions All departments of GMC should be technologically linked (LAN, WAN etc) so that communication and flow of information is instant and smooth. All the information can be added in the GIS database in due course. Such exercise shall also help GMC to make an analysis of its performance compared to the targets set for it on national and international benchmarks. 220.127.116.11 Operationalizing Performance measurement Operationalizing a performance measurement system would essentially involve developing a set of performance indicators to imitate the benchmarking process, developing an MIS to collect the right information and start using the information generated to take corrective action for improving the performance of the utility in both physical and financial terms. Figure 7.5 gives a broad outline of procedure for operationalizing a Performance Measurement system. 7.4.5 Performance Measurement (PM) Though water supply projects are designed as per the government norms there are hardly any performance targets that the municipal corporation adheres to. Further, there is no assessment of the service delivery levels and conformity to norms. There is thus no obligation of the Municipal Corporation to check the service levels as envisaged are achieved on a continuous basis. To achieve the desired efficiency levels it is thus critical to define operational targets for both physical and financial performance. Performance measurement is the starting point for any such initiative. A properly designed PM system, in conjunction with a supporting MIS (Management Information System), can go a long way in improving the efficiency and effectiveness of the GMC. A simple truth about PM is that 'what gets measured gets done'. Performance Measurement is a practice that many organizations adopt in order to achieve higher levels of efficiency and greater effectiveness in their operations. It also serves as a tool for strategic decision-making and long-range planning. With increasing pressure on urban local bodies to improve their performance in the provision of civic services, there is a great need to integrate modern management practices into public systems, drawing from the corporate sector. In the context of urban local bodies, PM can be defined as the process of determining how efficiently and effectively the concerned agencies are delivering the services. It provides an assessment of the quality of work the local body is doing and how successful it has been in satisfying community needs and expectations. The most important reasons for measuring performance in urban local bodies are: – Greater transparency in the organization – Strengthening accountability – Rationalizing decision-making. PMS can also assist in the performance appraisal of employees by providing the basis for decisions regarding annual salary increments and promotions or even punitive action against employees whose performance is unsatisfactory. This, in turn, would lead to better governance. The key elements of a PMS are a PM (performance measurement) framework, a set of performance indicators, a supporting MIS (management information system), and a strategy for performance benchmarking.
184.108.40.206 Performance measurement framework Performance measures indicate how much or how well the Corporation is doing. An I-O-E-O (InputOutput-Efficiency- Outcome) framework can be used to measure the performance of a utility against four types of performance measures. - Input measures indicate the amount of resources used. These indicate the level of effort but are strictly not a measure of performance. - Output measures indicate the level of services provided or amount of work done. These measure performance in terms of how much, not how well or how efficiently.
Source: TERI 2004; Benchmarking performance: A manual on performance measurement in Urban Local Bodies
Figure 7.5 Implementing PM system
– Efficiency measures relate outputs to inputs, or work performed to the resources required to perform it. These indicators are central to PM, but they do not measure the results achieved. – Outcome measures indicate the degree to which programme objectives are achieved and measure the value of service from the perspective of the end-user. 126.96.36.199 Performance Indicators In practice, measuring performance is a complex exercise because, for each selected measure, there should be a practical measurement strategy-an indicator that captures the concept to be measured and is easy to operationalize with the available information. Table 7.3 below gives an example of I-O-E-O indicators. Table 7.3 Examples of the four types of performance indicators applied to urban water supply service Type of Measure
Water Supply Service
Installed capacity of water filtration and treatment plants
Average daily clear water production
Total staff per 1000 connections / % water losses
Percentage of population receiving adequate quantity
7.4.6 Capacity building To effectively implement a comprehensive and integrated water supply reform programme there is a need to build the capacities among the staff of the Municipal Corporation on the latest tools and approaches to managing a water supply utility in an efficient manner. There is severe need to build capacities of the staff and the officials on key concepts of the WDM strategy, policy, and institutional frameworks to cover issues related to demand forecasting, auditing, commercial management practices etc. A continuous process of training the professionals on diverse issues is required. This will not only improve their skill set but also motivate the staff. Some of the specific aspects on which the municipal staff would need training are project formulation and appraisals, financial management, social aspects, GIS, MIS and modern tools for water management such as network modelling, leak detection and SCADA systems. In addition almost the entire staff (supervisory and managerial) needs to be trained on the use of Information technology. Box 7.3 highlights the human resource development efforts undertaken at the Chennai Metro-water which may be used as an example for GMC.
Box 7.3 Human Resource Development, Chennai Chennai Metro water as a part of Human Resource Development has established a full-fledged staff-training centre as early as 1979 to cater to the growing needs of all categories of employees. Metro water Training Centre has been imparting training to its staff covering all the categories including field workers. For about two decades the orientation was mainly in the direction of improving the operational practices. A reorientation towards managerial aspects was considered necessary and accordingly the staff training activities were restructured. In-House Training Programme for Metro Water Staff Employees including technical, administrative, finance and field workers are trained in courses related to Finance, Commerce, Administration, Engineering and Operation. Twenty-eight modules in two categories Technical and Management are offered. New topics such as leakage control, water conservation, water quality, human resource development, project management and financial management have been introduced. Special courses are also offered in Introduction to computers, Implementation of Official Language to familiarise the staff in preparing drafts and letters in Tamil, wireless operations, Proper Maintenance of Files and Records, Contract procedures and Transparency Act, Activity Based Accounts and Budgeting. Training Program for Other Institutions Exclusive courses are also conducted based on request from various institutions. Training programmed for Science students of Women Christian College, Chennai was conducted in "Water and Sewerage Treatment and Analysis". An "Orientation Course on Execution of Sewerage works" for TWAD Board Engineers and Tamil Nadu Urban Development Project sponsored Orientation Course for Municipal Engineers was designed and conducted for 249 Municipal Engineers. Government of India (CPHEEO) sponsored refresher courses are conducted every year. Awareness programme on Rain Water Harvesting are conducted for board staff, NGOs and general public. The board officers are deputed to attend seminars and training programmes conducted by other organisations in India and abroad. Employees are also encouraged to pursue graduate or postgraduate programmes. As a part of the human resource development, department tests, appreciation and awards, are also extended to achieve increased productivity and efficiency for organisational success.The participants of other public utilities from all over India are participating and getting trained from the level of Assistant / Junior Engineer to Superintending Engineer cadre in these courses. The topics covered in Metro Water Training Centre are: 1. Sewage Works Supervisors 2. Care and Use of Chlorinators 3. Corrosion Control 4. Filter Operations 5. Laying of Water Mains and Sewer Mains
188.8.131.52 Implementation plan In light of the above and the skill enhancement, it is recommended that a structured approach be developed for capacity building. Followigng specific actions need to be undertaken: – A separate training cell needs to be created to look into the training needs for the entire water works department of the Municipal Corporation. Outsourcing of this cell to a specialised external agency may also be considered. – The training cell would identify the specific training needs of all employees and develop a training calendar for a year. – Specifically targeted training programmes may then be conducted using both internal and external resources. – A feedback and evaluation system must also be instituted to monitor the effectiveness of the training programmes. 111
Figure 7.6 Capacity building framework
To enhance the current skill set of functionaries and to enable them to perform the envisaged tasks more efficiently, the following measures are recommended: 1. It is recommended that for the purpose of training, the entire staff may be divided into four categories: – Operating level: Beldars, foreman, lineman etc. – Supervisory level: Junior Engineers – Managerial level: Assistant Engineers and above who have overall responsibility for management within their zones. – Top management: Superintending/Chief Engineers, Commisioners, Elected Representatives (Councillors, Mayor-in-Council, Mayor etc.) 2 Following training modules are proposed as part of the capacity building programme: – Policy and institutional reforms – Technical – Financial management 3. IT (Information Technology) – Environmental management – Social – Customer services – General like safety procedure, regulations etc A combination of various training tools such as classrooms, case studies, hands on training and cross visits may be employed for each course. The training cell should also work out the training methodology for each programme while designing the courses. A broad outline of training methodology is given in the following section.
Training methodology It is proposed that a combination of lectures, exposure visits and onsite training may be employed for skill development of the staff. To begin with the training cell must conduct a review of the functions and responsibility of the entire staff of GMC and draw up the list of skill sets required for undertaking the job. This may then be compared to the existing skill sets of the various functionaries to identify the specific training needs. As a first step the top management of GMC must be sensitized to the reform agenda and need/ benefits of investing in a large-scale capacity building programme. Specific courses as given at Table 7.4 may subsequently be conducted.
Table 7.4 Training modules Level Module
Operating level
Supervisory level
Policy and institutional
Managerial level – Policy and institutional frameworks for delivery of WATSAN services including various forms of PPP's. – Principles of Financial Management including tariff restructuring – Project formulation and appraisal
– O&M of WTPs and distribution network – Leakage detection and control – Record keeping – Metering
– Overview of water supply
– Overview of water supply operations.
– Basics of design
– Importance/concepts of WDM
– Basics of equipment O&M – Tendering for technical works – Water balance estimation and auditing. – Materials management
– Preparation of DPRs (project formulation and appraisal) – Project planning and control (Use of PERT/CPM)
Financial management
IT (Information technology)
– Basics of financial management
– Basics of computers (wherever applicable)
– Basics of financial management – Accounting system
– Accounting systems
– Budgeting
– Procurement
– Principles of tariff restructuring
– Basics of computers
– Basics of computers
– MS–Office
– MS–Office
– Database management
– Database management including GIS – Modeling tools for distribution optimisation and demand assessment – Management information systems
Environmental management
– Environmental issues related to water supply
– Environmental issues related to water supply. – Basic course in environmental assessment
– Environmental issues related to water supply – Basic course in environmental assessment – Techniques/tools for environmental assessment
– Social issues related to water supply
– Social issues related to water supply
– Social issues related to water supply – Rehabilitation of PAP – Techniques for social assessment
Customer services
– Basics of public dealings
– Grievance redressal system – Grievance redressal system – Basics of public dealings
– Basics of public dealings
– Safety procedures – Rules/regulations
– Safety procedures
– Safety procedures
– Rules/regulations
– Rules/regulations governing GMC
governing GMC
governing GMC – Time management
– Time management – Human resources management – Basics of water resource management and issues facing water sector in India
7.4.7 Regularisation of illegal connections Non-revenue water in Gwalior has been estimated to be around 40%. A major part of the non-physical losses are attributed to pilferage/illegal connections across the city. All unauthorized usage through either tampering of meters, illegal withdrawal from mains/distribution pipes etc. are considered as illegal connections. Illegal connections not only result in a loss of revenue to the Municipal Corporation but also lead to wastage of water, as these consumers do not value the water they use. Further, illegal withdrawal of water is against the basic principles of law and equity. Thus, a strategy for reducing the number of illegal connections needs to be formulated and adopted. The Nagpur Municipal Corporation has adopted a pragmatic approach to the regularization of illegal connections and a similar approach may be tried for Gwalior (refer Box 7.4). As part of its efforts to reduce revenue loss, the Bangalore Water Supply and Sewerage Board "regularized'' 35,000 unauthorized water connections during the past six years and replaced 1.35 lakh outdated or malfunctioning domestic water meters (refer Box 7.5). (www.hinduonnet.com) Box 7.4 Strategy adopted by Nagpur Municipal Corporation for Reducing Unaccounted-for Water In early 2001, the water supply situation in Nagpur city was far from satisfactory. Nagpur Municipal Corporation (NMC) was concerned about a very large number of illegal (unauthorized) connections that resulted in substantial loss of revenue to the corporation. Although all water connections in Nagpur city were required to be metered, it was estimated that there were nearly 35000 un-authorized water connections in Nagpur city at that time. In order to improve the revenue situation NMC declared a time bound scheme for regularization of all illegal water connections in the city. To implement the scheme NMC adopted a pragmatic approach, since water connections (both legal & illegal) were installed through plumbers, NMC decided to involve plumbers in detection of illegal connection and its subsequent transfer into legal. A security deposit of Rs 5000 was announced for licensed plumbers and the renewal fee was increased from Rs.25 to Rs. 30. After a protest by plumbers, it was agreed upon that the security deposit would be waived off against an active participation by plumbers towards the drive to detect and regularize illegal connection. A target of finding 35000 illegal connections was set with an incentive of Rs. 50-100 per illegal connection. The plumbers were organized into small teams, which conducted door-door survey, filled simplified forms and collected charges as laid down by the NMC. Effective arrangements were made, to accept application forms, sanction application, and accept requisite charges. Awareness was disseminated through media about the drive. About 25,000 (71%) illegal connections were detected and regularized within a period of 4 months. Revenue from water supply of the NMC also had substantial increase. The quantity of water billed in 1998-99 was 163 MLD, whereas in 2002-03 the quantity billed was 300 MLD, i.e., nearly double. This initiative has brought the NMC closer to its goal of universal metering in the city. The time-bound regularization scheme received tremendous response due to the simplified procedures and reasonable charges. The citizen's feedback as reported in the media was very positive.
Box 7.5 Legalizing water in slum colonies – Bangalore The Bangalore Water Supply and Sewerage Board (BWSSB) created a social development unit within the utility to promote legal connections to the piped municipal water supply as part of a much larger water sector reform strategy funded by the Australian aid agency, AusAid. Although the unit was created specifically to drive a donor-funded pilot project in three slums, it has persisted beyond the end of the pilot project, expanded its scope to a handful of new slums, started planning for the entire city, and continued to generate great support from the Chairman of the Water Board. These efforts provided an interesting case of how a progressive unit within a reform minded organization can tackle the twin problems of low access levels and illegal connections in slums. When the social development unit embarked on its first effort to connect slums legally to its piped network, it was clearly operating at the level and mindset of a pilot project. The project had all the requisite nursing required to ensure its success. Three slums were carefully chosen to reflect typical slum characteristics across the city: high density, legal land tenure, and informal land tenure. The aim of the project was always to show that slums can be connected with slum dwellers paying some share of the cost. To this end, several measures were taken to lower the bar and ensure replicability. First, the water board abolished the requirement for proof of formal land tenure. Second, pricing was subsidized through a reduced connection fee, although the volumetric tariff rate applicable citywide was not altered. Third, an institutional structure was developed in which geographically situated sub-district engineers work closely with the head of the newly created social development unit to extend the pipes, ensure water flow, maintain pressure, and carry out water meter readings. Fourth, the board gained bargaining power and leverage with slum dwellers after an amendment to its charter was passed making illegal connections punishable by fine and imprisonment and the board embarked on a controversial regularization drive. Roughly 1,000 households were connected in the three pilot slums, though it is only a very small proportion so far, the approach will over a time be more than being a mere policy gesture. The case is thus a good example of how a public sector utility begins to meet its obligations to serve the entire city, including slum dwellers.
22.214.171.124 Implementation plan Short-term It is generally not practical to simply disconnect illegal connections and therefore, it is recommended that such connections be legalised by charging a nominal fee. Strategy for reduction in illegal withdrawal would essentially involve development of a policy for regularisation of illegal connections and a strict enforcement of the same. The strategy should aim at regularising maximum number of illegal connections through a simple administrative procedure. A step-by-step approach to regularisation of illegal connections is discussed below: – Identification of illegal connections: The first step would be to identify and record information on the number of illegal connections, their location and population/households served. A detailed survey may be commissioned for this purpose. One approach could be to outsource this activity to the local plumbers on an incentive based approach. These plumbers would be more aware of the location of such connections. These local plumbers can also convince people about the need for regularization and the scheme offered by GMC. – Setting date for regularization of illegal connections: The entire regularization should be within a specified time frame. After lapse of this date, a strict enforcement campaign should be launched to disconnect all illegal connections or regularize them only after a penalty fees is deposited. – Awareness campaign: An awareness campaign must precede any such initiative, which should include the use of both PLA (Participatory learning appraisals) tools and mass media to create awareness among the consumers about the problems stemming from illegal withdrawal of water. The awareness campaign must also involve the local councillors and the RWAs. Incentives, in the 116
form of financial awards and recognition, may be instituted for wards with no illegal connections. This shall encourage the councillors to play an active role in the regularization drive. – Regularization of connections: Detailed formats and guidelines should be developed, discussed and disseminated before a regularization drive is initiated. Connections may be regularized by paying a nominal fees, which may be same, or 1.5 times the charges for a new connection. It is very important that all necessary information is provided to the public regarding the regularization policy and the procedures should be simple so as to encourage people to regularize connections. – Provision of adequate and safe drinking water: In most cases the community resorts to illegal connections when adequate water supply is not available. It is thus ensured that all areas with major concentration of illegal connections are provided with adequate water supply through augmentation of the network. Medium term In the medium term, a strict enforcement on part of GMC is a must. The users should realize the economic cost of water and start developing a habit to pay for the water consumed by them. The Municipal Corporation needs to take punitive actions for those indulging in any kind of water theft, on lines similar to the electricity sector. Lessons may be drawn from the electricity sector in this aspect. Obstacles Political support and community awareness are key to success of any such drive. Further simple procedures and transparency would ensure that more people come forward for regularization of connections. 7.4.8 Consumer awareness One of the key challenges facing GMC is the low level of satisfaction amongst the consumers regarding the services provided by GMC. It has also been observed that water is considered more as a social good rather than an economic good. Awareness on water conservation is also minimal. Such a scenario leads to water wastages, low willingness to pay and a poor perception of service provider, which further leads to a communication gap between the consumers and the corporation as the feedback mechanism is completely absent. It is therefore necessary to build consumer awareness on water use and conservation. Enhanced consumer awareness shall also help GMC in getting greater cooperation from the consumer and build a better understanding of their needs. Education and the involvement of the general consumer is also an important aspect of any WDM strategy. To tackle the above issues, it is imperative that the reform programme includes a component of IEC (Information, Education and Communication), which would motivate users to conserve water. This shall also build awareness on the costs borne by GMC in water treatment and supply to household and hence create a willingness to pay among consumers. It may further be necessary to build a consensus among the various stakeholders on the reform programme that GMC may embark upon. It is thus essential to involve stakeholders such as academia, resident welfare associations, prominent NGOs and independent experts in the project preparation and build consensus on the reform agenda. Media should also be included extensively in such a process of consensus building. A well-designed IEC campaign should thus be launched which aims at delivering certain key messages to the consumers such as: – Key issues plaguing water supply services and the need for reforms – Water stress in the country and the need for conservation 117
– Rainwater harvesting: Need and approach – Need to pay for water – Need for metering and the procedures involved – Regularization of connections – Water conservation at household level – Avoiding water leakages before and after the property line etc. 220.127.116.11 IEC strategy The IEC strategy should necessarily look at informing various sets of consumers and bringing about a behavioral change towards water demand management. Figure 7.7 gives a framework for an IEC strategy for water demand management.
Figure 7.7 Framework for IEC strategy Source: UNICEF 2004
126.96.36.199 Approach to IEC campaign It is suggested that a step-by-step approach to IEC may be followed as given below:
Step1: Inform and build consensus among the GMC employees on the need for reforms and take feedback.
Step2: Identify and map various stakeholders such as RWAs, NGOs, academia, researchers, media etc and inform about the programme through workshops/stakeholder consultations.
• •
Step3: Modify the strategy incorporating the suggestions received in Step 1 and 2 above. Step 4: Design IEC campaign for general public. It is suggested that a two-pronged approach is adopted for such a campaign involving the use of mass media tools on one hand and a direct interaction with the community groups through involvement of NGOs to inform the community
on various aspects of WDM. Exhibitions, documentaries, pamphlets, banners etc may also be developed for IEC. In addition it is also recommended that RWAs and municipal councilors be motivated to act as ambassadors for WDM.
Step 5: Roll out IEC campaign in a phased manner.
22.214.171.124 Obstacles in implementation Current levels of awareness on the subject are minimal. This may pose problems in selecting the most appropriate media for dissemination of information. Bringing different stakeholders on a common platform will also be challenging assignment. 7.4.9 Regulation It is proposed that in the long run GMC may consider separating the policy formulation, regulatory and service provision functions. An independent regulatory body for setting up of tariffs and ensuring service levels has successfully been used in other infrastructure sectors and it may be worth exploring the possibility of an independent regulator at state level (Box 7.6) for this purpose. However a detailed feasibility of any such initiative needs to be carried out. The section below brings out the possible role for a regulator and the key features of the same. 220.127.116.11 Functions of a regulator The existing water department is highly monopolistic in nature with no competition from any private player in the sector and having the sole responsibility for providing safe drinking water in the city. In such a circumstance, the regulatory authority is expected to have the following functions. These functions could evolve over the path of transition of the economy from state of control to liberalized competition. Its core functions should include:
• • • • • • • • • • • •
Price Control Promotion of Operating efficiency Service standard specification and monitoring Control of externalities Maintenance of public good functions Ensure asset serviceability over time Ensure development of essential infrastructure Control over powers to manipulate land values/ land speculation Controls over unfair trading practices Safety net regulations Promote water use efficiency Ensure responsiveness to final customer needs
Its advisory role should include providing information to the Government and advising the Ministries on issues of importance or whenever the regulator's advice is requested. The role of a regulator is bound to change once the sector, or various segments in the sector, undergoes changes from a monopolistic to a competitive structure. For example, in a competitive market, the tariff setting function of a regulator may become 'light' or be 'forbearing'. Thus, there is a need to delineate the regulator's role given the degree of competitiveness in the sector. 119
126.96.36.199 Other salient features The following principles need to be kept in mind while designing the regulatory framework, to ensure regulatory independence and to balance the interests of various stakeholders:
• • • • •
Autonomy of the regulator.
Independence through representatives from the private industry and academic or research institutions along with Judge of High Court or Member UPSC in the Selection Committee, setting up of a Regulatory Commission Fund, funded by grants/ loans by Govt. /levy of fees on the licensees.
Accountability through independent review and assessment of the regulatory body against the specific objectives and an appeal mechanism in relation to the regulatory decisions.
Transparency and encouraging stakeholder involvement. Predictability through well defined criteria for decision making and review of standards. Flexibility by being open to alternative regulatory tools. Consultative through consultation with all stakeholders for encouraging commitment and a better understanding of the implications of the proposed action.
The Box 7.6 describes the Maharashtra Water Regulatory Commission, which has recently been established and is also the first regulator set-up in the water sector in India. Thus, it can be taken as a model for setting up a water regulator in Madhya Pradesh. It is important to mention here that a regulator is not feasible to be set-up at the city level. It is thus proposed that a detailed survey of the water sector in the State is undertaken before a decision on the type of regulator as well as the exact functions and features of a regulator are defined.
Box: 7.6 Setting up of Maharashtra Water Regulatory Commission Based on the recommendations of the Sukthankar Committee, a Maharashtra Water and Waste Water Regulatory Commission (MWRC) has been established. The key functions of the Maharashtra Water Regulatory Commission would be the following: – Regulation of the quality of service being provided by local bodies and to be provided by the licensed entities. – Economic regulation of tariffs to be charged by the service providers (local bodies, CWSEs, other service agencies such as MIDC, MJP, City and Industrial Corporation, and private sector entities). – Issue and regulation of licenses to the proposed CWSEs, in association with one or more local bodies or other agencies such as the MJP and the MIDC. The MWRC will issue licenses to all new entrants, including private operators, in the sector after following a transparent procedure. – Coordination with other regulators for environmental regulation, especially related to drinking water quality and wastewater disposal standards. – Collection and dissemination of sector information to enable the MWRC to establish good regulations and to assist different interest groups, especially consumer councils, to recognize improprieties by the local water supply entities. Regulation related to tariff setting are as follows –
Tariff setting should ensure a fair charge to customers in relation to services consumed and the commercial viability of the providers.
The MWRC should establish mandatory guidelines and principles, such as recovering costs for desired service levels, to help tariffs gradually move toward this goal. It should conduct regular reviews of the tariffs set by local bodies and over time as more information becomes available, it should develop yardsticks to measure progress.
To make the new regulation and tariff setting more responsive to community needs and willingness, the new entity should initiate a process for effective community participation. 1. The MWRC is proposed to set up or strengthen consumer councils that can articulate consumer demands and preferences and provide them capacity building support. 2. The MWRC is also proposed to set up an effective public consultation process for licensing and tariff determination. To be meaningful, such consultation must be backed up by timely provision of relevant information to the public about existing service levels, financial investments and expenses, hidden subsidy transfers, etc.
7.4.10 Public-Private Partnership Arrangements Public-Private Partnership is widely looked upon as a solution to the failure of publicly owned and managed utilities. It is important, however, to understand that private sector involvement cannot of itself and by itself remove many of the barriers to efficiency, which impedes public sector operations. The scope of private participation to yield performance improvements will partly depend upon the way the Municipal Corporation is functioning presently. Also, the following four interrelated factors play an important role in the achievements made by the private players:
The form of private involvement (Table 7.5 gives the details on the Indian experiences of PublicPrivate Partnerships).
The type of private company involved – this includes its technical and managerial competence, the range of its operations etc. 121
The post-privatization regulatory regime – this would include all the continuing roles of the public sector and the institutions (contracts, regulatory agencies, laws, market tools etc.) employed to influence, provide incentives for or to directly control private sector behaviour.
It is however important to note that the involvement of private sector in the water sector is an exceptionally difficult tasks. The following characteristics of the water sector make the involvement of the private companies a particularly challenging venture:
• • •
The level of natural monopoly and the lack of substitute products
The highly capital intensive nature of the sector and the over-whelming presence of sunk costs, which increase private-sector risks.
The multipurpose and hydraulically interconnected nature of the water resource itself.
The public and merit goods supplied by the sector Since there are a number of agencies involved with water supply, the crucial relationship between water infrastructure and urban/economic development.
For GMC, the privatization of assets is not recommended under the present circumstances. Instead, it is proposed that Private sector should be involved in building the infrastructure and capacity building of the Municipal Corporation. It is also recommended that an incentive based approach should be used for involving the private sector since it would improve the services provided by the private sector. Feasibility of management contracts/BOOT arrangements for operation and management of water treatment plants and distribution networks may however be explored. On the basis of this discussion, certain recommendations for private sector involvement are proposed below. It is important to realize that the choice of public-private arrangements would constantly change over time. Thus, no specific long term strategies are proposed. It is however recommended that a detailed study should be undertaken to study and identify the role of private sector in water supply in Gwalior before taking a decision on the type of partnership that would be suitable in the long run. Internationally existing options which may be considered for evolving the Public-Private relation in Gwalior are given in Table 7.5. 7.10.1 Building new infrastructure Private Sector involvement for building of new infrastructure ranging from construction of pump houses, water treatment plants, expanding the IT infrastructure or GIS mapping etc., should be preferred as the GMC is not equipped to carry out such a task and building capacity for each task is financially not feasible. 7.10.2 Management of Services Involvement of Private Sector for management of services is recommended only in the short and medium run. For this, involvement of the private sector is envisaged in billing, collection and leak detection and repair. 7.10.3 Maintenance of existing infrastructure It is proposed that contracts could be given out to Private parties for maintenance of pump houses and water treatment plants. Separate contracts could be given out for repairing and replacing of pipelines wherever required, but this should be considered only in the short and medium term.
Table 7.5 Indian experiences in Privatisation of Water Supply & Sanitation Tirupur Water Supply and Sewerage Project
Implemented through a SPV New Tirupur Area Development Corporation (NTADC) promoted by: – Infrastructure Leasing & Financing Services (IL&FS) – Tirupur Exporters' Association (TEA) – Tamil Nadu Corporation for Industrial Infrastructure Development (TACID)
Estimated Project cost – Rs. 900 Crores at 1998 prices (Rs. 1000 crore at present) – O&M contract to consortium of Mahindra & Mahindra – United Utilities International North West Water +Bechtel – Attained financial closure with 10% stake by LIC & GIC.
Pune Water Supply and Sewerage Project
Developed by Pune Municipal Corporation at a estimated project cost of Rs. 750 crores ($ 187.5 M) later revised to Rs. 392 Crores with HUDCO assistance – –
Bangalore Water Supply Project
Private Sector Participation envisaged in Construction, Operation and Maintenance, Tariff collection Financial Participation expected from IL&FS, ICICI, HDFC, IDFC and Bank of Maharashtra, in addition to HUDCO
– –
Request for proposal sought Tie-ups: Anglian Water + Trafalgar House & Shirkes Binnie Black + Veatch & Thames Water + L&T Krugger + Generale Des eaux & Shanska Int. Preussag + Tata Projects Hyundai + Sundram Chemicals+ Hanjin + Krupp and Zoom Development Group
Political Risk – work re-tendered at RfP level
BOOT arrangement for sourcing 500 mld water. – Establishment of two Tertiary Water Treatment Plants (of total 60 mld capacity) with HUDCO assistance – Private Sector (Industries) to undertake laying of feeder mains –
envisages provision of 500 mld of water to the city on a BOT basis with estimated project cost is Rs. 800 Crores (US$ 173 M).
• • •
Out of 119 Sewerage Pumping Stations, Operation & Maintenance of 70 by private sector
New Chembarampakkam WTP of 530 mld capacity (over and above the existing 600 mld capacity) – Bid documents for BOT by TCS – HUDCO funding availed
Karnataka Urban Water Supply and Drainage Board (KUWS&DB)
• •
Management Contract in Distribution and O&M
Private Sector Participation on the anvil in water supply & sanitation
Chennai Metro Water
Sourcing of water in 7 wells through private sector Construction of 300 mld Water Treatment Plant by – M/s Hindustan Dorr Oliver Ltd. and O&M by M/s Richardson Cruddas
Towns selected for the initiative are – Mysore – Mangalore – Hubli – Dharwad – Gulbarga – – – – – – – –
Nagpur Dewas Kolhapur Cochin Vishakhapatnam Dharwad Goa Alandur
Source: Presentation on Innovative Infrastructure Financing by V Suresh, Director General, Good Governance India and Former Chairman and Managing Director, HUDCO
Table 7.6 International examples of options for private sector participation and allocation of responsibilities Option
Asset Ownership
Capital Investment
Commercial Risk
Service Contract
Public and Private
1-2 Years
Chile (Santiago) India (Chennai)
Management Contract
3-5 Years
Gaza Trinidad and Tobago
8-15 Years
Guinea (17 cities) Poland (Gdansk)
Private (bulk services)
20-30 Years
Malaysia (Johor) Australia (Sydney)
25-30 Years
Argentina (Buenos Aires) Cote d'Ivoire Philippines (Manila)
England and Wales
Annexure 3.1
Aqualibre Water Balance Model
System Data Water Undertaking Details Water Undertaking
Gwalior Municipal Corporation
Average System Pressuremeters
Percentage time pressurised
Tel Contact person System Pressure
Customer Meters
Error %
Total Customer Meters Mains Total Trunk Mains Total Distribution Mains Total Mains
Error %
Connections and Properties
Error %
Total Number of Units
Total Connections
Total Properties
Aqualibre Water Balance Model Name of Water Undertaking
Gwalior Municipal Corporation
Supply Area: Period of Record:
365.25 days
Water Balance Units:
cubic meters
Primary Water Balance System Input: Own Sources
Moti Jheel
Billed Metered Consumption: Non-Domestic Consumers
Total Billed Metered
Billed Unmetered Consumption : Domestic Consumers
Direct Supplies
Billed Unmetered Consumption: Non-Domestic Consumers
Bulk Consumers
System Input: Imported Sources
Total System Input
Billed Metered Consumption: Domestic Consumers
Total Billed Unmetered Consumption
Unbilled Metered Consumption
Unbilled Unmetered Consumption: Domestic Consumers
Unauthorised Use
Illegal Consumption
Losses from Storage Facilities
Storage Facility Losses
Tankers Standpost
Customer Metering Inaccuracies and Data Handling Errors Total Metering Error Data Handling Error
Losses by Volume
Aqualibre Water Balance Model
Primary Water Balance Summary Cubic meters
Error %
Apparent Losses
Unauthorised Use
Total System Input
Water Losses
Revenue Water
Non-Revenue Water
Billed Authorised Consumption Billed Metered Consumption Billed Unmetered Consumption Unbilled Authorised Consumption Unbilled Metered Consumption Unbilled Unmetered Consumption
Consumption Meter Error
Apparent Losses Real Losses Bulk Storage Leakage and Overflow
Aqualibre Water Balance Model
Water Losses Balance
Total Real Losses
Cubic meters
Error %
Background Leakage Properties Connections Mains Total Reported Bursts Mains Connections Total Unreported Bursts Mains Connections Total Losses from Storage Facilities Bulk Storage Losses
Losses by Volume Total
Excess or Hidden Losses
Aqualibre Water Balance Model
Background Leakage
System Pressure and Supply Factor
System Pressure
Error %15.0
Intermittent Supply Factor
Error %15.0
Background Pressure Exponent (N1)
Pressure Correction Factor
Property Leakage Number of Properties
Leakage Rate I/property/hr Poperty Leakage m^3
Error % 15.0
Connection Leakage Mains to Property Line
Property Line to Meter
Number of Connections Leakage Rate I/connections/hr Connections Leakage m^3 Error Percentage Main Leakage Lenght kilometers Total Trunk Mains Total Distribution Mains Total
Total Leakage Total m^3
Error %
Error %
Aqualibre Water Balance Model
Burst Leakage
Pressures and Supply Factor
Error %
Supply Factor
Error %
N1 Exponent
Correction Factor
System Trunk Mains Trunk Mains Buests
Duration (days)
Error %
Distribution Mains Bursts Number
Duration (days)
Error %
Duration (days)
Error %
Duration (days)
Error %
Error %
Reported Unreported Total
Connection Bursts: Mains to Property Line Number
Total Connection Bursts: Property Line to Meter Number
Total Total Bursts: and Losses Number Total Bursts
Total Bursts Losses
Aqualibre Water Balance Model Performance Indicators
Base Data Used in Calculations
Lower Estimate
Upper Estimate
Average pipe length from street edge meter
Lenght of trunk mains
No. of Service Connections
Connection Density (distribution mains)
Percentage time pressurised - System
Percentage time pressurised - Trunk Mains
Lenght of Distribution mains
Average System Pressure Average Trunk Pressure
Number of Accounts Unavoidable Annual Real Losses On Trunk Mains On Distribution Mains On service connections to street boundary On service connections to street edge to meter Total unavoidable real losses
Error %
Cost of Running the System
Monetary unit/m^3
Real Loss Cost:
Apparent Loss Cost:
Performance Indicators Non Revenue Water Basic (IWA Level 1, Fi37) Percentage System Input by Volume
Monetary unit System Cost:
Best Estimate
Lower Estimate
Upper Estimate
18,877.4 4,937,268.0
12,365.8 3,113,256.5
25,389.0 6,761,279.5
3775.5 987,453.6
2,270.1 593,728.2
5,280.9 1,381,179.0
Non Revenue Water Basic (IWA Level 1, Fi38) Percentage System Input by Value Real Losses Basic (IWA Level 1, Op24) I/connection/day when pressurised I/km mains /day Real Losses Intermediate I/connection/day/ m pressure when pressurised I/km mains /day/in pressure Real Losses Detailed (IWA Level 3, Op25) Infrastructure Leakage Index
Tendering process for procurement (and installation) of bulk meters, V notches and level gauges at select locations**
Preparing a comprehensive list of bulk consumers and industrial consumers
Initiating the process to install bulk revenue meters on inlets of identified bulk consumers and industrial consumers
Refining the MIS for recording and analysis of flow
Installation of bulk management meters at identified locations***
Preparing (and making available) guidelines for procurement and installation of bulk revenue meters to the bulk and industrial consumers
Monitoring and documentation of water flows
Capacity building of staff on flow metering, calibration and upkeep or records
Installation of V notches and level gauges
Installation of bulk revenue meters at inlet of bulk consumers and industrial consumers
Installation of bulk management meters at remaining locations
Inspection of bulk revenue meters and Calibration of all installed meters
# wef a decided zero date * It is recommended that all locations for first and second phase be identified during this activity and preferably marked on a GIS map ** with a condition to extend it on the same terms and conditions *** This could be split in two sub phases (Phase I to install 30-50% of the bulk meters and study their performance, Phase II to install bulk meters at the remaining locations) *** Bulk meter supplier could be asked to install and calibrate/maintain the flow meter
Identifying exact locations for installation of bulk meters, V-notches and level gauges on the entire supply scheme*
S. No.
Months# (by the end of)
Activity schedule for Metering of Bulk flows (as per proposed Implementation plan for short term) (Bulk management meters and Bulk revenue meters)
Annexure 5.1a
Initiating dialogue with RWAs of these pilot areas and creating consumer awareness
Identifying properties in each pilot area for installation of domestic meters
Initiating dialogue with different manufacturers/suppliers of domestic consumer meters** for pilot assessment of metering and different meters
Updating the list of domestic consumers and Refining the MIS for recording and analysis of flow
Preparing plan for installation of meters and protocol on performance monitoring schedule for assessment of meters
Installation of domestic consumer meters at the identified locations
Assessment of flows, water auditing and performance measurement of the installed meters
Discussion of results with experts and RWAs
Finalizing guidelines for domestic consumers on the procurement, installation and maintenance/calibration of meters (based on experience of Municipal Corporation)
Deciding terms for charging the fixed cost of domestic meters and the tariff plan for consumers having domestic meters
Modifying existing MIS for bill generation (to be based on meter reading)
# wef a decided zero date * should ideally begin once bulk meters have been installed ** From the list of manufacturers approved by different agencies like FCRI, CWRPS and IDEMI
Identifying pilot areas for installation of domestic meters*
Months# (by the end of)
S.No. Activity 3
Activity schedule for Domestic metering (as per proposed Implementation plan for short term)
Annexure 5.1b
Creation of all existing maps on a GIS database
Field survey of Transmission networks using GPS and updation of all details*
Field Survey of Distribution networks of pilot study area by Engineers using GPS and updation of all details
Creation of GIS department
Capacity building of the staff and changes in MIS system
Integrating details like revenue generation at ward level and other administrative information in the developed database as an attribute information $
Integration with consumer MIS $
# wef a decided zero date * Including locations of proposed bulk metering infrastructure $ This activity shall extend to the medium term
Collecting all existing maps
Strategies to be Implemented
S. No.
Months# (end of) 5
Activity schedule for developing GIS database (as per proposed Implementation plan for short term)
Annexure 5.1c
Capacity building of the staff in leak detection
Identifying different pilot distribution areas (representative of the pipe infrastructure)
Undertaking leakage assessment in transmission network and analysis
Repairing leakages in transmission mains
Identifying and repairing leakages in representative Pilot Study areas
IIdentifying and repairing leakages in pump houses
Revamping the existing system for passive leakage control
Establishment of Private call centre for reporting leak complaints
Documentation of all types of leakage and its location in GIS map
Identifying more areas (in different wards) for future leakage assessment exercise*
* Based on observations and experience from the exercise undertaken in pilot areas
# wef a decided zero date
Identifying team for leakage detection
Strategies to be Implemented
S. No.
Months# (end of) 5
Activity schedule for Active and Passive leakage control (as per proposed Implementation plan for short term)
Annexure 5.1d
Improving the condition of all tankers to avoid spillages and deterioration in quality
Consumer awareness of small pipe network system
Introducing small pipe networks or water kiosks for Tanker supplied areas
Phasing out tankers and other supply system and installation of piped water supplies from main supplies keeping tankers supplies only during emergency
# wef a decided zero date
Modernising existing system for tanker filling (installing meters and devices so as to avoid wastages in filling)
S.No. Strategies to be Implemented #1
Activity schedule for Alternative supply means (as per proposed Implementation plan for short term)
Annexure 5.1e
Months# (by the end of) 9
Annexure 5.2a
Water Meters Flow measurement is of paramount importance to water utilities from a management perspective and revenue perspective. From a management perspective flow measurement is the most important tool for planning and optimisation of any water network while on the revenue side metering is important to ensure the consumers pay according to the consumption. It also helps to establish the total water losses in a network.
Types of water meters A water utility would essentially be using two meters for two purposes: – Management of the system (Bulk management meters): Bulk management meters are used to measure flow at critical points in the network to establish a water balance. Bulk management meters generally used are either mechanical types or electromagnetic types. Mechanical meters are used for pipe size up to 500 mm, as above that the accuracy of bulk management meters is not very good. Electromagnetic meters are normally used for larger pipe diameters since these are financially viable than mechanical meters above a size of 300 mm diameter. In addition, the utility may also use potable ultrasonic flow meters for taking instantaneous logging and also for the purpose of carrying out audits. – Revenue meters: Revenue meters most commonly used are the turbine meters. They are available in sizes ranging from 15 mm to 800mm. However accuracy is less in larger meters. They may be used for revenue purposed for both domestic and bulk connections. According to the IS codes on the basis of consumer category the water meters may be divided into: a. Domestic Meter: Water meters having sizes from 15 mm to 50 mm as per the BIS 779: 1994 are considered to be the domestic meter. These meters could be made of brass or bronze and are available in Class 'A' and 'B' in IS: 779:1994. However, domestic meters are also supplied in Class C and Class D in many places across the world. b. Bulk meter: Water meters having sizes 50 mm and above (BIS 2373: 1981) are considered to be the bulk meters. These meters have flanged connections and are usually made of steel or cast iron. These meters are not available in classes in IS. Figure 1 gives the various types of meters used in water utilities. The operational details of various types of meters are described in sections below: On the basis of operating principle the water meters can be classified as inferential or semi positive. a. Inferential meters: Also known as velocity meters or turbine meters. These are the meters, which measures the velocity of flow from which the discharge is measured. These meters could further be divided as single jet and multi jet and Woltman or helical type.
Single jet: Single jet meters are available from 15mm to 300mm as per IS 779:1994 and 15mm to 100mm as per ISO 4064. The single jet meters are cheapest and less complicated.The pressure loss is also minimum. Irrespective of the advantages the single jet meters have some disadvantages too. They are sensitive to flow disturbances and require specialized calibration, as external regulator is not available.
Figure 1 Types of flow meters
Multi jet: The multi jet meters are available from 15mm to 300mm as per ISO 4064. Multi jet meters have the advantage that they are less sensitive to the flow disturbances and can sustain hostile flow conditions. They are provided with external regulator, which facilitates easy calibration, but they are more costly than the single jet meters and the pressure loss is also more than the single jet meters.
Woltman or helical type: These meters are available from 50 mm to 500 mm as per BIS 779; 1994 and 50 mm to 800 mm as per ISO 4064. These meters are suitable for higher flows and are provided with external as well as internal regulators. They are robust meters and also the pressure loss is minimum.
b. Semi-positive meters: Semi-positive meters are the meters, which volumetrically records practically close to zero flow of the water that has passed through, with a small unavoidable leakage. It is recommended to install such meters at places where the water supply is free from solid impurities, as the failure of the rotating part causes the failure of water flow from the meter thereby stopping the water supply. Usually these meters are not suitable for the Indian conditions.
Types of metering systems for measuring bulk flows There are two types of water transporting systems: Open channel and close channel/pipes. Open channel or flumes are designed to convey water from sources like dams, rivers to farms, treatment plants, etc. Open channels are constructed where the water is to be supplied though gravity. Closed conduit or pipes are designed to convey water under pressure. Pipes are used for transmitting and distributing water under pressure from the treatment plants to the city. Table 1 shows the different types of metering systems for measuring bulk flows: A-17 141
Table 1 Different types of metering systems
Closed channels
Open channels
Differential pressure meters
Orifice/venturi tubes/variable area meters etc.
Positive displacement meters
Pistons/ oval gears/nutating disk etc.
Velocity meters
Electromagnetic/ultrasonic etc.
Weirs and flumes
V-notch etc.
Numerous types of bulk flow meters are available for closed piping systems. In general, the equipment can be classified as differential pressure, positive displacement and velocity meters. Differential pressure devices (also known as head meters) include orifices, venturi tubes, flow tubes, flow nozzles, pitot tubes, elbow-tap meters, target meters and variable area meters. Positive displacement meters include pistons, oval-gear, nutating-disk, and rotary-vane types. Velocity meters consist of turbine, electromagnetic, and sonic designs. The measurement of liquid flows in open channels generally involves weirs and flumes.
1. Velocity meters These instruments operate linearly with respect to the volume flow rate. Most velocity type meter housings are equipped with flanges or fittings to permit them to be connected directly into pipelines. a. Electromagnetic Flow Meters Magnetic flow meters have been commercially available since the mid 1950's, measuring the flow of water and a wide range of other electrically conductive liquids, including corrosives, slurries and sludge in closed pipe systems. Operating Principle: Faraday's Law of Electromagnetic Induction is the underlying principle of operation for magnetic flow meters. This law states that the magnitude of the voltage induced in a conductive medium moving through a magnetic field and at right angles to the field is directly proportional to the product of the strength of the magnetic flux density (B), the velocity of the medium (V), and the path length (L) between the probes. E = constant x B x L x V Where;E= Voltage generated in a conductor V= Velocity of the moving conductor B= Strength of the magnetic field L= length of the conductor path (distance between probes) b. Ultrasonic Flow Meters The Ultrasonic technologies in general use for closed piping applications are Doppler and transit time.
• Doppler meters With Doppler meters, an ultrasonic pulse is beamed into the pipe and reflected by inclusions, such as air or dirt. The Doppler meter is frequently used as a "clamp on" device, which can be fitted to existing pipelines. The non-invasive flow sensing capability of these meters provided by their "clamp-on" transducer offers a variety of advantages, including:
– – – – – – – –
Quick, easy setup Permanent or temporary flow measurement No need to break into piping No production downtime No wetted parts to plug up flow passage Complete chemical compatibility Measures a wide range of flowing media, from clean liquids to slurries No pressure drop
Operating Principle: The Ultrasonic Doppler Shift Flow Meter employs a non-invasive piezoelectric transducer, hand-held or clamped on the outside surface of a full pipe, to transmit a continuous single frequency ultrasound through the pipe wall, into the flowing liquid. This signal is reflected from suspended particles, bubbles or eddies and relayed to second receiver transducer (or a second receiving piezoelectric crystal within the same transducer). The meter's microprocessor compares frequency shift (Doppler Effect) between the transmitted and returned signal. The degree of the Doppler Shift is proportional to the forward velocity of the flowing liquid. Conventional ultrasonic Doppler technology can effectively measure flowing liquids containing suspended particles or entrained gases (air) larger than 30 microns size, in concentrations greater than 25 PPM. Some enhanced Doppler designs can measure cleaner liquids (with fewer and/or smaller discontinuities) by sensing the turbulent swirls and eddies in the flow stream induced by nonsymmetrical pipe configuration (i.e. elbows). The non-invasive transducers can effectively transmit signals through PVC, steel, iron and glass pipe walls. However, lined pipes and concrete pipes block the ultrasonic signal.
Transit Time Transit Time Flow Meters (as shown in Figure 1) feature the most advanced non-invasive flow measurement technology available. These meters provide a low cost system with unsurpassed accuracy and versatility. Operating Principle: The Transit Time Flow Meter utilizes two transducers, which function as both ultrasonic transmitters and Figure 1 Transit time receivers. The flow meter operates by alternately transmitting and flow meter receiving a frequency modulated burst of sound energy between the two transducers. The burst is first transmitted in the direction of fluid flow and then against fluid flow. Since sound energy in a moving liquid is carried faster when it travels in the direction of fluid flow (downstream) than it does when it travels against fluid flow (upstream), a differential in the times of flight will occur. The sound's time of flight is accurately measured in both directions and the difference in time of flight calculated. The liquid velocity (V) inside the pipe can be related to the difference in time of flight (dt) through the following equation: V = K*D*dt, where K is a constant and D is the distance between the transducers. c. Mechanical flow meters Mechanical flow meters measure flow using an arrangement of moving parts, either by passing isolated, known volumes of a fluid through a series of gears or chambers (positive displacement, or PD) or by means of a spinning turbine or rotor.
i. Turbine meters Invented by Reinhard Woltman in the 18th century, the turbine flow meter is an accurate and reliable flow meter for both liquids and gases. It consists of a multi-bladed rotor mounted at right angles to the flow and suspended in the fluid stream on a free-running bearing. The diameter of the rotor is very slightly less than the inside diameter of the metering chamber, and its speed of rotation is proportional to the volumetric flow rate. Turbine rotation can be detected by solid-state devices (reluctance, inductance, capacitive and Hall-effect pick-ups) or by mechanical sensors (gear or magnetic drives). ii. Paddle Wheel Flow Meters Using paddle wheel type probes is one of the least expensive ways of measuring liquid flow in larger pipes (up to 12 in., or 305mm) as shown in Figure 2. The rotation of the paddle wheel can be detected magnetically or optically, and the different manufacturers offer these probes in plastic and metallic materials.
Figure 2 Paddle wheel flow meter
Operating Principle: In paddle wheel flow meters, the paddle wheel (rotor with rotary vaned blades) is perpendicular to the flow path, not parallel as in the traditional turbine-type flow meter. The rotor's axis is positioned to limit contact between the paddles and the flowing media to less than 50% of the rotational cycle. This imbalance causes the paddle to rotate at a speed proportional to the velocity of the flowing media.
2. Positive displacement liquid meters Positive displacement meters split the flow of liquids into separate known volumes based on the physical dimensions of the meter, and count them or totalize them. They are mechanical meters in that one or the other moving parts, located in the flow stream, physically separate the fluid into increments. Energy to drive these parts is extracted from the flow stream and shows up as pressure loss between the inlet and outlet of the meter. The general accuracy of these meters is dependent upon minimizing clearances between the moving and the stationary parts and maximizing length of this leakage path. For this reason meter accuracy tends to increase as size increases. The positive displacement meters include piston, oval-gear, nutating-disk, and rotary vane types. a. Oval Gear Flow Meters A special variety of the rotating lobe flow meter is the oval-geared metering elements as shown in Figure 3. Operating Principle: Incoming liquid (upstream pressure) exerts a pressure differential against the (upstream end) lower face of oval gear A, causing the two interlocked oval gears to rotate to position 2. In this second position, the flowing liquid enters the cavity between oval gear B and the flow meter body wall, while an equal volume of liquid simultaneously passes out of the cavity between oval gear A and the flow meter body wall. Meanwhile, upstream pressure continues to force the two oval gears to rotate to position 3. At this position, a predetermined quantity of liquid has again filled the cavity between oval gear B and the flow meter body. This pattern is continuously repeated moving four times the liquid capacity of each cavity with each revolution of the rotating gears. Therefore, the flow rate is proportional to the rotational speed of the A-20 144
Figure 3 Oval gear flow meter
gears. Magnets, imbedded in each end of the rotating oval gears, are used to open and close a reed switch output signal, activate a microprocessor or Hall Effect Pickup to transmit the internal motion (rotational count) to a usable output signal.
b. Nutating-disk meters This meter also known as disk meter is used extensively for residential water service. The moving assembly, which separates the fluid into increments, consists of an assembly of a radially slotted disk with an integral ball bearing and an axial pin. This part fits into and divides the metering chamber into four volumes, two above the disk on the inlet side and two below the disk on the outlet side. As the liquid attempts to flow through the meter, the pressure drop from inlet to outlet causes the disk to wobble, or nutate, and for each cycle to display a volume equal to the volume of the metering chamber minus the volume of the disk assembly. The end of the axial pin, which moves in a circular motion, drives a cam that is connected to a gear train and the totalizing register. This flow meter has an accuracy of about Âą1 to 2%. It is built for small pipe sizes.
c. Rotary Vane Flow Meters These meters use the well-established, low maintenance rotary vane impeller-type measuring mechanism. Designed with minimum moving parts, these meters provide reliable, trouble free operation (shown in Figure 4). Operating Principle: Rotary vane meters are manufactured in several designs, but the principle of Figure 4 Rotary vane flow meter operation is identical for all of these meters. Liquid enters the cylindrical measuring chamber and is forced to separate into two equal streams, travelling in a 360° loop. The streams are further channeled, by the special configuration of the measuring chamber, into a series of vortices which cause the rotary vaned impeller to rotate in direct proportion to the flow rate.These dual flow streams are recombined into a single stream at the meter outlet. The rotary impeller is connected to the meter register by a magnetic d3rive assembly. Each impeller rotation is mechanically tabulated and displayed by the meter register.
3. Differential Pressure Flow Metering Technology Differential pressure type flow meters have been the most widely applied technology of all the flow measurement technologies available. In addition to the orifice plate flow meter, the most commonly used, the differential pressure technology also includes the widest variety of subcategories, or types. A-21 145
The most commonly used types include:
• • • • •
Venturi Nozzle Pivot-static Tube Elbow Wedge
Other newer designs include:
• • • • • • •
V-cone Spring-loaded Variable Aperture Laminar Flow Element Dall Tube Elliot-Nathan Flow Tube Dall Orifice Epiflo
Operating Principle: In general, differential pressure flow meters feature a restriction in the cross sectional area of the flow path that causes a differential pressure to be developed between two points in the flow path. The difference in pressure between the upstream and downstream points of measurement is caused by a change in fluid flow velocity. Therefore, the basic operating principle of differential pressure flow meters is based on the premise that the pressure drop across the meter is proportional to the square of the flow rate. The flow rate is obtained by measuring the pressure differential and extracting the square root. Differential pressure flow meters, like most flow meters, have a primary and secondary element. The primary element causes a change in kinetic energy, which creates the differential pressure in the pipe. The secondary element measures the differential pressure and provides the signal or read out that is converted to the actual flow value. a. Orifices: Orifices are the most popular liquid flow meters in use today. An orifice is simply a flat piece of metal with a specific sized hole bored in it. Most orifice are concentric type, but eccentric, conical (quadrant) and segmental designs are also available. In practice, the orifice plate is installed in the pipe between the two flanges. Acting as the primary device, the orifice constricts the flow of liquid to produce a differential pressure across the plate. Pressure taps on either side of the plate are used to detect the difference. Major advantages of the orifice are that they have no moving parts and their cost does not increase significantly with the pipe size. Conical and quadrant orifice are relatively new. The units were developed primarily to measure liquids with low Reynolds numbers. Essentially constant flow coefficients can be maintained at Rvalues below 5000. Conical orifice plates have an upstream bevel, the depth and angle of which must be calculated and machined foe each application. Metering accuracy of all orifice flow meters depends on the installation conditions, the orifice area ratio, and the physical properties of the liquid being measured.
b. Venturi tubes have the advantage of being able to handle large flow volumes at low pressure drops. A venturi tube is essentially a section of pipe with a tapered entrance and a straight throat. As liquid passes through the throat, its velocity increases, causing a pressure differential between the inlet and the outlet regions. These flowmeters have no moving parts and can be installed in large diameter pipes using flanged, welded or threaded-end fittings. Four or more pressure taps are usually installed with the unit to average the measured pressure. Venturi tubes can be used with most liquids, including those having high solids content. c. Flow tubes: Flow tubes are somewhat Shimlar to venture tubes except that they do not have the entrance cone. They have a tapered throat, but the exit is elongated and smooth. The distance between the front face and the tip is approximately one half the pipe diameter. Pressure taps are located about one half pipe diameter downstream and one half pipe diameter upstream. d. Flow nozzles: Flow nozzles at high velocities, can handle approximately 60 percent greater liquid flow than orifice plates having the same pressure drop. e. Pitot tubes: Pitot tubes sense to pressure simultaneously, impact and static. The impact unit consists of a tube with one end bent at right angles towards the flow direction. The static tube's end is closed, but a small slot is located in the side of the unit. The tubes can be mounted separately in a pipe or combined in a small casing. Pitot tubes are generally installed by welding a coupling on a pipe and inserting the probe through the coupling. Use of most pitot tubes is limited to single point measurements. The units are susceptible to plugging by foreign materials in the liquid. Advantages of pitot tubes are: low cost, absence of moving parts, easy installation and minimum pressure drop. f. Elbow meters: Elbow meters operate on the principle that when liquid travels in a circular path, centrifugal force is exerted along the outer edges. Thus, when a liquid flow through a pipe elbow, the force on the elbow's interior surface is proportional to the density of the liquid times the square of its velocity. In addition, the force is inversely proportional to the elbow's radius. A 90 deg. pipe elbow can serve as a liquid flow meter. g. Target meters: Target meters sense and measure forces caused by liquid impacting on a target or drag- disk suspended in the liquid stream. A direct indication of the liquid flow rate is achieved by measuring the force exerted on the target. In other words, the meter consists only of a hinged, swinging plate that moves outward, along with the liquid stream. In such cases the device serves as a flow indicator. h. Variable Area Flow Meters: Variable area flow meters are offered primarily as reliable, low-cost in-line visual flow rate indicators with adequate versatility to monitor a wide range of industrial liquids and gases. These simple in-line flow meters utilize the time-tested variable area technology, in which the velocity of the flowing fluid forces the (free moving) float, or piston to shift position, increasing or decreasing the size of the opening (variable area) to allow the fluid to pass. The variable area flow meter is also a head-type flow sensor, but it does not measure the pressure drop across a fixed orifice; instead, the pressure drop is held relatively constant and the orifice area is varied to match the flow. In gravity type variable area flow meters, increasing flow lifts the float, piston, or vane and it's the weight of these flow elements that have to be balanced by the kinetic energy of the flowing stream. These units can only operate in vertical position. When the lifting of the float, piston or vane is resisted by the spring instead of gravity, the meter can be installed in any position. A-23 147
There are three types of flow meters: Rotameter, Orifice/Tapered Plug Meters and Piston-type), using the variable area metering principle. i) Rotameter: Rotameters are popular choices for low flow measurement due to their low cost, simplicity, low pressure drop, relatively wide rangeability, and linear output. Rotameters are available which transmit pneumatic, electronic, or time pulse signals or provides recording, totalising and control functions. Operating Principle: The Rotameter contains a float that is free to move vertically, within a tapered conical flow tube. As the flowing media moves upward through the annular area between the float and the expanding (tapered) metering tube, the float is lifted to a level of equilibrium at which the weight of the float is equal to the upward force of the fluid. The vertical rise (distance) of the float is proportional to the change in flow rate. The flow rate is indicated by visually checking the position of the float against a graduated flow scale, affixed to the outside of the tapered (transparent) tube. ii) Orifice and Tapered Plug Principle This type of flow meter uses a fixed orifice within a vertical meter enclosure. A tapered float (narrow at the bottom) is free to move up and down through the fixed orifice. The flow rate is indicated by observing the position of the float, relative to the orifice. The tapered–plug variable area flowmeter are made with metallic meter bodies and are used on higher pressure applications, where errors of 5 to 10 % full scale can be tolerated. This is a type of variable area flowmeter that operates a piston in a perforated cylinder. iii) Piston-type Flow Metering Principle The EH55 Series Piston-type Variable Area Flow Meter uses a sharp-edged annular orifice, formed between the open-centered piston and a tapered metering cone. The piston is held in a "no flow" position at the base of the tapered cone by a calibrated retention spring. Flow through the meter creates a differential pressure across the piston orifice, moving the piston against the spring. The greater the volume, the further the piston moves. Externally, the flow indicator ring is magnetically-coupled to the moving piston. A specific line on the indicator ring is visually "read" against a graduated flow scale mounted on the inside of the transparent dust guard.
5. Open channel meters The "open channel" refers to any conduit in which liquid flows with a free surface. Included are tunnels, non pressurized sewers, partially filled pipes, canals, streams, and rivers. Of the many techniques available for monitoring open channel flows, depth related methods are the most common. These techniques presume that the instantaneous flow rate may be determined from a measurement of the water depth, or head. Weirs and flumes are the most widely used primary devices for measuring open channel flows. a. Weirs: Weirs operate on the principle that an obstruction in a channel will cause water to back up, creating a high level (head) behind the barrier.The head is a function of flow velocity, and, therefore, the flow rate through the device. Weirs consist of vertical plates with sharp crests. The top of the plate can be straight or notched. Weirs are classified in accordance with the shape of the notch. The basic types are V- notch, rectangular and trapezoidal. The special case of a trapezoidal weir with side slopes of 1:4 is known as Cippoletti weir; this form leads to a simplified calculation. Vnotch weirs generally have a notch angle from 30 degrees to 90 degrees depending on required flow capacity. A-24 148
b. Flumes: Flumes are generally used when head loss must be kept to a minimum, or if the flowing liquid contains large amounts of suspended solids. Flumes are to open channel what venture tubes are to closed pipes. Popular flumes are the Parshall and Palmer-Bowlus designs. The Parshall flume consists of a converging upstream section, a throat, and a diverging downstream section. Flume walls are vertical and the floor of the throat is inclined downward. Head loss through Parshall is lower than other types of open channel flow measuring devices. High flow velocities help make the flume self- cleaning. Flow can be measured accurately under a wide range of conditions. Palmer-Bowlus flumes have a trapezoidal throat of uniform cross–section and a length about equal to the diameter of the pipe in which it is installed. It is comparable to the parshall flume in accuracy and its ability to pass debris without cleaning. A principle advantage is the comparative ease with which it can be installed in existing circular conduits, because a rectangular approach section is not required. Discharge through weirs and flumes is a function of level, so level measurement techniques must be used with the equipment to determine the flow rates. Staff gauges and float operated units are the simplest device used for the purpose. Various electronic sensing, totalizing, and recording systems are also available. A most recent development consists of using ultrasonic pulses to measure liquid levels. Measurements are made by sending sound pulses from a sensor to the surface of the liquid, and timing the echo return. Linearizing circuitry converts the heights of the liquid into the flow rate. A strip charter recorder logs the flow rate, and a digital totalizer registers the total gallons. Another recently introduced microprocessor based system uses either ultrasonic or float sensors. A keypad with interactive liquid crystal display simplifies programming, control and calibration tasks.
6. Size of the bulk water meter The size of the water meter to be installed is governed by:
• •
The diameter of the pipe network; The flow rate of the pump (for cases where meter is installed in the pumping station).
The meter must be able to accurately record through the entire range of flows expected from the pump (even if the size of meter is lower than that of pipe). Therefore a water meter should be selected to ensure its rated operating conditions are never exceeded. Selecting a water meter that matches the optimal flow rate will increase the accuracy and life of the meter. Generally the size of the water meter selected should match that of the pump outlet diameter and corresponding pipe. In circumstances where it is impractical to install a meter with the same diameter of the pipe, reducers with the correct size taper must be used. It is acceptable to install a smaller diameter meter into existing pipe (provided that it can accurately record entire range of flows expected from pumps). The installation of a smaller water meter is conditional on the use of a 6 to 1 ratio taper followed by a straight length of pipe the same diameter as the meter and equivalent in length to at least ten times the meter diameter before of the meter. After the meter, a straight length of pipe equivalent to five times the meter diameter is required, followed by a 6 to 1 ratio taper back out to the existing pipe (www.dwlbc.sa.gov.au/files/Installingyourmeter.PDF).
Annexure 5.2b
Selection of Water Meters Water meters being available in many designs with different end-connections and varying flow characteristics, due consideration should be given when selecting any one type of meter for a particular situation. Some of the selection criteria or the requisites are described below:
Accuracy limits The meter must be capable of meeting a standard of accuracy of ± 2%of actual flow over the expected range of the water pipeline system. This standard is to be met operating in either a horizontal or inclined pipeline system. The meter should be recognized by any agency of repute.
Head loss Installation of meter in a water supply system usually involve loss of pressure head, while selecting a meter it should be considered that the pressure loss is not significant.
Materials The meter should be made of sound, durable, corrosion resistant materials. The meters should have hermetically sealed dials. As in their absence there is ingress of moisture on the face of the dial and hence the meter becomes unreadable. Also ensure that all the parts of the meter that are in contact with water should be made of from materials that are non-toxic, non-reactionary and are biologically inert.
Flow display unit The meter should have an integrated flow display unit for the display of flow data. The flow display unit must be resistant to corrosion and fogging. It should be easily readable with clearly specified units and should be enable of determining the following parameters:
Cumulative flow totaliser should be able to be expressed in Kilolitres (Kl) with a minimum of a six digit display, and
Instantaneous flow rate able to be expressed in litres/second (l/s)
Cost Cost is a critical factor in the selection of any meter. While purchasing a water meter the operating cost should also be considered along with the capital and installation cost. Cost criteria should be considered with respect to the quality of meter.
Flow direction The meter should be labelled so as to show the direction of flow, orientation, and any other necessary installation information to achieve the required accuracy. The flow volume totalised must be unaffected by flow in the opposite direction to the labelled flow direction. A-26 150
Annexure 5.2c
Installation Practices Proper installation of meters is a must to measure the water flow accurately. It is often observed that installation of meters is guided by the available space and does not follow the prescribed norms for installation. As a result the alignment of the meters is also not as per the recommended procedures. Installation of meters may require slight changes in the existing alignment of pipes and a proper selection of location for installation. Installation requirements vary drastically among the various meter types. They can be the deciding factors in meter selection For example if a vertical pipe section is not found the variable area meter cannot be used instead inferential meters should be placed horizontally with the dial facing upwards.
Domestic water meters To ensure a proper working of the meters, meters should be installed as per the guidelines laid down by BIS, IS-2401: 1973, which are as following: I. Location of meter The meter shall be installed at a place where it is easily accessible for the purpose of periodical reading, inspection, testing and repairs. Usually, this means having no obstructions to reading the meter. a. Water meters may be installed underground, either in the carriage way outside the premises or at a convenient place within the premises. In order to enable the meters to be accessible for periodical reading, inspection, testing and repairs, they shall be housed in water meter boxed conforming to IS: 2104-1962. Top of the meter box shall be placed at a slightly higher level than the surrounding ground level so as to prevent ground water entering in and flooding the chamber during rains and ensuring that the site remains free of mud and other obstacles and should not be installed deeper than 1.5 m below ground level. (as shown in Figure1)
Figure 1 A boxed water meter
Source: www.westvancouver.ca/upload/documents/water/meter\_booklet.pdf
b. A meter shall be located where it is not liable to get severe shock of water hammer, which might break the piston or damage the rotor, and the meter position shall be such that it is always full of water a recommended method of making connection to achieve the purpose is shown in Figure 2. In some cases, straight pipe length of 10 diameters is used before and after the meter. However, it is better to refer to the installation practices suggested by the meter manufacturer for deciding exact location of the meter. Strainer is some cases are already built-in the meter. c. There shall be straight lengths of pipes upstream and downstream of the meter so as to run out any turbulence produced by the presence of valves etc or changes in the pipe direction as the turbulent flow of water affects the accuracy of the meter.
Source : BIS, Indian Standard Code of practice for selection of domestic water meters, 1st revision, IS2401:1973
Figure 2 Position of Domestic water meter
d. In the case of intermittent water supply system a meter should always be installed so that the top of the meter is below the level of communication pipes so that meters always contains water, when there is no supply of water. This avoid the damages and over run of the meter, also the minimum straight length conditions should also be followed. II. Installation of meter a. If the meter body or the adjacent pipes become partially drained of water, the accumulated air, when passed through the meter, is registered as water, and may cause inaccuracies and perhaps damage. The inaccuracies may be more pronounced in the case of inferential meters. In such situations suitable devices like air-release valve may be fitted on the upstream side of the meter. In the case of intermittent water supply system, where there are frequent changes of air locks, the piston of the semipositive meter often breaks. In such a case, it is advisable to ensure that the top of the meter is below the level of the communication pipe. b. A meter shall not run with free discharge to atmosphere. Some resistance should be given in the downside of the meter if static pressure on the main exceeds 10m head. c. Semi-positive meters may be fixed in any position, with the dials facing upwards or sideways, and they may be installed in horizontal or vertical pipe without affecting wearing properties of accuracy at normal service flows. Where backward flows are anticipated, reflux valves or NRVs should be provided. A stop valve should also be provided on the upstream side as shown in figure2 to isolate the meter, for repair or calibration, whenever necessary. d. Inferential meters shall be installed in horizontal position with their dial facing upwards. However, water meters are to be installed in vertical pipelines, details shall be as agreed to between the manufacturer and the purchaser. A-28 152
Figure 3 Different alignments for positioning of flow meter Source: www.seametrics.com/pdf/3straightrun.pdf
Before installing a meter, the section of line to be metered shall be thoroughly washed flushed to remove all foreign matter and, when starting up, control valve shall be opened slowly until the line is full, as a sudden discharge may damage the meter. e. The meters and the connecting pipes shall be strongly supported for protection of the meters and to avoid noisy vibration.
Bulk water flow meters Flow meters (like electromagnetic, Ultrasonic etc.) are usually used on larger pipelines, which are mostly filled with water. These pipelines can be gravity mains, transmission mains or any major bulk supply line. The meter is installed in the pipeline using flanged or threaded connections giving due consideration for conditioning sections. It should be seen that stress-free installation is carried out in pipeline. It is essential to install the flow meter co-axially to the pipeline without protruding any packing or gasket into the water flow stream. An extreme example is a pipeline, which cannot be shut down, or the measurement point bypassed. In such a case, a clamp on meters should be used, such as Dopplers' and cross correlation. Even if it is not necessary to install the meter without a shutdown, the installation requirements are still important factors both with regard to cost and plant acceptability. It might be the case that, the requisite straight pipe lengths are not available and it is then necessary to de-rate the performance or consider an alternative meter type, such as an electromagnetic one having a minimal requirement for straight upstream piping. Specific application requirements affect different meters in different ways. Unavailability of an electricity supply at the measurement point eliminates the electromagnetic flow meter after consideration. If a vertical pipe section cannot be found, the variable area meter cannot be used. A positive displacement meter requires a strainer, and so on. Even if the meter installation can be met, their effect on the overall system cost should still be considered and quantified.
Poor installations Poor installations are mainly due to lack of knowledge of installation practices or due to constraints in installation. Some examples of poor installations are given here.
Good Installations Nearly all the flow meters must be installed so that there is a significant run of straight pipe before and after the location of the flow meter. This is intended to allow the straight pipe run to "smooth out" any turbulence produced by the presence of valves, bends and changes in pipe direction. This type of turbulence produces error in the reading of most flow meters. The straight length required for the mechanical meters is generally shorter than for other meter types. It is generally accepted that a mechanical meter requires a straight pipe length of 3 diameters and there should be no direct obstructions immediately after the meter – i.e., the meter should not be bolted directly onto a valve or strainer etc. Installation requirements for electromagnetic flow meters
An upstream/downstream straight length of at least 5 DN/3 DN (nominal diameter) at least is recommended to take advantage of claimed accuracy performances. These meters can be installed in horizontal pipelines, vertical pipelines, or the sloping lines, but it is essential to keep the electrodes in the horizontal plane to assure uninterrupted contact with the water. A-29 153
A very poor installation! Bends in both the horizontal and vertical plane
Insufficient straight pipe perfect air trap
Tapers to be selected for installation on bigger piping diameter should always have a top angle below or equal to 8°.
In gravity feed systems, the meter must be kept full therefore; flow meter should always be installed at the lowest point of the horizontal pipeline, or in vertical up flow line.
Installation requirements for ultra sonic flow meters For both Doppler and transit-time flowmeters to indicate true volumetric flow rate, the pipe must always be full. A Doppler meter on a partially full pipe, however, will continue to indicate flow velocity as long as the transducers are both mounted below the liquid level in the pipe. The minimum distance that the meter must be from valves, tees, elbows, pumps, and the like, both upstream and downstream is usually expressed in pipe diameters and typically should be 10 diameters upstream and 5 diameters downstream. Clamp-on meters typically require that the thickness of the pipe wall be relatively small in relation to the distance the ultrasonic energy must pass through the measured liquid. As a general rule, the ratio of pipe diameter to wall thickness should be >10:1; i.e., a 10 in. pipe should not have a wall thickness >1 in. Each of the different ultrasonic flow meter design has its own unique installation requirements; the manufacturers' specific recommendations should therefore be adhered to when installing the flow meter.
Meter too close to the dirt box and bends Source: Sensus Metering Systems : South Africa
Annexure 5.2d
Calibration of Water Flow Meters Calibration involves comparing the meter's display with the measured volume. The particular method of calibration that is most suitable depends primarily on the required accuracy. A meter suspected to be malfunctioning is also tested for its accuracy of measurement. The testing is done as per IS6784: 1996 /ISO4064 part III.
Need for calibration Flow calibration is essential to: a. Maintain the accuracy of meters, which diminishes with time (due to wear and tear in case of mechanical meters, while ultrasonic and electromagnetic meters may experience reduced signal strength reception or transmission). b. Confirm performance of the flow meter: A reliable dataset would provide a robust platform to carry out water audits. c. Comply with statutory or legal requirements. d. Provide traceability of measurement and confidence in recorded data.
When should the meters be calibrated Calibration should be carried out regularly, at an interval of broadly two years so as to meet the required accuracy norms for the flow metered. This is because meters drift with time, depending on factors such as operating conditions, the medium, the type of meter and how often it is used. It is often a good idea to plan ahead for regular calibrations over a longer period of time. There are two philosophies of flow meter calibration. One is that it is better to have a fixed calibration system with all the associated technical back up and with the flow meters being brought to the calibration system, the other favours calibrating in situ leaving the flow meters in their installed condition and using a portable calibrator. The former will generally provide the more accurate calibration but the latter has the advantage that site-specific effects such as proximity to hydraulic disturbances can be taken into account. It is necessary to decide carefully to adopt the option. There is often no choice but to carry out in situ calibration where
The metering accuracy testing is carried out at Qmin, Qt, and Qmax. separately where:
a. Flow cannot be shut off
Qmin. : Lowest flow rate at which the meter is required to give indication within the maximum permissible tolerance.
b. Site-specific conditions will have to be accounted for
Qt: the flow rate at which the maximum permissible error of the water meter changes in value.
c. The meter is so large that removal; transport and testing costs would be prohibitive. The major constraint with in situ calibration technique is that the high accuracy laboratory calibration cannot be matched in the field and accuracies of ± 2% to ± 5% is all that can be achieved and such field tests are
Qn: Half the maximum flow rate. Qmax.: The higher flow rate at which the meter is required to operate in a satisfactory manner for short periods of time without deterioration. The accuracy of the flow meter is divided into two zones i.e. (1) Lower measurable limit in which ±5% accuracy from minimum flow to transitional flow (exclusive) (2) Upper measurable limit in which ±2% accuracy from transitional flow (inclusive) to maximum flow.
called confidence checks rather than absolute calibrations. Such checks are often the precursor to removal of flow meter for laboratory calibration or replacement.
Methods of calibration The calibration of flow meters is done both in situ as well as in the laboratory. 1. In situ calibration methods: The methods involved in the in situ calibration are insertion-point velocity and dilution gauging/tracer method.
For field test following methods can be used:
Clamp on devices Thermodynamic method Velocity area methods (insertion meters) Tracer methods
a. Insertion-point velocity: This method of the in situ flow meter calibration utilizes point velocity measuring devices where the calibration device chosen is positioned in the flow stream adjacent to the flow meter being calibrated and such that mean flow velocity can be measured. In difficult situations a flow traverse can be carried out to determine flow profile and mean flow velocity. b. Dilution gauging/tracer method: This technique can be applied to closed pipe and open channel flow meter calibration. A suitable tracer (chemical or radioactive) is injected at an accurately measured constant rate and samples are taken from the flow stream at a point downstream of the injection point where complete mixing of the injected tracer will have taken place. By measuring the tracer concentration in the samples the tracer dilution can be established and from this dilution and the injection rate the volumetric flow can be calculated. Alternatively a pulse of tracer material may be Figure 1 Dilution gauging by added to the flow stream and the time taken tracer injection for the tracer to travel a known distance and Source: BE Noltingk, Jones' instrument technology reach a maximum concentration is a measure volume 1, mechanical measurements of the flow velocity. 2. Laboratory calibration methods: The methods used in the laboratory for the calibration of the flow meter are: Collection method, prover technology, and master meter or reference meter. Details of the methods are described below: a. Collection method (Gravimetric/ volumetric)
Volumetric method: In this technique, flow of liquid through the meter being calibrated is diverted into a tank of known volume. When full this known volume can be compared with the integrated quantity.
Gravimetric method: In this technique, the flow of liquid through the meter being calibrated is diverted into a vessel that can be weighed either continuously or after a pre-determined time; the weight of the liquid is compared with the registered reading of the flow meter being calibrated.
Figure 2 Flow calibration by weighing Source: BE Noltingk, Jones' instrument technology volume 1, mechanical measurements
b. Prover: This device is also known as a "meter prover". It consists of a U-shaped length of pipe and a piston or elastic sphere. The flow meter to be calibrated is installed on the inlet to the prover and the sphere is forced to travel the length of the pipe by the flowing liquid. Switches are inserted near both ends of the pipe and operate when the sphere passes them. The swept volume of the pipe between the two switches is determined by initial calibration and this known volume is compared with that registered by the flow meter during calibration.
Figure 3 Pipe prover Source: B E Noltingk, Jones' instrument technology volume 1, mechanical measurements
c. Master or reference meter: For this technique a meter of known accuracy is used as a calibration standard.The meter to be calibrated and the master meter are connected in series and are therefore subject to the same flow regime. To acquire consistent accurate calibration it should be ensured that the master meter is itself subjected to periodic recalibration.
Government Agencies providing accreditation Normally the manufacturers of the flow meters provide laboratory calibration of the flow meters in their works. Some of the government agencies also provide laboratory calibration vis. Fluid Control Research Institute (FCRI), Palaghat, Central Water and Power Research Station (CWPRS), Pune and Institute for Design of Electrical Measuring Instruments (IDEMI), Mumbai.
Annexure 5.3
Database Generation for Bangalore City in GIS The Bangalore water supply and sewerage systems have grown enormously during the last four decades. In order to handle such a large system with large volumes of geographically related information, it was imperative to develop and give decision makers a powerful management and decision-making tools. The aim of the BWSSB GIS project consisted of setting up a Geographical Information System for Water Supply and Sewerage. The key business objectives driving the need for a corporate GIS were as follows:
to provide interactive access to up-to-date network and geographical information.
for Operations and Maintenance purposes;
to provide a planning tool to enable the acquisition of new & replaced main;
to provide accurate and comprehensive network information for monitoring.
reporting, decision making and data consolidation;
to allow the integration of geographical information from different sources;
scales, both internal & external;
to provide a widely available asset management system;
To set up a pilot repository spatial dataset for the BWSSB.
The development of a total GIS Solution involves:
BISON (Bangalore Information System On Network) Export. This is the repository whose updation depends on the maintenance of the data since the repository is by definition the data sharing tool which benefits all users.
BISON Light is looked at as a combination of three tools in a user-friendly environment that doesn't require strong computer knowledge, but at the same time offers a wide range of capabilities.
BISON Visio allows the user to display and to query all the different water supply and sewerage layers in a smooth and easy way. It will offer consultation of interactive maps dealing with SS concerns, and provide hard & soft copies of maps in all kinds of scale.
BISON Editor constitutes the core tool for the updation process. It deals with point data at the Service Station level: consumers, complaints & repairs, water quality.
Management Indicator Panel (MIP): This product was defined in order to provide a document that will give the key persons at the decision making level information at a glance of the entire assets of the BWSSB through a series of maps and important indicators. Its main targets are the Chief Engineers and the Chairman. Customized Tools providing a comprehensive GIS solution for the BWSSB.
Conceptual Data Model of BISON 1. Area covered: A 290 Sq. Kms pilot area, covering the whole BWSSB jurisdictions area to implement the GIS system 2. Base Maps: The digital vector data and maps based on aerial photography for the pilot area were provided by National Remote Sensing Agency 3. Detailed water supply and sewerage systems analysis a. Compilation and synthesis of available information b. Identification of information gaps c. Acquisition of the basic knowledge to conduct the DMA d. Study of BWSSB organization e. Detailed description of procedures followed by BWSSB f. Preliminary stage for GIS and Database design This crucial step was undertaken to ascertain the requirements of BWSSB. The main objectives were:
• • • •
To assess what BWSSB expects from the GIS
To select the needs that can be fulfilled within the current project, the needs that can be fulfilled during a project extension and the needs that can only be fulfilled later 1:2000 scale NRSA maps delivered by NRSA
To arrive at a mutual consensus on the implementation of the selected user needs and to tailor a customized GIS
To assess how BWSSB will utilize the GIS in order to design a GIS that supplements these To carry out a detailed analysis of BWSSB's To inform BWSSB what their expectations really mean in term of data collection, data integration, data updation. required equipment, staff availability and training on a long term
GIS Design AND Coding: Implementation of the MERISE method
• •
Conceptual Data model for definition and relations between all data required for the application
Logical Data Model for definition of logical links between tables designed in the Conceptual Data Model
Functional Architecture designs which sites have to be equipped according to the above organization and design
• • •
Physical Data Model, a collection of scripts building the entire structure of the
• •
Operational Process Model for details of procedures codlings
Conceptual Organization and Process Model for elaboration of processes necessary to fulfill the selected needs
Oracle database, that was designed according to the above requirements Design of User Interfaces such as application menus, toolbars, popup and windows, as it will be seen by the users
("Development and testing of front-end application")
Graphical and Alphanumerical Data Collection:290 sq. kms spread over the five divisions of BWSSB Maintenance Department 55 Services Stations
• • •
Over 4000 kms of water pipelines Over 3000 kms of sewage lines Over 3.2 lakh consumer connections
Data Integration
Data Entry of Alphanumerical Data using Excel sheets
Report of Graphical data collected on the field on reference base maps (Ao size-1:1200 scale)
Conversion of NRSA base maps into the ARCINFO /ARCFM GIS
Digitization of Graphical data ARCINFO conversion after Quality Control
Corrections and validation by BWSSB
Final Integration of Data after Topology Building
Development and Testing of Front End Application
Development of User Interfaces to fulfill BWSSB Needs and procedures of their functioning
Coding in VB (Visual Basic) and VBA (Visual Basic for Applications) to implement the Application Modules for the users
The Employee database along with the Billing system integration in the GIS improves the Bill collection and the transparency among the organization.
Accessible from the 55 Service Stations, Bison
Editor provide a powerful solution to track the complaints & repairs and to manage the water quality and the new consumer
A comprehensive information collected all over the networks
Procedure Level as well as Global Testing to ensure strict Quality Controls
Training of BWSSB Staff
Identification and Selection of Trainees
On-the-job Training to BWSSB Services Station staff during field Surveys
Categorized Training to various users according to proposed usage (updation, viewing etc.)
Training to Decision Makers as well as the Operational Staff
Duration of Project
29 months: official project start was may 2000, end in November 2002
• • • • •
1 GIS Senior Expert as Term Leader with a Water Management background,
1 Database manager +one Database expert (ORACLE+SDE), 4VB, VBA, Developers, 4 digitizers, 30 surveyors.
• • • •
Budget-the project finance under the Indo-French Protocol
1 co-Term Leader, GIS and Database expert, 1 GIS Design Engineer (expert) 1 Hydraulic, Water supply and Waste Water Expert , 4 GIS developers (Control Data Collection – Data Integration – GIS Map Integration, ARC Info , MAP Object)
Hardware & software : INR 1.5 Crores, Services charges for GIS implementation & maintenance : INR 8.7 Crores Two months of training for 60 persons, extensively in the use of BISON and the benefit from the data standardization.
16 to 25 KL Above 25 KL upto 10 KL 11 to 15 KL 16 to 25 KL Above 25 KL
(iii) Individual flats or houses in a block of flats or line of houses respectively used for other than residential purposes
Pvt. Educational Instn. – Rs. 400/- p.m. per flat
Institutional – Rs. 300/- p.m. per flat
Private hospital – Rs. 800/- p.m. per flat
Water intensive – Rs. 650/- p.m. per flat
Non water intensive – Rs. 400/- p.m. per flat
Partly commercial – Rs. 150/- p.m. per flat
11 to 15 KL
(i) Domestic Residential premises (other than flats or block or line of houses)
(ii) Flats or houses in a block of flats or line of houses respectively used wholly for residential purposes
Rate/KL (in Rs.)
upto 10 KL
Qty. of water
Existing Tariff Schedules in Chennai, Bangalore and Delhi
Annexure 6.1
50/- per month per flat
50/- per month per dwelling unit
Minimum rate chargeable (including sewerage charges) (in Rs.)
Rs. 40.00/KL entire quantity Rs. 20.00/KL entire quantity Rs. 30.00/KL entire quantity Rs. 15 Rs. 7.00 (wherever local bodies met the cost of infrastructure)
2) Govt. Hospital 3) All others Entire consumption Entire consumption
Rs. 25
above 15 KL
1) Pvt. Edn. Institution
Rs. 15
11 to 15 KL
Rs. 300
Rs. 200
Rs. 400
Rs. 150
Rs. 650/- * (Water intensive)
All others – above 500 KL Rs. 60/ KL for entire quantity Rs. 5
Rs. 800/- *(Water intensive)
Private hospital – above 500 KL Rs 80/KL for entire quantity
Upto 10 KL
Rs. 400/- (Non-water intensive)
All others upto – 500 KL Rs. 35/KL
Rs. 800/- * (Water Intensive)
* Sewerage charges 25% on water supply charges wherever sewer connections are provided. * Water intensive means premises used fully or partly as theatres, hotels, boarding houses, lodges, clubs, private hospitals, private hostels, kalyanamandapams, clinics with inpatient facility, swimming baths, places for keeping animals, vehicle service stations, nurseries.
E (I) Municipal bulk supply
E. Municipal bulk supply
D. Institutional
C. Partly Commercial
B. Commercial
Private hospital – upto 500 KL Rs. 50/KL
A-40 164 2) Maintenance charges for steel tanks
Rs. 400/- per load of 6000 litres/Rs. 600/- per load of 9000 litres/Rs. 670/- per load of 10000 litres Rs. 510/- per load of 6000 litres/Rs. 765/- per load of 9000 litres/Rs. 850/- per load of 10000 litres Rs. 510/- per load of 6000 litres/Rs. 765/- per load of 9000 litres/Rs. 850/- per load of 10000 litres
a) Domestic purpose
b) Other than domestic purpose
iii) Commercial (including private hospital)
ii. Partly commercial
i. Domestic (including hostels of colleges and schools recognised by state/central govt./ govt. Qtrs. etc.)
Mobile water supply to customers Rs. 400 per load of 6000 litres/- Rs. 600/- per load of 9000 litres/ Rs. 670/- per load of 10000 litres
Rs. 200/- per month per tank
1) Mobile water supply to slums
G. Casual water supply
Rs. 4/- per 1000 litres for entire quantity supplied
Maintenance charges
Rs. 400/- per month including maintenance charges
Hydrant and public fountains
Rs. 400/- per load of 6000 litres/Rs. 600/- per load of 9000 litres/Rs. 670/- per load of 10000 litres
b) Govt. offices/schools/colleges/hospitals etc.
H. Hire charges for tanks hired out
Rs. 250/- for two days and Rs. 50/- for every additional day
Rs. 300/- per load of 9000 litres
Rs. 200/- per load of 6000 litres
Rs. 60/- per 1000 litres
b) Commercial (including private hospitals/private educational institutions)
vi.) For the employees of the Chennai Metropolitan Water Supply and Sewerage Board who desires to avail the lorry water supply for their own house hold requirements, the cost will be calculated at actual cost price
Rs. 400/- per 1000 litres
a) Domestic (including govt. schools/colleges/office institutions/ hospitals)
v. ) Water supply at Metro water filling points
Rs. 510/- per load of 6000 litres/Rs. 765/- per load of 9000 litres/Rs. 850/- per load of 10000 litres
a) Private educational institution including hostels
iv) Institutional
E. Public supply tubewell pumps or mark II pumps
I) Pvt. Educational Institution – Rs. 400/- p. m.
D. Institutional
Rs. 40/- p. m.
iii) All others – Rs. 300/- p. m.
ii) Govt. Hospital – Rs. 200/- p. m.
Rs 150 p. m.
Non water intensive All others Rs. 400/- p.m.
All others Rs. 650/- p.m.
Private Hospital Rs. 800/- p.m
Water intensive
Pvt. Educational Instn. Rs. 400/- p.m. per flat
Institutional Rs. 300/- pm. per flat
Private Hospital Rs. 800/- p.m. per flat
Rs. 650/- p.m. per flat
Water intensive (all others)
C. Partly Commercial
B. Commercial
Partly Commercial Rs. 150/- p.m. per flat
(iii) Individual flats or houses in a block of flats or line of houses respectively used for other than residential purposes Non water intensive Rs. 400/- p.m. per flat
Rs. 50/- p. m. per flat
Rs. 50/- p. m. per dwelling unit
Water charges/Month (including sewerage charge)
(ii) Flats or houses in a block of flats or line of houses respectively used wholly for residential purposes
(I) Domestic residential premises (other than flats or block or line of houses)
A. Residential
Unmetered consumer tariff
II. Non-domestic
(Section 36[1])
I. Domestic
(filtered water)
9.00 15.00 30.00 36.00 36.00 (I) Rs. 15.00 at flat rate for consumption of 0 to 25000 liters
2) 8001 – 25000
3) 25001 – 50000
4) 50001 – 75000
5) 75001 – 100000
6) 100001 & above
Sanitary charges for
domestic connection
44.00 51.00 57.00
3) 20001 – 40000
4) 40001 – 60000
5) 60001 – 100000
2) 10001 – 20000
6) 100001 & above
1) 0 – 10000
against for consumption of above 50000 liters
(iii) 20% of water supply charges per month
on water supply charges per month
(ii) From 25001 to 50000 liters 15%
1) 0 – 8000
Category and Consumption (KL)
Minimum charges (in Rs.)
Swimming pools
Public taps Section 36 VII
Premises not having water supply connection from BWSSB but having only UGD connection in addition to sanitary charges
b. Non-Domestic
a. Domestic and apartment
For premises having water supply and UGD connection but supplementing water supply for tanker/borewells Bidadi Industrial Area
All non-domestic connection
Domestic connection
Lorry loads
Sanitary charges
Rs. 51.00
Bidadi Industrial Area
Rs. 300/- per month
Rs. 50/- per month per individual house per flat. Revised from Rs. 200 to 300 per month per HP of borewell
From 10% to 20% of water charges for month
Rs. 20% of water charges per month for consumption of above 50000 liters
Rs. 15% of water supply charges per month for consumption of above 25000 liters upto 50000 liters
Rs. 15/- at flat rate for consumption of 0 to 8000 liters and 8001 to 25000 liters
Rs. 3000.00
Rs. 60.00
Rs. 250.00
Rs. 60.00
Rs. 10000/- per month
(iii) 5 star hotels and above
(ii) Hospitals/nursing homes having more than100 beds
(I) Nursing home & hospitals having 100 beds Rs. 5000/- per month
Rs. 2500/- per month
Rs. 3000/- per month
(ii) 3 star hotels and above
For hospitals/nursing homes supplementing water supply by tankers in addition to borewell
Rs. 1000/- per month
(I) Non star hotels
Hotels having boarding and lodging supplementing water supply by tankers in addition to borewells
21– 30 KLs
Above 50 KLs
Above 25 KLs and upto 50 KLs.
Upto 25 KLs
Rs. (B) per KL.
Above 100 KLs.
Above 50 KLs and upto100 KLs.
Above 25 KLs and upto 50 KLs.
Upto 25 KLs
Consumption (per month)
Category III (Industrial)
2. 50% of water consumption charges is towards sewerage maintenance. 3. In addition, water cess charges shall continue to be recovered at the previous rate of 2-paise per KL. till revised by the Central Govt./ DJB. 4. Meter Maintenance (Rent) charge @ Rs. 10.00 p.m. in case of DJB supplied water meters after expiry of warranty period.
• X= Units consumed in KLs. (Number)
• B= Block tariff rate per KL (Rs./KL.)
• M =Minimum service charges (Rs.)
P = Total Bill.
X= Units consumption in KL.
B= Block tariff rates per KL.
1. P= M + 1.5 B X Where, M= Minimum service Charges
Hence, the bill will be calculated as follows :
The second part of the tariff is volumetric Water Charges is based on actual consumption and to be calculated as 1.5 B X
7 – 20 KLs
Above 30 KLs
Upto 6 KLs
Consumption (per month)
Consumption (per month)
Rs. (B) per KL.
Category II (Commercial)
Category I (Domestic)
Rs. (B) per KL.
S. No.
Category 6,e.g., Bulk
Category 5,e.g., Worship Places
Category 4,e.g., Public Standpost
Category 3,e.g., Industrial
Category 2, e.g.,
Consumer 'n'
Consumer 2
Consumer 1
Any other size
Any other size
Any other size
Category 1, e.g.,
Ferrule Size (as per tariff structure)
Customer Category (as per tariff structure) 3
No. of Consumption
1) Category-wise annual income from water tariff
Annexure 6.2 Formats for database
5 Rs/Month
Fixed charge
Yearly Connections
Variable charge
Rs Crore
Revenue from fixed charge
Rs Crore
Revenue from variable charge
Rs Crore
Total Revenue
2) Revenue–expenditure components Revenue S.No
Revenue from sale of Water (in a particular Financial Year)
Category I
Category II
Category III
Category 'n}
Revenue from subsidies & grants Source I: Source II: Source III: Source 'n'
Loans from Government/Funding Agencies/Financial Institutions Source I: Source II: Source III: Source 'n'
Other Income
Road Cutting Charges
Income from regularization of connections (Illegal to legal)
Income from Water Tankers
New Water Connections Total Revenue
Previous Financial Year
Current Financial Year
Expenditure S.No
Employee Cost – Permanent & Temporary
Dearness Allowance
Medical Expenses Reimbursement
Leave Travel Encashment
Staff Welfare Expenses
Other Employee Cost Items, if any:
Operation & Maintenance:
Plant & Machinery
Pump Repair
Repair of Pipelines
Maintenance of Tanks
Electricity Arrangements – Pumping & Treatment
Other O&M Expense Items, if any
Administration & General Expenses
Rent, rates and taxes
Legal Charges
Audit Fees
Conveyance & Travel Charges
Consultancy Charges
Technical Fees
Other Professional Charges
Electricity charges for office, building etc
Other A&G Charges such as Books & Periodicals, Printing & Stationery, Entertainment of Officials etc.
Previous Financial Year
Current Financial Year
Expenditure on New Works
Expense Item I
Expense Item II
Expense Item III
Expense Item 'n'
Interest & Finance Charges
Source I, rate of interest
Source II rate of interest
Source III, rate of interest
Source 'n', rate of interest
Public Health & Engineering Department
Expense Item I
Expense Item II
Expense Item III
Expense Item 'n' Total Expenditure
To ensure financial clarity and transparency, the Waterworks Department should maintain separate accounts for each financial year. In other words, it should mention the revenue arrears and outstanding expenses separately and not aggregate them with revenue-expenditure in current financial year.
Billing & Collection Reports Month
Current Billing Cycle
Cumulative (During the entire Financial Year)
Billing Category I Category II Category III Category 'n' (As per tariff schedule) Total Collections Category I Category II Category III Category 'n' (As per tariff schedule) Total Total value
0-30 days
30-90 days
Above 90 days
Accounts receivable Category I Category II Category III Category 'n' (As per tariff schedule) Total
Annexure 7.1
Rationale for Reforms in urban water supply sector Investment Requirements Public expenditure on urban water supply and sanitation accounts for 1.2% to 1.8% (10th Five Year Plan/latest figures) of the total plan investments, and is significantly short of requirements. For example, notwithstanding an aggregate budgetary investment of Rs. 243.41 billion in the urban water and sanitation sector over the successive five year plans investment gaps are large. According to estimates of the Rakesh Mohan Committee total requirement for urban infrastructure development covering backlog, new investments and O&M costs for the next ten years is Rs. 2,50,000 crores (US$ 57 Billion). The ninth Plan proposal identifies only around Rs. 12000 crores. With anticipated growth in Tenth plan providing additional funds of Rs.13,000 crores, the total expected plan outlay comes to Rs. 25,000 Crores (US$ 5.7 Billion) which is one tenth of the project requirements. A direct consequence of inadequate provision is manifested in sharp deterioration of service levels. Economic and social costs of under-provision of water are also assessed to be extremely high. (Mathur,www.fiscalconf.org/papers/mathur.pdf ) To meet the huge requirements of funds for the improving infrastructure the urban local bodies thus need to look at alternate source of funding which may include external donors/banks (World Bank, OECF, ADB , DFID etc) or institutional investors like HUDCO/LIC etc. Further in the long term the municipal corporation may also need to tap funds from the markets by using instruments such as municipal bonds or by tapping funds from commercial banks. As a prerequisite to tapping these extra source of funding it may be necessary for the local bodies to put in place institutional and policy reform initiatives in the form of better governance systems, performance monitoring and improved financial management.
National/State policy directives on reforms in water sector National Water Policy 2002 India's National Water Policy 2002 has clearly identified the need for improvements in the management of water sector in the country and has identified the need for reorientation of the current institutional structure of the sector in a manner which promotes a multi sectoral, multidisciplinary and a participatory approach while giving special attention to the management/ O&M of water resource schemes (Box 1). Box 1 With a view to give effect to the planning, development and management of the water resources on a hydrological unit basis, along with a multi sectoral, multi disciplinary and participatory approach as well as integrating quality, quantity and environmental aspects, the existing institutions of various levels under the water resources sector will have to be appropriately reoriented / reorganized and even created wherever necessary. The institutional arrangements should be such that maintenance of water resources is given importance equal or even more than that of new construction. Source: National Water Policy, Ministry of Water Resources, Government of India
City Challenge Fund The Ministry of Urban Development, Government of India is encouraging citywide reforms and restructuring so as to ensure that cities are managed efficiently and become creditworthy (to attract private finance) which will enable them to prepare long term plans for infrastructure investments and implement poverty alleviation programmes. For the implementation of these reforms the Ministry of Urban Development has proposed to set up a performance based City Challenge Fund for catalyzing city level economic reform programmes. Access to the fund would be on a competitive basis.
Urban Reform Incentive Fund The Urban Reform Incentive Fund (URIF) has been created with a corpus of Rs 500 crores per annum as Additional Central Assistance for reform linked incentive to State Government. URIF is a state level incentivization programme. It seeks to incentivize State Governments to follow a certain reform programme decided by the Government of India. The incentive under URIF is provided as 100 per cent Grant to the States and Union Territories entering into a Memorandum of Agreement with the Central Government addressing the first phase reform. The first phase reforms are proposed for a number of areas inclusive of the following:
• •
Introduction of computerized process of registration.
Introduction of a double entry system of accounting.
Levy of reasonable user charges, with full cost of O&M being collected by the end of the 10th plan period.
MoUD Initiatives MoUD also proposes certain regulatory frameworks, which should be brought into effect in the water supply and sanitation sector. It also proposes to draw up guidelines for Public-Private Partnership to encourage PPP in infrastructure development (Box 2). Box 2 Regulatory Framework The participation of the private sector in financing and the delivery of infrastructure at the municipal level, especially in the water and sanitation sector, requires a regulatory framework to protect consumers, apply environmental standards and support the delivery to the poor. As there are a variety of models of regulation from centralized to decentralized systems, guidelines will be developed at the National level to ensure consistency across the country. Appropriate training programmes and capacity support to regulators will also be developed in partnership with the private sector and urban research institutions. Public-Private Participation Guidelines Central Government will develop guidelines for involvement of the private sector in infrastructure, which will ensure competitive biding process in a transparent manner. These guidelines will not only protect the consumers but also ensure integrity of the process. This would support municipalities in designing the PPP process on the lines of the BOT Centre in Philippines or the PPP in the Ministry of Finance in South Africa. Source: Urban Reforms, Ministry of Urban Development, Govt of India
Jawaharlal Nehru National Urban Renewal Mission The need of the hour in most cities is to introduce and sustain reforms, and improve service delivery efficiencies with a focus on minimizing costs, maximizing revenue, and allocating resources in the most optimal manner, all of which are possible in the existing institutional framework. National Urban Renewal Mission, about to be launched by the government, will be completely "reform driven" with eligible cities having to belong to states that have displayed reforms in terms of repeal of Urban Land (Ceiling) Regulation Act, reform of rent control acts, rationalization of stamp duties to not more than 5% over the next five years, introduction of independent regulators for urban services, levy of reasonable user charges for basic urban services, constitution of Citizen Advisory Groups to guide urban reforms' processes, and e-governance, among others. The funds allocated under this mission come from a combination of Central Government, State Government and also as loans from Financial Institutions. The release of Central assistance would be linked with implementation reforms. The Mission includes a list of mandatory and optional reforms of which States and Urban Local Bodies (ULBs) are required to implement all mandatory reforms. In addition, States & ULBs are required to implement any five optional reforms in the first year. A summary of the various national programmes and policies related to urban water supply in India over the years is given in Table 1 below. Table 1 Various policy instruments/programmes used in the urban water supply sector in India Year 1974
Policy/Act/Programme Environmental Improvement of Urban Slums (EIUS) Scheme
Integrated Development of Small and Medium Towns (IDSMT)
• •
The scheme is applicable to notified slums in all urban areas.
The EIUS scheme was made as an integral part of the Minimum Needs Programme in 1974.
The scheme was initiated with a view to augmenting civic services.
Strengthening municipalities through promotion of resource generating schemes.
Reducing migration from rural areas to larger cities by providing sufficient infrastructure facilities, including water supply.
Aims at provision of basic amenities like water supply and sanitation.
Centrally sponsored Rural Sanitation Programme (CRSP)
Provide technical and financial assistance to states to implement rural sanitation programmes under the Minimum needs programme.
1986, 1990/91
Urban Basic Services Scheme (UBSS) (1986) / Urban Basic Services for the Poor Programme (UBSP) (1990/91)
The primary objective was improving the standard of living of urban low-income households, particularly women and children through the provision of sanitation and social services in slum areas.
In 1990/91, the scheme was integrated with the EIUS and came to be known as the Urban Basic Services for the Poor (UBSP) programme.
Rajiv Gandhi National Drinking Water Mission (RGNDWM)
73rd and 74th Constitution (Amendment) Acts
The Accelerated Urban Water Supply Programme (AUWSP)
National Slum Development Programme (NSDP)
Urban Reforms Incentive Fund
City Challenge Fund
National Water Policy
The Accelerated Rural Water Supply Programme (ARWSP) under the (RGNDWM) assists the States and Union Territories (UTs) to accelerate the pace of coverage of drinking water supply.
A three-tier system of local governance, through Panchayati Raj Institutions (PRIs) in rural areas and through Urban Local Bodies (ULBs) in urban areas was established.
State legislatures were empowered to entrust local bodies with necessary power and authority to enable them to function as institutions of local self-government.
State Finance Commissions were to be set up to provide for sharing of revenues between State and local bodies.
The urban and rural local bodies are now responsible for Water supply and sanitation.
The Programme was initiated by the MoUDPA to provide safe and adequate water supply facilities to the entire population of the towns having population less than 20,000 as per 1991 Census. 50% of the finance for the urban water schemes is provided by the Union Government and the rest by the State Government.
Additional Central Assistance is being released to States/ Union Territories for the development of urban slums.
Objectives of the programme include provision of adequate and satisfactory water supply, sanitation, shelter upgradation, garbage, and solid waste management in slums.
Focus areas of the NSDP include development of community infrastructure, empowerment of urban poor women and involvement of NGOs and other private institutions in slum development.
Rs 500 crore to provide reform linked assistance to States on:
• •
Revision of municipal laws in line with model legislation.
Initiation of public private partnership in the provision of civic services.
• •
Support to mega cities for transitional cost.
Drinking water should be priority in planning and operation of systems.
Maintenance of existing water resources schemes would be paid special attention under these institutional arrangements.
Levy of realistic user charges and resource mobilisation by urban local bodies.
Partial cost of developing an economic reform programme and financially viable projects undertaken by the ULBs.
National Urban Renewal Mission
Participatory approach should be adopted and water user associations and local bodies should be involved in operation, and maintenance to lead to eventual transfer of management to the local bodies/user groups.
Private Sector Participation should be encouraged in planning, development and management to introduce corporate management and improve service efficiency.
A standardised national information system with a network of data banks and data bases, integrating and strengthening the existing Central and State level agencies should be established.
Exploitation of ground water resources should be so regulated as not to exceed the recharging possibilities as also to ensure social equity.
The thrust of this mission is on urban infrastructure and basic services for the poor. This mission plans to cover only 63 cities including 7 mega cities, 28 million plus cities, and 28 other cities over a five year period. The mission proposes an agreement between the states, urban local bodies and the central government to undertake reforms before delineation of funds from NURM to the ULBs.
State Government directives MP State Water Policy The Madhya Pradesh state water policy also advocates institutional reforms including better coordination mechanisms and inclusion of demand side perspective in water management along with developing a reliable information system for better management and decision-making. Box 3 Present information and data network including data of processing capabilities should be improved to make it broader, modern and effective. Emphasis should be given for greater use of Remote Sensing technique. It should be made mandatory for users and regulatory departments to maintain all necessary data for compilation of storage of surface and ground water….. …..The water resources planning structure which is at present based on water availability should be correlated with demand base of water distribution and necessary institutional reforms be taken. Source: State Water Policy, Madhya Pradesh, 2003
10th Five Year Plan (Draft) The State Government has published its own Draft 10th Five-Year Plan 2002-2007 in May 2002. "The Plan recognizes the importance of people in the process of development. It further lays emphasis on "decentralization, greater accountability, and increasing space for direct community action". A-56 180
MP Municipal Corporation Act 1956 (With amendments) The Madhya Pradesh Municipal Corporation Act came into existence in 1956. Since then, all Municipal Corporations in the State are governed by this Act. The Act vests the powers for management and maintenance of all water works and the construction and maintenance of new works to the Municipal Corporations across the state. Further, it also directs the Municipal Corporation to find means for providing a sufficient supply of suitable water for public and private purposes. It further defines the composition of the Municipal Corporation. The State has the provision to nominate persons having special knowledge and experience in the municipal affairs to be a part of the Municipal Corporation. Also, according to the act's mandate, a Mayor-in-council has to be brought in place in the city, which leads the pathway for public participation. Wards Committees/ Zonal Committees also need to be constituted by, as a step towards a decentralized approach. In lieu of the above policy directives it may be necessary for the Municipal Corporations to undertake reforms aimed at improving the efficiencies and demonstrate that its operations and sustainable even for attracting funding from the government and also the institutional sector/external donors.
Bibliography B E Noltingk, Jones' Instrument Technology, Volume 1, Mechanical Measurement, Fourth Edition. BIS; Standard for performance testing of water meter (domestic) IInd revision, IS 6784:1996 BIS; Indian standard specifications for water meter boxes (domestic type) Ist revision,, IS 2104:1981 BIS; Indian standard specifications for water meters (bulk type ) IIIrd revision, IS 2373:1981 BIS; Indian standard for water meters domestic type specifications VI th revision, is 779:1994 BIS; Indian standard code of practice for selection of Domestic water meters Ist revision,,, IS 2401:1973 Delhi water Supply Project- Project preparation, Delhi Jal Board, Final Report, part A, Volume I (main report), submitted by Price water house Coopers in association with HDV consultant, The Netherlands and TCE ltd, July 2005 http://www.actaris.com http://www.globalspec.com http://www.omega.com http://www.sec.co.in/pdfs/SCE_profile_Project_BWSSB.pd f: for GIS case study http://www.whoindia.org ICLEI Report: Opportunities for Energy Efficiency Improvement at Moti jheel Water Works Instrument Engineers' Handbook, third edition,1995, "Process measurement and analysis" , Belag G.Liptak Integrated Urban Development in Madhya Pradesh (IUDMP)ADBTA NO.3759-IND,draft final report, volume 2 _city reports Bhopal. Management of change – A guideline to analyzing change projects, per lind, PhD.. Regulation and private participation in the Water and Sanitation Sector, Judith A. Rees, Global Water Partnership, Technical Advisory Committee(TAC). Unicef, Programme Division, water, Environment and Sanitation Technical Guidelines Series – no.7. A Manual on Communication for water supply and Environmental Sanitation Programs, Unicef 1999 Water Demand Management Cookbook; RS McKenzie: WRP Pty ltd, H Buckle: Rand Water, WA Wegelin: WRP Pty Ltd and N Meyer: WRP Pty Ltd
Contacts Kalyan Ray Senior Advisor Office of the Executive Director United Nations Human Settlements Programme (UN-HABITAT) P.O. Box 30030, Nairobi, Kenya Tel: (254-20) 7623039, 7623781 Fax: (254-20) 7623588 E-mail: firstname.lastname@example.com Andre Dzikus Programme Manager Water for Cities Programme United Nations Human Settlements Programme (UN-HABITAT) Water, Sanitation and Infrastructure Branch P.O. Box 30030, Nairobi, Kenya Tel: (254-20) 7623060, 7625082 Fax: (254-20) 7623588 E-mail: email@example.com Kulwant Singh Chief Technical Advisor Water for Asian Cities Programme United Nations Human Settlements Programme (UN-HABITAT) WAC Regional Office EP 16/17, Chandragupta Marg Chanakyapuri, New Delhi 110021, India Tel: (91-11) 42225019, 42225022 Fax: (91-11) 24104961 E-mail: firstname.lastname@example.com Aniruddhe Mukerjee Chief Technical Advisor Water for Asian Cities Programme United Nations Human Settlements Programme (UN-HABITAT) E-1/191, Arera Colony, Bhopal 462016 Madhya Pradesh, India Tel: (91- 755) 2460835, 2460836 Fax: (91-755) 2460837 E-mail: firstname.lastname@example.com
Sewaram Secretary Urban Administration and Development Department Government of Madhya Pradesh Vallabh Bhawan, Bhopal 462004 Madhya Pradesh, India Tel: (91-755) 2551836 Fax: (91-755) 2553717 E-mail: firstname.lastname@example.com Hari Ranjan Rao Project Director Urban Water Supply and Environmental Improvement Project (UWSEIP) Government of Madhya Pradesh Beej Bhavan, Arera Hills, Bhopal 462001 Madhya Pradesh, India Tel: (91-755) 2763060/61/62 Fax: (91-755) 2763868 E-mail: firstname.lastname@example.com The Energy and Resources Institute (TERI) India Habitat Centre, Darbari Seth Block Lodhi Road, New Delhi 110003, India Tel: (91-11) 24682100 Fax: (91-11) 24682144 E-mail: firstname.lastname@example.com Water Resource Planning and Conservation (WRP) Upper Level, Block 5, Green Park Estate 27, George Storrar Drive, Groenkloof Pretoria, South Africa, 0181 Tel: (27-12) 3463496 Fax: (27-12) 3469956 E-mail: firstname.lastname@example.com Shri S.G. Institute of Technology and Science (SGSITS) 23, Shri M. Visvesvaraya Marg (Park Road) Indore 452003 Madhya Pradesh, India Tel: (91-731) 2544415 Fax: (91-731) 2432540 E-mail: email@example.com
www.unhabitat.org/water www.unwac.org
Published on Jan 17, 2006
The Publication presents a comprehensive reforms package by developing Water Demand Management Strategy and Implementation Plan for the city...