64296 The Water and Sanitation Program (www.wsp.org) December 2010 is a multi-donor partnership administered by the World Bank to support poor people in obtaining affordable, safe, and sustainable access to water and sanitation services Field Note Rawalpindi Water and Sanitation Agency, Punjab, Pakistan Laying the Blueprint for a Model Water Utility Rawalpindi Water and Sanitation Agency, located in Punjab province of Pakistan, is a public utility that has made impressive strides in functional viability. It now aims to serve as a role model for others, and script a success story on how a public water utility can achieve optimum performance within a politically, technically, and administratively constrained environment. The new management announced that any new initiative had to be based on authenticated and updated utility data as well as on a thorough assessment of the existing situation, challenges, and opportunities for change. Executive Summary Background Water utilities in Pakistan face a number of challenges as Rawalpindi is the fourth largest city they struggle to provide ef�cient and reliable water and of Pakistan with a population of sanitation services to their consumers. Lack of sector policy, 2.1 million. The RWASA (serving a poor governance, weak institutional framework, a nonexistent population of 1.1 million people and regulatory regime, and a lack of political commitment for reform 0.1 million water connections) was are the major factors hindering service delivery. The impacts created in 1992 under the Government of Punjab City Development Act to of poor governance are most sharply felt in the effectiveness meet the requirements of the rapidly of development projects and their bene�ts on the lives of growing population of the city. It took the poor. Issues such as technical incapacity, lack of trained over the operation of the �ltration plant personnel, political tensions, no clarity in roles and functions from the Public Health Engineering (for instance, overlaps with other civic agencies), and lack of Department (PHED) in July 1996, and social accountability are some of the many hurdles that inhibit the water supply and sewerage system the efforts of public water utilities in Pakistan to achieve from the defunct Rawalpindi Municipal functional viability. However, Rawalpindi Water and Sanitation Corporation in April 1998. Agency (RWASA), located in Punjab province of Pakistan, is Rawalpindi (the twin city of the a public utility that has made impressive strides in reversing federal capital, Islamabad), relies this downward spiral. It now aims to serve as a role model on both surface (Rawal and for others, and script a success story on how a public water Khanpur Dams) and ground water utility can achieve optimum performance within a politically, (tubewells) to meet its needs. Since technically, and administratively constrained environment. its inception, the utility had been facing a number of challenges that Documented in this Field Note are the processes, and the could not be tackled effectively due resulting achievements and outcomes, which enabled this to the absence of reliable utility data, transformation. Also presented are the initiatives that have as well as a coherent planning and since broken new ground in Pakistan. The impacts serve to implementation strategy and effort. further enhance the utility’s potential to sustain its growth as The �ndings of a water quality survey it aims to rub shoulders with well-performing utilities at the in 2007 revealed that 61 percent of international level. the surveyed samples were found un�t for consumption at source, while 64 percent were found un�t for consumption at the consumers’ end. Revenue generation stood at 53 percent and water coverage at about 70 percent. However, since 2006, a new vision and framework of action, by a new administration, has guided a process of reforms and service improvements. Among other achievements, Rawalpindi’s WASA has succeeded in converting previously illegally connected households into regular paying customers and expanded coverage to unconnected 2 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility Box 1: Tracking performance improvement: Performance benchmarking in urban water utilities in Punjab (Pakistan) The Water and Sanitation Program (WSP) launched its benchmarking and performance improvement initiative in South Asia as a regional program in 2005. In Pakistan, the performance benchmarking project, ‘Institutionalization of Performance Benchmarking in Urban Utilities of Punjab’, started in late 2006. The project was initiated through the Housing, Urban Development and Public Health Engineering Department (HUD&PHED) in all the �ve water and sanitation agencies of Punjab Province. Later, the Urban Unit of the Planning and Development Department, Government of Punjab, also joined the WSP and HUD&PHED partnership. neighborhoods with the provision of Department, and WSP. WSP assisted improved services at lower prices. A Government Rawalpindi WASA of�cials in the Intervention analysis of this data which led, in turn, This performance improvement, however, did not happen out of that Worked to the prioritization of three performance improvement targets: the blue. It was the outcome of a The Government of Punjab comprehensive process of stock- Decreased water losses. (GoP) introduced a results- taking, brainstorming, and formulating Increased payment collection. based management system and of intricate strategies and plans to benchmarking of key performance Strengthened consumer orientation. reverse the fortunes of a utility. indicators (Box 1), with technical WSP also facilitated the process assistance from the Water and of change in the WASA from the Sanitation Program, in 2005 to identify conceptualization phase itself. At a areas for improvement in urban water World Bank and WSP sponsored utilities. At that time, as a result of a and organized Global Dialogue GoP initiative and as part of the urban Learning Network course, the WASA’s utility reforms process, Managing MD underlined the importance Directors (MDs) had been appointed of conducting a comprehensive in all the �ve Punjab WASAs (that is, consumer survey to update the WASA’s Lahore, Rawalpindi, Faisalabad, Multan, database. The survey questionnaire, and Gujranwala) after a competitive focused mainly on enhancing revenue process from the market and had been generation and collection, was given performance-based contracts. developed with WSP assistance; a Around the same time, the newly- survey was conducted with the help of appointed MD of the Rawalpindi a local nongovernmental organization, WASA had initiated an internal Human Resource Development Society. transformation process linked with As a result, Rawalpindi WASA now this government initiative, which was has updated information on legal then in its early stages. Subsequent connections; illegal connections have to a request from the GoP Housing been detected and legalized. Some Urban Development and Public Health visible indicators of positive change Engineering Department (HUD&PHED), include coverage extending from the Rawalpindi WASA collected utility 70 percent to 90 percent (Rawalpindi data and submitted it not only to the WASA served area) and an increase in HUD&PHED, but also to the Urban revenue collection from 53 percent to Unit, Planning and Development 80 percent. 3 An organizational restructuring strategy was set in place to transform Rawalpindi WASA into a sustainable, ef�cient, vibrant, and user-friendly organization with clear social and commercial objectives. Reversing the Box 2: Some critical challenges Downward Multiple commands; unclear legal and administrative status. Spiral: Thinking Incompetence at most of the tiers of management, particularly lower management. out of the Box High commercial and technical water losses. The new management announced that any new initiative for reversing the High energy losses. downward spiral had to be based on Cross connections (water distribution lines crossing sewerage lines). authenticated and updated utility data Low revenue collection. as well as on a thorough assessment of the existing situation, challenges, Lack of human resource development. and opportunities for change. As a Low level of customer satisfaction. �rst step, a situation analysis was conducted that identi�ed some Incomplete database. critical administrative and technical Degradation of subsurface water quality (for example, high levels of challenges (see Box 2). bacterial contamination, which may be due, in part, to the fact that some of the network was laid as long ago as 1926). A SWOT analysis of major components—such as institutional/ Depletion or lowering of ground water resources. management, water supply, sewerage, Lack of ownership on the part of consumers. and revenue generation—was carried out separately to assess institutional capacities and constraints, thereby assisting in developing appropriate strategies and plans to tackle the Figure 1: Management strategy challenges identi�ed. Initiatives for Change On the basis of the results of the situation and SWOT analyses, an organizational restructuring strategy— based on a corporate system—was set in place. It aimed at transforming Rawalpindi WASA into a sustainable, ef�cient, vibrant, and user-friendly organization with clear social and commercial objectives. It was realized early on that this would involve changing the philosophy regarding work, including attitudes and ethics comparable to nonstate- owned organizations, by adopting a customer-focused business-oriented structure (Figure 1). 4 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility Table 1: Water and sanitation performance benchmarking indicators Indicator Year 2004–05 2005–06 2006–07 2007–08 A. Coverage 1. Water coverage 63.41% 61.74% 65% 65% 2. Sewerage coverage 35% 35% 35% 35% B. Water consumption and production 3. Water production (million m3/year) 59.64 62.95 62.95 66 4. Water consumption (million m3/year) 37.57 37.50 38.32 39 5. Metered water consumption (million m3/year) Nil Nil Nil Nil C. Unaccounted-for water 6. Nonrevenue water (percentage) 39% 41% 41% 44% D. Metering practices 7. Proportion of connections that are metered 14% 14% 14% 14% 8. Proportion of functional meters 32% 31% 35% 38% (approx.) 9. Proportion of water sold that is metered 22.45% 28.95% 28.95% 29% (bulk); supply to MES, NIH, and so on E. Pipe network performance 10. Pipe breaks 76 61 57 48 11. Sewerage blockage 15,714 17,918 19,992 20,122 F. Cost and staf�ng 12. Staff/1,000 water and sewerage connections 8.81 8.75 8.64 8.81 Total staff/1,000 water and sewerage connections 7.55 7.50 7.43 7.40 13. Salary costs as proportion of operating costs 29.20 28.61 34.42 37.61 14. Power/electricity costs as proportion of operating costs 43.75 36.81 41.39 47.08 15. Contracted out service cost as proportion Nil Nil Nil Nil of operation costs (percentage) 5 An extensive consumer survey exercise was carried out to upgrade the existing database and expansion of consumer network. The scope of work also included the identi�cation of illegal connections and defaulters. The visioning, strategizing, and Box 3: Components of the strategy planning exercises (see Box 3) led to the launching of a number of innovative Vision initiatives aimed at turning Rawalpindi Transformation of Water and Sanitation Agency, Rawalpindi, into a developed, WASA into a modern and forward- modernized and quality-staffed entity, empowered to provide services to looking public utility. These included: citizens in a flexible, transparent and quality manner, and to ensure Zoning of the service area for homogenized development and improvement of water and environmental decentralized services. sanitation sector in the jurisdiction of RWASA on the principles of partnership among public, private, and nongovernmental sectors. Creating water districts/of�ces and Mission statement complaint centers. Suf�cient water will be managed, treated/delivered to points of use where it is Bulk water (at source and at nodal programmed for service. points for unaccounted-for water), Wastewater will be collected from, and extended to, areas programmed for and commercial and domestic growth and delivered to points best suited for wastewater treatment and disposal water metering. or reuse. Plans for installing a sewage Both services shall be monitored and maintained in a manner that strives treatment plant (at present, there is to maximize public health, safety, and welfare for all while minimizing every environmental impact. no treatment for the direct discharge of waste into Nala Leh). The organization will be �nancially sustainable without compromising on quality services and consumer satisfaction. Correspondingly, the following objectives and management strategies were put in place: Objectives Provision of safe drinking water and improved sanitation facilities to all. Establishment of ef�cient operations and maintenance mechanisms for water supply and sewerage. Development and expansion of additional water sources to cater for future needs. Management strategies Principle-centered leadership. Ef�cient management hierarchy. Individual and organizational feedback loops. Competency-based hiring and promotions. Shared mission, vision, and strategies. Vertical and horizontal communication. Job enrichments and job rotations. Redesigning of training cycles. Formulation of standard operating procedures for each set of activities. Effective evaluation and monitoring systems. Active community participation. Effective staff development system. 6 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility The Reform Box 4: Major outcomes: Consumer survey Process in Action Increase in revenue in the form of new/legal connections and The Rawalpindi WASA administration category upgradations amounting to Rs. 14 million1 over a period of has launched the following key two years. initiatives to tackle the challenges it has Revenue collection ef�ciency increased from 53 percent to 80 percent. identi�ed and achieve the targets it has set for itself: Performance-based monitoring and evaluation of revenue staff regarding consumer billing and recovery services (quarterly revenue A. Database Upgradation Initiative collection targets). The lack of both proper documentation Development of database and software for the statistical on modern techniques and upgrading analysis of consumer surveys. of the database was seen as an Decentralized facilities for billing corrections in database. impediment on the way towards reform. It was felt that this had contributed Establishment of MIS center equipped with latest hardware and signi�cantly in low revenue recovery software components. and in the piling up of a sizeable Development of proper billing software systems as required. amount of arrears. There were a large number of illegal connections that were Integrated reports for monitoring revenue generation and undocumented, and amalgamation of collection progress. various consumer categories needed Enhancement in WASA Online Customer Support Services. to be done. In addition, there was a huge quantity of nonrevenue water (NRW) that could not be accurately 53 percent, at the start of the initiative A Recovery Strategy estimated in the absence of the proper in 2007, to 80 percent in 2009 (though that Works categorization of domestic, commercial, it is estimated that 10,000–12,000 illegal consumers have still not been In Rawalpindi WASA, there and industrial uses (since there were no documented). It is also envisioned that were huge arrears in both the exact numbers available for the water this exercise would make available categories of commercial as well as supplied and water billed). Similarly, vitally important utility data for domestic consumers: there was no inventory of the WASA’s assets, such as tubewells (working or future planning, and build consumer Consultation with consumers. abandoned), pumps, and lands; there con�dence about the services provided by the WASA. WSP extended Motivation through electronic had been encroachments on some technical assistance in carrying out and print media. land too. These lands have since been restored. the entire exercise. Incentive-based: Waiving off The methodology for conducting the surcharge and so on. Consumer Survey survey included: Proactive: Raiding suspected An extensive consumer survey Designing a comprehensive chronic defaulters along with local exercise was carried out to upgrade consumer survey questionnaire. magistrates and police force. the existing database and expansion of consumer network. The scope of Preparing and designing of software. Legal action through courts work also included the identi�cation of of law. Inducting and training a motivated illegal connections and defaulters. As workforce for the door-to-door a consequence of the survey, real time consumer survey. category upgradation has resulted in 1 US$1: PKR 85 (approximately), as of December 2010. Conversion rates are from www.coinmull.com; all conversions in increasing the revenue from Preparing an online data bank. the text are approximations. 7 As a consequence of the survey, real time category upgradation has resulted in increasing the revenue from 53 percent, at the start of the initiative in 2007, to 80 percent in 2009. Figure 2: Cause and effect diagram: Low recovery A revenue recovery strategy was Box 5: Putting public of�ces to good use! worked out based on the approaches shown in Figure 2. A separate action list was drawn up to recover commercial and domestic Union- and ward-wise quarterly defaulted payments. Rawalpindi WASA of�cials involved the elected union progress reports of recovery inspectors councilors including nazims (union mayors) in the recovery process. The are maintained. All the data is organized WASA of�cials and the nazims visit the defaulters together and, if required, set by taking the ward as a unit—grading up a meeting with the Managing Director of the WASA. Incentives are offered is done between the various wards; to consumers who are willing to pay. If the negotiations with the defaulters even the revenue inspectors are are unsuccessful, then notices along with disconnection challans are issued graded according to their performance. and summons are sent through the police. A Special Judicial Magistrate is Inspectors face disciplinary action stationed at the head of�ce of the Rawalpindi WASA for this purpose. After a for unsatisfactory performance. The case hearing, a decision is taken by the subdivisional magistrate. grading of inspectors is linked with a package of incentives and disincentives for satisfactory and unsatisfactory Table 2: Recovery comparison through paid performance. Similarly, defaulters have scrolls (2005 to 2007) also been categorized according to reasons for nonpayment; separate Session 2005–06 2006–07 strategies for revenue recovery are January–March 46,448 50,719 applied for each category. April–June 48,022 48,769 B. Establishment of Water July–September 48,893 53,297 Districts/Call Centers: Service at October–December 48,569 49,515 the Doorstep Rawalpindi WASA has established two Note: ‘Scrolls’ here mean bank scrolls. The consumers deposit their bills in commercial banks. water districts/zones (Water District 1: The performance of recovery staff is measured against the bank scrolls as proof. 8 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility Table 3: Ward-wise grading Ward Consumers Current Arrears Consumers Paid amount % Paid % Paid % Age group Grade amount consumers amount 54 1,364.00 494,968.50 3.03 899.00 767,763.00 66 155 06 533.00 455,671.50 2.82 407.00 472,363.00 76 104 29 2,184.00 706,262.00 5.23 1,451.00 717,701.00 66 102 08 886.00 434,484.00 4.24 538.00 435,601.00 61 100 79 487.00 556,243.00 1.34 379.00 547,609.00 78 98 24 1,044.00 389,879.50 5.07 586.00 380,918.00 56 98 28 881.00 361,354.00 3.14 633.00 349,679.00 72 97 90 to 100% A 16 1,636.00 728,985.00 4.89 1,151.00 701,987.00 70 96 (13 wards) 57 1,679.00 558,472.00 6.89 1,114.00 528,224.00 66 95 38 1,152.00 385,821.00 2.19 838.00 366,998.00 73 95 27 1,187.00 409,811.00 2.35 848.00 378,412.00 71 92 22 2,825.00 1,069,599.00 13.88 1,391.00 972,385.00 49 91 12 677.00 641,966.00 4.27 536.00 586,003.00 79 91 Note: Revenue progress for July–September 2008 quarter, presented by MIS section. Satellite Town; and Water District 2: Khayaban-e-Sir Syed) where complaint centers also function. This is an attempt to decentralize services and make it more convenient for consumers to interact with relevant utility staff and seek redressal for their grievances. Complaint centers, an integral part of Rawalpindi WASA’s Customer Relationship Management (CRM) system, cover different union councils and are served by designated technical and engineering staff. There is a subengineer, supervisor, an operator (complaint receiver), and a team leader A review of the CRM is conducted performance of the staff before and in each complaint center. Complaints on a monthly basis, which includes after the deployment of the CRM can also be sent online 24 hours a day. monitoring and identifying challenges, system—by analyzing information The establishment process of the call issues, and outcomes through the gathered through the CRM system, centers included a program for training preparation and generation of daily, identi�cation of grey areas reflected in customer relationship of�cers (CROs) weekly, and monthly summary reports. the number of complaints handled and or central complaint receivers. This These are distributed to the respective processed through the CRM system, included preparing a CRM systems’ departments, that is, Water Supply, enhancement of response time, user manual and in-house training Sewerage and Billing, and so on. reviewing the time cycle of complaint sessions for CROs, and practical Control reports have to be prepared recti�cation, statistical analysis, and demonstrations of customer complaints. for measuring and comparing the so on. Provision has also been made 9 The example of Rawalpindi WASA clearly reflects that, despite obvious restraints, much can be achieved through motivational leadership, learning, and innovation linked with capacity building of the staff. for an evaluation of the CRM system, as well as for performance evaluation Figure 3: Control room work Figure 4: Control room work flow flow of CRM staff through monitoring, Water and Sewerage Resources evaluating, and ensuring compliance Pool of Water Bowsers, Sewerage Machines, and HR WASA Corporate Call of standard operating procedures; Center & Integrated detection of violations; and elimination Control Room: (1334) 24x7 of loopholes from the system. Enterprise Resource Integrated WASA MIS Planning & Management Internal feedback from the staff has to 1. Allocation 2. Monitoring 3. Auto Scheduling be gathered on a quarterly basis by: Online IVR System 4. Ack… Web Auto Human Call Agent 1 Human Call Agent 2 Human Call Agent 3 5778973 PSTN Server Attendant 5778974 5778975 Organizing regular meetings with PABX 5. Billing Complaints all complaint receivers, supervisors, Broadband 1. Water Complaints 3. Sewerage Complaints 4. Sewerage Services 6. New Application, Billing IP Network/ Internet 2. Water Bowser (Free/Paid) History, etc. (Free/Paid) Internet and �eld staff. Server Business GSM/GPRS Wireless GPRS/GSM/ Presenting reports and outcomes Applications Server Complaints PSTN/ Telephonic IP Network/ Internet Mobile Net/ Conventional Mobile/SMS Database Calls/SMS (Inter City) of the Plan which was designed for Server Consumers Complaints/ performance improvement. Queries/ Service Requests Complaint Complaint Complaint Complaint Complaint Complaint Discussing individual roles and Center - 1 Center - 2 Center - 3 Center - 4 Center - 5 Center - N achievements of the staff. WASA Regional Of�ces Discussing issues and challenges of PABX: Private Branch Exchange (Tele Exchange) Designed by: PSTN: Public Switched Telephone Network the operational staff. Farid Ahmed Manager MIS/Database IP: Internet Protocol (Packet Switched Network) GSM: Global Systems for Mobile Communication Administrator GPRS: General Packet Radio Service WASA/RDA IVR: Interactive Voice Response (Auto Attendant) On the other hand, external feedback has to be gathered on a weekly basis by: Con�rmation calls to customers after recti�cation of their problems. Suggestions and recommendations from customers for further improvements in the system. The complaint centers deal with complaints related to water supply, sewerage, and billing; the majority of the complaints received are about billing. All the complaint centers are synchronized with the Head Of�ce. An information board placed near the entrance provides consumers with information on matters such as connection fees, requirements for category change, new connection requirements, and so forth. All the Water Districts have their own assets at their disposal; the vehicles provided are color-coded and employed only within designated districts to avoid misuse. 10 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility Table 4: Category-wise summary report of complaints From date 01.07.2009 To date 30.07.2009 Water complaint Complaint type New Pending Processed Rejected Total Nos. % Leakages 0 0 50 1 51 9 Dirt in water 0 0 41 1 42 7 Pipeline leak 0 0 67 1 68 11 Odor in water 0 0 6 0 6 1 Water shortage 0 0 4 0 4 1 Low water pressure 0 0 7 1 8 1 Colored water supply 0 0 1 0 1 0 Variable water supply 0 0 2 0 2 0 Water disconnection 0 0 2 0 2 0 No water supply 0 0 405 11 416 69 Total water complaints 0 0 585 15 600 Billing complaint Complaint type New Pending Processed Rejected Total Nos. % Extra water bill 0 2 0 0 2 29 Bill not delivered 0 2 0 0 2 29 Exemption for widow 0 1 0 0 1 14 No connection but billed 0 2 0 0 2 29 Total billing complaints 0 7 0 0 7 There are now also plans to introduce to the frequent breakdowns of motors, O&M to be done by quali�ed storage facilities at the Water pumps and accessories, incompatibility engineers and technicians. District of�ces for storing items for between designed and actual repair. When a complaint is �led, Establishment of workshops in the requirements of electrical motor rating, it is forwarded to the relevant staff project area. and the installation of the wrong size of member. After the recti�cation of protective accessories and gadgetries. Energy audit of 22 tubewells the problem, written con�rmation is At places, there was inappropriate to be conducted. obtained from the complainant and installation of equipment. In addition, reported to the District of�ce. The there was excessive electric billing. Rehabilitation of civil and records show that about 90 percent electrical works by the complaints are satisfactorily recti�ed Process and Service outsourced party. within 24 hours. Delivery Bene�ts Maximum pumping hours C. Outsourcing of Tubewells The service delivery bene�ts that were to be 14. the basis for the decision to outsource Another initiative of Rawalpindi WASA Ensuring customer satisfaction. O&M were identi�ed as: has been outsourcing the operation and maintenance (O&M) work of 22 Complaints to be attended within Presence of operator and other tubewells and conducting their energy 12 hours and restoration of the relevant staff in tubewell vicinity audits. The decision was made due tubewells within 24 hours. during operational hours. 11 For utilities to effectively address challenges in a sustained manner, become self suf�cient and technically and �nancially viable, they have to be linked with growth and development in the sector. Some of the �nancial bene�ts that have already accrued are: Energy consumption in KW/hr Before rehabilitation After rehabilitation (Unit per day) 180 units 120 units Savings of unit per month = 60*30 = 1,800 units @ Rs. 7.31 = Rs. 13,158 (*22 tubewells = Rs. 289,476) Financial aspects Year Expenditure: Expenditure: Savings Total bene�ts/ WASA (millions) HMA—private (millions) year (millions) contractor (millions) O&M of 22 tubewells 2010–11 3.500 1.500 2.000 2.82 Energy savings 2010–11 5.736 4.920 0.820 D. Vehicle Tracking and Geo-Fencing System This satellite-based system works through global positioning systems (GPS), short message service (SMS), and general packet radio services (GPRS). It controls any irregularities, misuse, and pilferage of petrol, oil, and lubricants (POL) by WASA tankers, especially by water tankers. A control room to monitor WASA vehicles online has also been established in Rawalpindi WASA. After the implementation of the geo-fencing system, WASA vehicles are now restricted to WASA jurisdiction only. This is expected to result in effective tracking of vehicle movement, preventing misuse of vehicles, and stopping pilferage of POL. E. Water Quality Improvement Several steps have been taken to improve the quality of water reaching the consumers, including: 12 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility Relocating distribution lines in Establishing water quality monitoring different areas of Union Council, and limited water testing facilities of No. 18 passing through sewer critical parameters. manholes and drains. Rehabilitating water puri�cation Doing �eld demonstration of plants installed by the tehsil municipal adverse impacts of installation of administration, Clean Drinking suction motors, free distribution Water Initiative, nongovernmental of stock chlorine solution for organizations, and local governments. water disinfection on-site, alteration or correction of Giving free stock chlorine solution defaulters’ bills, and spontaneous to consumers for disinfection of restoration or reinstallation of ground and overhead tanks in water connections. consumers’ houses. Box 6: Rawalpindi Water and Sanitation Agency goes global Twinning of Rawalpindi WASA with mega cities During the Second Annual Mega City Water Forum in Atlanta, USA, organized from May 14 to 16, 2007, Rawalpindi WASA has been twinned with: Partner city Area of interest Seattle Funding and budgeting Sarajevo Water quality management Tucson Water ef�ciency Atlanta Water management Albuquerque Adequate water supply Membership of international organizations Global Water Operators’ Partnerships Alliance—Steering Committee membership (http://www.gwopa.org). World Water Council (www.worldwatercouncil.org). International Water Association (www.iwahq.org). International Association of Hydrological Sciences (http://iahs.info). World Environment Federation (www.wef.org). South Asian Water Utilities Network (www.sawun.org). 13 The example of Rawalpindi WASA clearly reflects that, despite obvious restraints, much can be achieved through motivational leadership, learning, and innovation linked with capacity building of the staff. recovery by having new Mapping connections, recovery of Future Projects the Outcomes defaulters’ payments, and Some major approved and proposed decrease in energy costs. future works include: Two years have passed since the WASA embarked upon a process of Improved borehole operations Augmentation of water supply transformation. The effort has already have decreased energy based on Cherah Dam: This project, yielded some tangible results: consumption, and reduced cleared by the Central Development ground water extraction and Working Party (federal-level project The utility’s customer base has contamination levels. approval forum) and costing expanded from 85,000 to 102,000 Rs. 5,307 million, will be discussed as a result of the consumer The utility holds regular open in the Executive Committee of survey that facilitated legalization meetings to solicit customer National Economic Council (federal- of connections, expansion of feedback on services and has set level project approval forum), as per services, accurate information up decentralized window of�ces meeting on March 30, 2009. of consumers, and updating of in three locations around the city. Conduction of water for twin cities connection categories. The utility has established from Indus River: Project pending Previously unconnected residents regional complaint centers, with with the Central Development a direct hotlink to the main of�ce, Working Party (CDWP) of the (accessing water themselves Planning Commission, for allocation through alternative means) now which operate on a 24x7 basis of 400 cusecs water by the Indus pay an average of 15 times less and have a toll-free number. River System Authority (IRSA). per month for water services and Approximately 50 people have spend three to �ve hours less per Upgradation of the Rawal Lake day collecting water. been trained at the Government �ltration plant. Technical Training Institute, The utility has become more Gujar Khan, and by Pakistan Replacement of 95 tubewells. �nancially stable through a Council for Research on Rehabilitation of about 50 mini 29 percent increase in revenue Water Resources. �ltration plants. 14 Performance Improvement Rawalpindi Water and Sanitation Planning Punjab, Pakistan: Laying the Agency, for Upgrading Urban Water a Model Blueprint for Services Water Utility Conclusion There is no doubt that Rawalpindi WASA has moved forward, towards positive change. The most critical measure of success has been the remarkable improvement in revenue generation and collection. This has been made possible essentially as a consequence of appropriate priority setting—the consumer survey. The management of Rawalpindi WASA decided correctly at the onset of the reform process that the �rst step is the most important one and made the right choice in opting to �rst determine the status of the utility—its services, its consumers, and its administration. Since then, it would appear that the management has tackled service areas where it felt that they themselves were In the area of consumer services, As mentioned earlier, the Rawalpindi in a position to make a signi�cant the effort to decentralize services by WASA management has not, as difference without assistance from other establishing water districts is again yet, developed a coherent policy or sector players. These areas of service a policy decision that appropriately strategy, or taken action in areas have included revenue generation/ reflects the ground realities. However, where there is an overlap with other collection and customer service. In while a level of decentralization has sector players at the government revenue generation, there has been de�nitely taken place, only very level, for example, on the issue of visible and vibrant progress. The limited powers and functions have water quality. Ground water pollution system is better documented been devolved at the decentralized levels are growing and the water and better managed than before. unit—the water district. On-the-spot gets further contaminated during Packaging incentives and disincentives decision making and functioning at distribution. Rawal Lake is also with revenue collection has added a the water district level is only limited polluted. Political, administrative, and level of accountability to the process to adjustments in billing (installments) jurisdictional constraints limit and that now holds good prospects of and addressing certain types of restrict Rawalpindi WASA’s capacity continuity and further improvement. billing complaints. This is one area to effectively tackle this challenge. However, while the focus has remained where further progress could be Greater emphasis on consensus on reducing arrears and enhancing made to devolve more �nancial and building and regular interaction collection ef�ciency, there administrative powers from the central is suggested. is no movement on tariff setting/ command to the decentralized units. scheduling and linking of tariff increases The working hours of the water Similarly, tariff setting is an issue with improved performance. It is felt district of�ces could be increased by that has been politicized generally that in the long run, it may be dif�cult introducing a shift system (currently, everywhere in the water and to sustain increased investments and the of�ce closes at 3 pm) as there sanitation sector in Pakistan and performance improvement if the are not many complaints that can Rawalpindi WASA is no exception. tariff is allowed to remain static and be addressed in a timely manner by As the reform process progresses delinked with sector investments and accessing the online system which further, strategies would need to increased expenditure. operates 24 hours a day. be developed to tackle the more 15 Water and Sanitation Program 20 A Shahrah-e-Jamhuriat Ramna 5, G-5/1 Islamabad, Pakistan Phone: (92-51) 2279641-46 Fax: (92-51) 2826362 but also that policy decisions taken at ABOUT THE SERIES the management level are effectively December 2010 implemented by the operational staff. WSP Field Notes describe and WSP MISSION: Outsourcing of work, such as O&M WSP’s mission is to support poor people in obtaining analyze projects and activities in of tubewells, is a good initiative, the affordable, safe, and sustainable access to water and water and sanitation that provide results of which need to be properly sanitation services. lessons for sector leaders, monitored and documented and WSP FUNDING PARTNERS: administrators, and individuals the practice of outsourcing applied The Water and Sanitation Program (WSP) is a tackling the water and sanitation multi-donor partnership created in 1978 and elsewhere where the potential challenges in urban and rural areas. administered by the World Bank to support poor technical, �nancial, and administrative people in obtaining affordable, safe, and sustainable The criteria for selection of stories bene�ts merit taking such a access to water and sanitation services. WSP included in this series are large-scale provides technical assistance, facilitates knowledge policy decision. impact, demonstrable sustainability, exchange, and promotes evidence-based advancements in sector dialog. WSP has of�ces in good cost recovery, replicable The example of Rawalpindi WASA 25 countries across Africa, East Asia and the Paci�c, conditions, and leadership. clearly reflects that, despite obvious Latin America and the Caribbean, South Asia, and restraints, much can be achieved in Washington, DC. WSP’s donors include Australia, Austria, Canada, Denmark, Finland, France, the Bill through motivational leadership, and Melinda Gates Foundation, Ireland, Luxembourg, complicated challenges that require learning, and innovation linked with Netherlands, Norway, Sweden, Switzerland, United offsetting or neutralizing political capacity building of the staff. However, Kingdom, United States, and the World Bank. For more information, please visit www.wsp.org. expediencies, such as possibly in the for utilities to effectively address the case of the failed attempt to meter full menus of challenges in a sustained AusAID provides WSP programmatic support. water consumption at the retail level. manner and become self suf�cient and PEER REVIEWERS: There should also be greater focus technically and �nancially viable, they Dr. Nasir Javed, Project Director, Urban Planning on human resource development and have to be linked intrinsically with the and Policy Development Unit, Government of Punjab, Pakistan; Abdul Motelab, WSP, Dhaka capacity building of the staff so that overall growth and development in the not only are reforms associated with an sector and ring-fenced from negative TASK MANAGER: institution and are not person-speci�c, political interference. Masroor Ahmad AUTHORS: Farhan Anwar and Masroor Ahmad The �ndings, interpretations, and conclusions expressed are entirely those of the author and should not be attributed in any manner to The World Bank, to its af�liated organizations, or to members of its Board of Executive Directors or the companies they represent. Editor: Anjali Sen Gupta Pictures by: Asad Zaidi Created by: Write Media Printed at: PS Press Services Pvt. Ltd.